Stalking legislation review: terms of reference
Published 22 October 2025
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1. Background to the review
The Suzy Lamplugh Trust, on behalf of the National Stalking Consortium which they convene, published a super-complaint into the police’s handling of stalking cases on 25 November 2022. This was investigated by the Independent Office for Police Conduct (IoPC), His Majesty’s Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS) and the College of Policing. On 27 September 2024, the investigating bodies published a report outlining their findings. This included a recommendation for the Home Office to change the law on stalking. The government responded by committing to reviewing the stalking legislation.
2. Purpose of the review
The review will consider whether the criminal law on stalking needs to change to ensure the police and wider criminal justice partners have the clearest possible framework for effective identification, management and prosecution of stalking cases. The review aims to consider measures to achieve clarity in the stalking legislation to facilitate a consistent approach to investigating and prosecuting stalking cases, ultimately improving criminal justice system outcomes for stalking victims. The review will recommend options for reform where appropriate.
3. Objectives
The review will analyse existing academic research, examine relevant cases and engage with stakeholders from across the criminal justice system and specialist stalking sector. This will inform understanding of how the current law is working and the extent to which it provides a clear framework to tackle behaviours and harms associated with stalking. The review will also analyse potential changes to the stalking legislation that have been previously suggested, including within the stalking super-complaint, to determine whether they should be taken forward.
The review will consider:
a. Whether the legislation sufficiently defines and addresses stalking behaviour and whether it is possible to clearly delineate between stalking and harassment behaviours, particularly in terms of the drafting of criminal offences.
b. Whether the interaction with harassment legislation makes for a coherent and effective legal framework.
c. The impact of new and emerging technology and whether the current legal framework can deal with stalking behaviours facilitated by technology.
4. Scope
The scope of the review includes the stalking offences in the Protection from Harassment Act 1997 and, due to their intertwined nature the harassment offences in the same Act. Where relevant, the review will also consider the offences of coercive or controlling behaviour and malicious communications to evaluate how they interact with stalking behaviours.
The function of Stalking Protection Orders (SPOs) within the Stalking Protection Act 2019 is out of scope for this review. However, it will be important to consider the implications of any proposed legislative change on SPOs.
5. Outputs
There will be an initial report which seeks to develop the policy position on the harms associated with stalking and distinctions from harassment and post-separation coercive or controlling behaviour.
This will be shared with the independent reviewer (see Governance below) who will consider the findings and conduct further analysis to understand how the current law is working and the extent to which it meets the policy position identified in the initial report. Where appropriate, the independent reviewer will make recommendations for change. Further internal analysis may also be conducted by the independent reviewer where it is deemed appropriate. The independent reviewer will produce a final report setting out the process followed, evidence gathered, legal position and recommendations.
On completion of the review, the findings of the independent reviewer will be considered by the Secretary of State. The Secretary of State will consider the review and its recommendations before determining whether further consultation is needed or publishing the report.
6. Timing
The full review, including any recommendations, must be submitted to the Secretary of State by the end of March 2026.
7. Governance and methodology
Richard Wright KC has been appointed as the reviewer. He is an independent expert appointed by, and accountable to, the Secretary of State for delivery of the Review. Details of the governance which achieves this accountability and the methodology for the review will be agreed between the independent expert and the Secretary of State.