Gender-Based Violence in Ukraine: From Legal Framework to Practice

01.10.2026 Blog

Gender-Based Violence is an umbrella term for any harmful acts perpetrated against a person’s will, based on socially ascribed (gender) differences between males and females or their gender identity.

Not so long ago in Ukraine, the issue of violence against women was mentioned only in the context of “family matters” or received sporadic public coverage. Over almost a decade — from the adoption of the specialized law in 2017 to the ratification of the Istanbul Convention and wartime legislative amendments in recent years — the state has built a fairly comprehensive legal response system.

The creation and development of this system were made possible through the systematic work of the civil society sector, human rights advocates, and the support of international partners, notably with the assistance of the governments of Germany and the European Union.

At the same time, the mere existence of laws does not automatically resolve deeply rooted societal problems. In this article, we examine the scale of GBV in Ukraine and worldwide, key milestones in the development of national legislation, practical steps for those in danger, and the institutional gaps identified by both national institutions and international monitoring bodies.

Scale of the Problem

According to aggregated data from the World Health Organization (WHO) released at the end of 2025, approximately 1 in 3 women worldwide has experienced physical or sexual intimate partner violence, or non-partner sexual violence, in their lifetime. WHO explicitly identifies violence against women as one of the most widespread human rights violations — and simultaneously one of the least systematically addressed.

One of the most frequently cited studies is the survey “Well-being and Safety of Women,” conducted under the auspices of the OSCE in 2018–2019. It reveals key statistics illustrating both the scale of violence and the social attitudes that perpetuate it:

67% of women aged 15 and older reported experiencing psychological, physical, or sexual violence by a partner or non-partner in their lifetime.
15% of women with a current partner reported experiencing physical or sexual violence committed by that partner.
47% of surveyed women admitted they felt ill-informed or completely unaware of what to do if they encountered violence.
41% of women believed that if a man treats his wife poorly, outsiders should not intervene.
Nearly 1 in 5 women considered non-consensual sexual acts between cohabiting spouses or partners acceptable.
About a quarter of respondents were inclined to blame the victim of violence rather than the perpetrator.

What Does Law Enforcement Data Show?

Data from the National Police of Ukraine, the Prosecutor General’s Office, and analytical platforms (including Opendatabot) trace the following trends over the past six years:

Year	Reports and Notices Received by Police	Criminal Proceedings Under Art. 126-1 of the Criminal Code (CCU)	Administrative Protocols Under Art. 173-2 of the Code of Administrative Offences (CAO)
2020	≈ 570/day ≈ 209k/year	≈ 184/month ≈ 2,212/year	≈ 363/day ≈ 132k/year
2021	≈ 893/day ≈ 326k/year	≈ 203/month ≈ 2,431/year	≈ 403/day ≈ 147k/year
2022	—	≈ 125/month ≈ 1,496/year	—
2023	≈ 798/day ≈ 291k/year	≈ 225/month ≈ 2,702/year	≈ 447/day ≈ 163k/year
2024	≈ 535/day ≈ 195k/year	≈ 234/month ≈ 2,807/year	≈ 411/day ≈ 150k/year
2025	≈ 327/day ≈ 119k/year	≈ 169/month ≈ 2,024/year	≈ 260/day ≈ 95k/year
1st Half of 2026	≈ 245/day ≈ 44k/6 months	≈ 140/month ≈ 842/6 months	≈ 193/day ≈ 35k/6 months

The drop in the number of proceedings in 2022 was most likely linked not to a decline in actual violence, but to the temporary disruption of parts of the law enforcement and judicial systems following the full-scale invasion, civilian evacuations, and temporary occupation of territories.

Conversely, the rise in 2023–2024 — with a record 431 new proceedings opened in January 2024 alone — is attributed by experts to the cumulative impact of war: mobilization and returning service members, chronic stress, economic instability, and forced cohabitation in overcrowded conditions (temporary housing, shelters).

At the same time, data from the Unified State Register of Domestic Violence Cases, maintained by the National Social Service of Ukraine, shows an opposite trend — a gradual decrease in registered reports from a peak of 284.2 thousand in 2021 to 113.4 thousand in 2025. This discrepancy between data sources clearly illustrates the difficulty of measuring the true extent of the issue: different registries record different types of reports, and a decrease in one metric does not automatically signify a decline in actual violence.

A worrying procedural trend also warrants attention: while in 2022–2023 approximately 83% of criminal proceedings opened under Art. 126-1 of the Criminal Code reached the courts, in 2024 this figure dropped to 64% — the lowest level in five years. Furthermore, according to various police records from 2024–2026, between 62,000 and over 102,000 individuals are officially registered as perpetrators of domestic violence.

Conflict-Related Sexual Violence

The Office of the Prosecutor General of Ukraine keeps separate records of sexual violence related to the armed aggression of the Russian Federation (CRSV). Registration dynamics show a steady increase:

287 documented cases as of mid-2024;
388 as of August 2025;
401 as of June 2026.

Demographic distribution among survivors (as of mid-2024): 185 women, 102 men, and 15 minors.

How the Legal Framework Evolved

Legal protection against GBV in Ukraine has progressed through several distinct stages:

2001: The first specialized Law of Ukraine “On the Prevention of Domestic Violence” (No. 2789-III) was passed, establishing basic concepts and authority of state bodies.
December 2017: The current Law of Ukraine “On Preventing and Combating Domestic Violence” (No. 2229-VIII) was adopted, replacing the 2001 law and introducing key protective tools — emergency protection orders (EPOs), restraining orders, the Unified State Register of Domestic Violence Cases, crisis rooms, and mobile response teams.
January 11, 2019: Article 126-1 “Domestic Violence” of the Criminal Code of Ukraine came into force, criminalizing systematic domestic violence as a distinct offense for the first time.
June 2022: The Verkhovna Rada ratified the Istanbul Convention (Council of Europe Convention on preventing and combating violence against women and domestic violence); it entered into force for Ukraine on November 1, 2022.
January 11, 2019: Articles 152 and 153 of the Criminal Code (Rape and Sexual Violence) were amended to incorporate the principle of affirmative consent: the absence of consent, rather than proof of physical resistance, became the defining criterion of the crime.
2024: Administrative liability was introduced for sexual harassment; court approval of reconciliation agreements in divorce cases involving domestic violence or GBV was prohibited; and grounds for dismissing perpetrator liability due to “minority of the offense” were restricted.
November 20, 2024: Law No. 4067-IX “On Legal and Social Protection of Persons Affected by Sexual Violence Related to the Armed Aggression of the Russian Federation Against Ukraine, and the Provision of Urgent Interim Reparations” was passed, coming into effect on June 18, 2025.
July 2, 2026: The Council of Europe Group of Experts on Action against Violence against Women and Domestic Violence (GREVIO) adopted its first baseline report on Ukraine’s implementation of the Istanbul Convention.

This timeline reflects a consistent evolution from the declarative framework of 2001 to a modern criminalized response system equipped with operational protective measures and a specialized wartime legal regime. However, as detailed below, significant gaps remain in law enforcement practice.

Main Legal Bottleneck

The primary legal challenge in classifying domestic violence as a crime is proving its systematic nature. In a ruling dated February 25, 2021 (Case No. 583/3295/19), the Supreme Court established that domestic violence is considered a completed crime from the moment at least one of its three forms is committed for the third time, provided that it results in legally defined consequences (physical or psychological suffering, loss of capacity to work, emotional dependence, or deterioration in quality of life).

Simply put: the first and second instances are categorized as administrative offenses under Article 173-2 of the CAO, and only the third and subsequent instances — if the required consequences are proven — can lead to criminal liability under Article 126-1 of the CCU.

In a ruling dated May 28, 2024 (Case No. 522/2378/22), the Supreme Court further clarified that harm to physical or psychological health caused by an administrative offense (Art. 173-2 CAO) is not covered by the concept of “physical or psychological suffering, emotional dependence, deterioration of life quality,” which serves as the qualifying criterion specifically for a criminal offense.

Judicial statistics demonstrate how these norms function in practice. In 2019 (the first year Article 126-1 CCU was active), 626 criminal proceedings were reviewed by first-instance courts; 319 were examined (77 closed, 7 returned to the prosecutor), yielding 226 convictions — all guilty verdicts. Analysts point out a key structural issue: a significant portion of cases in this category are closed due to court approval of reconciliation agreements between the victim and perpetrator. While this reflects the victim’s autonomy to decide, international observers frequently highlight this practice as weakening the deterrent effect of penalties.

Another tool for enhancing offender monitoring announced by the Ministry of Internal Affairs in 2024 is electronic monitoring devices (electronic ankle monitors). Courts may order these for perpetrators who continue systematic violence after being issued protection or restraining orders. While this mechanism is developing, Ukraine has long faced an acute shortage of electronic monitoring devices, creating practical challenges for its widespread enforcement.

Four First Steps if You Encounter Violence: Lawyer’s Advice

If you find yourself in a situation involving violence — whether recently or ongoing — panic and confusion are entirely natural. Remember: you have legal tools for protection. Here is how to use them:

Step 1. Ensure Immediate Safety

If there is an immediate threat to your life or health, call 102. The police are obligated to respond, conduct a risk assessment, and, if necessary, issue an Emergency Protection Order (EPO) against the offender on the spot. An EPO is valid for up to 10 days and can legally require the perpetrator to leave your shared residence immediately.

If there is no direct current threat to your life, but the situation could escalate, prepare a safety plan in advance:

Determine where to keep copies of documents (passport, tax ID, children’s birth certificates);
Ensure access to personal or shared financial funds;
Identify where to go if needed (relatives, friends, shelters);
Inform trusted individuals about the situation.

Step 2. Document Evidence as Quickly as Possible

Evidence fades quickly: bruises heal, messages are deleted, and witnesses forget details. Follow this plan:

Immediately record the date, time, and a detailed description of what happened;
Save text messages, screenshots of threats, and voice notes;
Photograph bodily injuries and damaged property (preferably with timestamps on the photos);
Seek medical assistance even for minor injuries — the doctor must record the injuries in your medical documentation; if necessary, police can refer you for a forensic medical examination (which can also be requested independently);
Record the contact details of potential witnesses.

The legal logic is straightforward: systematic occurrence and documented harm are the core elements distinguishing an administrative offense under Art. 173-2 CAO from a crime under Art. 126-1 CCU. Without evidence, proving this distinction is significantly more difficult.

Step 3. File an Official Report with the Police and Registry

You can report violence by calling 102 or visiting the nearest police station in person. Police duties include:

Receiving and registering your report or application;
Conducting a risk assessment;
Entering the case into the Unified State Register of Domestic Violence Cases (regardless of future decisions);
Informing you of your rights and available social services;
Where grounds exist, drafting an administrative protocol under Art. 173-2 CAO or opening criminal proceedings under Art. 126-1 CCU.

If you are uncertain about going to the police, do not let doubts pushed by the perpetrator or others decide for you. You can consult a helpline beforehand to understand the process.

Step 4. Access Legal and Psychological Support

This step is often delayed, even though it determines the future trajectory of the case:

Contact the Free Legal Aid System at 0 800 213 103 (24/7, free of charge). A lawyer can help draft a court petition for a restraining order and represent your interests in court;
Call the National Hotline at 116 123 or 0 800 500 335 for psychological support and guidance;
If needed, reach out to a mobile social-psychological response team or request temporary accommodation in a shelter;
Submit a request for free legal aid to the NGO “March of Women” (Marsh Zhinok).

Important Helpline Contacts

116 123 or 0 800 500 335 — National Hotline for the Prevention of Domestic Violence, Human Trafficking, and Gender Discrimination (24/7, anonymous, free; operated by La Strada-Ukraine).
0 800 213 103 — Contact Center for the Free Legal Aid System (24/7, free; legal advice, drafting court documents, attorney representation).
0 800 210 160 — People in Need Helpline for survivors of domestic violence.
Child Helpline (La Strada-Ukraine) — Consultations for children and adolescents (the Teenergizerproject is also available for youth).
Mobile Response Teams — Accessible through local social service centers, regardless of whether a formal police report was filed.
Resilience Centers (Centres for Assistance to Survivors) — Specialized support centers for survivors of conflict-related sexual violence, coordinated by the Ministry of Social Policy.

Specialized Wartime Legal Regime

Under Ukrainian and international law, Sexual Violence Related to the Armed Aggression of the Russian Federation (CRSV) is classified as a grave war crime with no statute of limitations. This includes rape, sexual slavery, forced prostitution, forced pregnancy, forced sterilization, as well as associated acts — threats of sexual violence, forced observation of violence against others, genital mutilation, and forced nudity.

Law of Ukraine No. 4067-IX, enacted on November 20, 2024, and effective from June 18, 2025, legislatively defined the status of persons affected by CRSV and established the foundation for their legal and social protection system.

The law guarantees rights to urgent monetary payments, rehabilitation, social services, and legal aid, while enabling local authorities to establish additional financial support programs. The specific mechanism for urgent financial aid was detailed under Cabinet of Ministers Resolution No. 811 of June 4, 2026. This resolution outlines the process for recognizing survivor status and delivering an urgent interim payout of €3,000 (in UAH equivalent at the official NBU exchange rate). The resolution enters into force on September 29, 2026.

Legal nature of this payment: It serves as urgent interim reparation to provide immediate relief, rather than final compensation for damage. Comprehensive reparations for war crimes remain subject to separate judicial and international legal mechanisms (including the future international compensation mechanism for victims of Russian aggression).

Systemic Vulnerabilities and Gaps

An objective analysis of Ukraine’s GBV protection system requires examining its core vulnerabilities:

Gap Between Reporting and Prosecution: Despite an increase in reports, the proportion of cases reaching court fell to 64% in 2024 (a five-year low), signaling high caseloads among investigative units and potential procedural hurdles.
Reconciliation Practices: Court approval of reconciliation agreements in a major share of domestic violence cases is identified by GREVIO as weakening deterrents. This creates a real dilemma between honoring the victim’s autonomy and mitigating systemic risks of perpetrator impunity.
Non-Enforcement of Orders: Research by the Council of Europe indicates that emergency protection and restraining orders are not always effectively enforced in practice, undermining their preventive purpose.
Temporarily Occupied Territories: The state cannot fulfill its Istanbul Convention obligations in areas outside government control — a limitation acknowledged by international monitoring bodies.
Societal Attitudes vs. the Law: Even well-structured laws cannot function fully while a significant part of society views violence as a private family matter.
Gender-Neutral Language vs. Gender-Specific Reality: While gender-neutral legal language aims to protect everyone, data shows that 88% of protection order applicants are women, highlighting a structural gender asymmetry that law enforcement practice must recognize.
Low Severity of Penalties: Even when cases reach court and end in convictions, penalties rarely involve actual imprisonment. This raises questions regarding the sufficiency of the criminal justice system’s deterrent effect.

Common Myths vs. Statistical Facts

Myth	What the Data and the Law Show
“Domestic violence is a private family matter.”	Domestic violence is a criminal and administrative offense (Art. 126-1 CCU, Art. 173-2 CAO). However, 26% of surveyed women in Ukraine still share this belief, highlighting a gap between legal norms and social practice.
“Physical resistance must be proven.”	Following the implementation of Istanbul Convention standards in Arts. 152–153 CCU, the key legal criterion is the absence of voluntary consent, not proof of physical resistance.
“Psychological and economic violence are not serious.”	The law explicitly recognizes psychological and economic abuse alongside physical and sexual violence. According to the OSCE, 67% of women experience psychological, physical, or sexual abuse during their lifetime.
“The victim is often to blame.”	24% of surveyed women in Ukraine share this victim-blaming attitude, which directly contradicts the legal presumption of innocence — a concept that applies strictly to the accused in criminal proceedings, not to the survivor.
“Calling the police will automatically destroy the family or lead to the removal of children.”	Seeking help does not automatically trigger other legal proceedings. Decisions regarding next steps remain entirely up to the survivor.

This material was prepared within the framework of the EMPOWER project, funded by the Federal Ministry for Economic Cooperation and Development of Germany (BMZ) jointly with the European Union and implemented by GIZ Ukraine.