In 2021, the government published the End-to-End Rape Review, which acknowledged the collapse in prosecutions and promised to:
- Increase rape charges to 2016 levels (3,160 per year) by 2024
- Reduce time from report to trial to 6 months
- Limit intrusive digital evidence requests to relevant information only
- Improve victim support with more Independent Sexual Violence Advisors (ISVAs)
- Introduce specialist rape courts with trained judges and prosecutors
As of late 2024, the government has failed to meet these targets:
- Charges have fallen further, from 1,439 in 2020 to 1,090 in 2024
- Average time to trial is 3 years, not 6 months
- Digital evidence requests remain intrusive, with no meaningful change in practice
- ISVA numbers have increased slightly, but remain insufficient to meet demand
- Specialist rape courts have not been rolled out nationally due to lack of funding
What Needs to Change
Victims' groups and criminal justice experts have called for:
1. End CPS Risk-Aversion
The CPS must stop 'cherry-picking' easy cases and prosecute all cases where there is sufficient evidence, even if conviction is not guaranteed. This requires:
- Changing performance metrics: Judge the CPS on the number of cases prosecuted, not just conviction rates.
- Specialist rape prosecutors: All rape cases should be handled by specialist prosecutors trained in the dynamics of sexual violence.
2. Ban Intrusive Digital Evidence Requests
Police should only request specific, relevant digital evidence, not entire phone downloads. The Information Commissioner's Office has issued guidance on this, but it is not being followed. Legislation may be needed to enforce it.
3. Faster Trials
Rape cases should be fast-tracked through the courts, with a target of 6 months from report to trial. This requires:
- More court capacity: Additional courtrooms, judges, and prosecutors dedicated to rape cases.
- Specialist rape courts: Courts with trained judges, prosecutors, and support workers, as used in some other countries.
4. Better Jury Directions on Rape Myths
Judges should give stronger directions to juries on rape myths, and research should be conducted to test whether these directions are effective. Some experts have called for specialist juries trained in the dynamics of sexual violence, though this is controversial.
5. Increased Funding for Victim Support
Victims need:
- More ISVAs: The ratio of 1 ISVA per 62 reported rapes is unsustainable. Victims need consistent support from report to trial and beyond.
- Trauma counselling: Immediate access to counselling, not 12-18 month waiting lists.
- Legal advice: Victims should have access to independent legal advice to understand their rights and challenge intrusive evidence requests.
6. Cultural Change in Police and CPS
Police and prosecutors need:
- Better training: All officers and prosecutors should receive specialist training in sexual violence, trauma-informed practice, and challenging rape myths.
- Accountability: Forces and CPS areas should be held to account for low charge and conviction rates, with targets and regular inspections.
International Comparisons
The UK's rape prosecution crisis is worse than most comparable countries:
| Country | Reporting Rate | Charge Rate | Conviction Rate (of reports) |
|---|
| England & Wales | 16% | 1.6% | 0.9% |
| Sweden | 25% | 10% | 4% |
| France | 20% | 8% | 3% |
| Germany | 18% | 6% | 2.5% |
Countries with higher charge and conviction rates have:
- Specialist rape units: Dedicated police units and prosecutors who handle only sexual violence cases.
- Faster court processes: Trials within 6-12 months instead of 3 years.
- Better victim support: More ISVAs, trauma counselling, and legal advice.
- Less intrusive evidence requests: Focus on relevant evidence, not entire digital lives.
The Bottom Line
Only 1.6% of rapes reported to police in England and Wales result in a charge, down from 7.7% in 2016. The charge rate has collapsed due to CPS risk-aversion, intrusive digital evidence requests, court delays averaging 3 years, and police under-resourcing. Victims face hostile cross-examination and rape myths in court, and many drop out of the process exhausted and traumatised. The government promised to increase charges to 2016 levels by 2024 but has failed, with charges falling further. Victims' groups call for an end to CPS 'cherry-picking', bans on intrusive digital evidence requests, faster trials, better jury directions on rape myths, and increased funding for victim support. Without radical reform, rape will remain effectively decriminalised in England and Wales.
Key takeaways
- 68,000 rapes were reported to police in 2024, but only 1,090 resulted in a charge—a charge rate of 1.6%
- The charge rate has fallen from 7.7% in 2016, despite government promises to improve rape prosecutions
- Average time from report to trial is 3 years, with victims waiting in limbo while facing intrusive evidence requests
- Only 16% of rape victims report to police, meaning the true scale is estimated at 425,000 rapes per year
- The CPS has been accused of 'cherry-picking' easy cases and dropping difficult ones to protect conviction rates
Sources
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