New research from Bangor University has revealed systemic barriers to justice for victims of non-fatal strangulation with “inconsistent application” and a need for police training.
The offence of non-fatal strangulation came into force under the Domestic Abuse Act 2021. It is an act of domestic abuse or sexual assault, where an abuser cuts off their victim’s breathing or blood flow by applying pressure to the neck. It is a gendered crime, most often committed by men against women.
The research found that police and prosecutors rely too much on visible external injuries as evidence, despite Crown Prosecution Service guidance that these are not necessary.
Nearly three quarters of reported cases did not progress to court after legislation criminalising the offence was introduced, with researchers pin-pointing confusion about what constitutes non-fatal strangulation as a key reason why.
The research focused on cases reported between June 2022 and October 2023, the period immediately after the offence came into force.
Previous research shows that around 10% of women experience non-fatal strangulation, rising to up to two-thirds for those who report ongoing domestic abuse. In cases of rape, 19% of women previously reported having experienced non-fatal strangulation as part of the abuse.
Bangor University researchers analysed data on 650 non-fatal strangulation cases within one police force and conducted 19 interviews with staff from two police forces and the CPS. The researchers approached four police forces for data, but only one was able to participate in the data review. CPS data management systems meant the service was unable to provide any data for analysis by the researchers.
Although the prosecutors and staff interviewed showed willingness and passion to support victims and implement the law, the report found that only 20% of police cases resulted in a formal charge of non-fatal strangulation. In 7% of cases, separate charges were brought.
Lead author Dr Shreyasi Desai, lecturer at Bangor University, said: “While the law on non-fatal strangulation is a step in the right direction, it is not being used consistently. In many cases, whether a case moves forward depends on the goodwill of individual officers rather than proper training or clear procedures. Poor data collection during cases makes it hard to know how well the law is working, suggesting there’s little internal monitoring of how it’s actually being put into practice.
“Victims are expected to stay engaged in their case and appear credible, even while potentially navigating complex domestic situations that leave them vulnerable to further abuse. We need to better understand why they withdraw.
“Changing the law was an important step for victims. But it’s now clear that guidance, joined-up systems, and proper training are urgently needed so that police and CPS prosecutors can work together with other partners to support non-fatal strangulation victims and ensure the law delivers justice in practice.”
Bernie Ryan, CEO at Institute for Addressing Strangulation, said: “Since the offence was introduced in the Domestic Abuse Act 2021, the Institute for Addressing Strangulation (IFAS) has worked with police, prosecutors, and health professionals to develop training, share best practice, and improve understanding of the serious physical and psychological impacts of strangulation.
“We remain committed to supporting partners in strengthening processes, improving victim engagement, and ensuring this law delivers justice for survivors.”
CPS figures show that in 2024–25, 8,545 people were charged with non-fatal strangulation, compared to 1,483 in 2022–23.
The new report Project Desdemona – Exploring factors impacting non-fatal strangulation case progression in England and Wales: A report for policy-makers and practitioners, was funded by the Home Office and delivered in partnership with the Institute for Addressing Strangulation and the domestic abuse charity SafeLives.
