Published date:
The Commissioner for Victims of Crime Office for Northern Ireland has today published a new report highlighting serious and growing gaps in the effectiveness of Non-Molestation Orders (NMOs), the primary civil protection available to victims of domestic abuse.
The report, “Protection on Paper? The Changing Use and Effectiveness of Non-Molestation Orders in Northern Ireland (2016–2024)”, reveals that while domestic abuse incidents remain at historically high levels, fewer victims are applying for NMOs, fewer orders are being granted, and enforcement is inconsistent.
Analysis of eight years of data shows that applications for NMOs have fallen by 28%, despite a sustained rise in domestic abuse crimes. At the same time, the likelihood of a victim successfully securing an order has declined, with grant rates falling and withdrawals increasing. The report also identifies stark regional disparities, meaning access to protection can depend heavily on where a victim lives.
Critically, the findings highlight systemic issues across the criminal justice system, including barriers in legal aid, delays in court processes, inconsistent decision-making, and failures to properly record and act on breaches. Victims described the system as “slow”, “retraumatising”, and at times unreliable in delivering the protection intended in law.
The report warns that these combined weaknesses are creating a widening “protection gap”, leaving victims at increased risk and undermining confidence in the justice system at the point they most need support.
Commissioner Designate for Victims of Crime, Geraldine Hanna, said:
“This report sends a clear and urgent message. Northern Ireland’s primary civil protection for victims of domestic abuse is not functioning consistently or effectively. At a time when domestic abuse remains at deeply concerning levels, it is unacceptable that fewer victims are accessing protection, and more are leaving the system without the safeguards they need.
“We are seeing a system where outcomes vary depending on location, where victims carry too much of the burden, and where breaches are not always acted upon.
“Addressing these issues requires coordinated, system-wide action across policing, courts, legal services and government. Victims must be able to access protection quickly, confidently, and without further trauma. The system must work for them every time.”
The report calls for urgent reform across key areas, including improving access to legal aid, strengthening enforcement and breach recording, reducing procedural delays, and ensuring consistent standards across all court areas. It also highlights the need for better cross-agency coordination and training, particularly in relation to coercive control and digital abuse.
The report can be read here NMO Research June 2026 | Commissioner for Victims of Crime Northern Ireland.
CVOCNI reports are based on the consolidated findings of qualitative and consolidated research by Fiona Boyle Associates, which can be read at the link above.