Measures against domestic violence are necessary
Domestic violence is on the rise in the Federal Republic of Germany.1 In 2023, 256,276 people were victims of domestic violence.2 Domestic violence3 (167,865, 65.5 percent) has a particularly strong impact on this crime situation. Almost 80 percent of victims are female. The most common types of offences include intentional simple assault (59.1 per cent) and threats, stalking and coercion (24.6 per cent).4 Last year, a total of 155 women and 24 men were victims of intimate partner violence with fatal consequences.5 These cases are often preceded by intentional violations of court protection orders under the Protection Against Violence Act.
The level of protection must be increased for those who are at ongoing risk. If an act of violence has been committed or is to be expected due to specific circumstances, the ordering of electronic residence monitoring (EAÜ), known as an ankle bracelet, ensures better monitoring and enforcement of contact and proximity bans.
Potential acts of violence can be prevented through preventive dialogue and early intervention by the police. If the restraining order is violated, this can be reliably traced with the help of nationwide GPS tracking.
Previous options do not guarantee sufficient security
The Protection Against Violence Act offers victims the opportunity to apply for a court protection order. In order to prevent further injuries or threats, the court orders violent persons to refrain from contact and proximity, depending on the level of danger and threat, in order to prevent further injuries.6 In the event of violations, these orders can be enforced by bailiffs with the assistance of the police. Violations of protection orders are also punishable by law and can be punished with a fine or imprisonment of up to two years.7
The number of violations shows that the options available so far aren't working well enough: In 2017, crime statistics recorded 5,932 such cases, and in 2022 there were 6,587 – an increase of 11 per cent.8 By making it easier to register and document violations, the use of electronic residence monitoring can therefore also have a preventive effect. For this reason, the demand for the use of this measure to enforce protection orders more effectively was already the subject of the 94th Conference of Ministers of Justice and various initiatives before the German Bundestag.9
The use of electronic monitoring is also in line with the objectives of EU and international law, as it complies with the Council of Europe Convention on Preventing and Combating Violence against Women and Domestic Violence (the so-called Istanbul Convention) and the explanatory memorandum to Directive (EU) 2024/1385 of the European Parliament and of the Council on combating violence against women and domestic violence.10
Monitor restraining orders and contact bans more efficiently using electronic means
While wearing an electronic ankle bracelet is ordered by a court, wearing a GPS-based warning system (e.g. wristband) is voluntary on the part of the person to be protected. If someone approaches within the restricted radius, the system sounds an alarm and the person to be protected can be contacted. If the victim does not agree to wear their own bracelet, the restricted radius can be defined in accordance with the court protection orders prohibiting access to certain locations where the person to be protected regularly spends time. Ankle bracelets can be used in particular for crimes that are considered by the legislature to be indicative of particular dangerousness when committed repeatedly, i.e. especially violent and sexual offences.
A nationwide regulation through the extension of court measures for protection against violence and stalking under the Protection Against Violence Act (GewaltSchG) ensures more effective monitoring and enforcement of protection orders under Section 1 GewaltSchG. Anchoring the possibility of electronically monitoring restraining orders and contact bans in the Protection Against Violence Act allows for a higher level of protection across state borders and can supplement existing state police regulations.
In addition, in cases of criminal convictions for violations of court protection orders, supplementing the electronic monitoring of offenders as a possible instruction for the period after release from prison can counteract further endangerment of the victim. Under current law, the use of electronic ankle tags for residence monitoring is permissible under the Criminal Code if a convicted offender is subject to so-called supervisory control, in accordance with Section 68b of the Criminal Code.11 In this context, the Federal Constitutional Court has already ruled in a decision from 2020 that the use of electronic monitoring of whereabouts does not constitute an encroachment on the core area of private life.12 At the same time, electronic monitoring of whereabouts is subject to considerable restrictions and is regulated in a manner that takes constitutional requirements into account.13
Use the joint electronic monitoring centre
Electronic monitoring devices regularly send signals to the Joint Electronic Monitoring Centre of the Federal States (GÜL). Based on the state treaty between Hesse, Bavaria, Baden-Württemberg and North Rhine-Westphalia in 2012 – which all other federal states have since joined – this is intended to ensure professional monitoring of the data. The task of the GÜL is to record event reports, evaluate them and, with a view to potential hazard prevention, immediately defuse situations through conversation or initiate further measures. This also includes direct telephone contact with the wearer of the ankle bracelet in order to de-escalate the situation on the one hand and to make it clear that the police are monitoring the situation on the other. This filtering function can prevent unnecessary police operations.14 At the same time, it saves time, as the victim does not have to contact the police themselves. Electronic monitoring can thus serve as a special preventive measure to minimise danger more efficiently.
Provide sufficient powers and resources
Electronic monitoring of residence can only be successful if sufficient resources are made available and the appropriate powers are in place. With a quantitative increase in the number of ankle tags worn, the human and material resources of the GÜL must be expanded. Employees must be trained in legal issues and mediation skills. Advanced language skills are equally important for the responsible personnel so that they can communicate with individuals whose native language is not German. In addition, the GÜL must be available around the clock, seven days a week, so that reports can be processed at any time.
If the GÜL's risk analysis concludes that there is an increased risk potential, the responsible police operations centre in the respective federal state is contacted immediately. Once a violation of the supervision order has been determined to be imminent or complete, the police forces locate the person in question and initiate further measures.
When passing on information, it is essential that the legal powers of transmission do not end with the state police forces, but are extended to the federal police. If the person under surveillance flees and is found in trains or airports, this would fall within the jurisdiction of the federal police, which is why smooth cooperation between the GÜL and the federal police is necessary.
Spanish model for preventive protective measures
The fact that electronic monitoring is a particularly effective tool against domestic violence has also been demonstrated in Spain since the introduction of the Domestic Violence Act in 2009. There, electronic tagging can be ordered by the courts to support restraining orders and contact bans.
With the introduction of this model in Spain in 2009, the number of women murdered fell significantly. In the first ten years of the programme, no woman in the programme was killed.15 In addition, around 95 per cent of those protected stated that the device had improved their sense of security.16 From a victim protection perspective, this means that not only can a reduction in risk be assumed, but also an improvement in the sense of security.
Both France and Switzerland have followed the Spanish model and introduced their own laws based on a similar concept.
Strengthen preventive protective measures
Electronic monitoring using ankle tags cannot guarantee complete protection against domestic violence. This is further illustrated by violent crimes and murders against women – including in Spain. Orders for electronic monitoring using electronic ankle bracelets have a preventive effect, lead to more effective monitoring and enforcement of restraining orders and contact bans, and increase the subjective sense of security of those requiring protection. This can be a useful addition to existing structures for protection against violence.
In April 2025, the demand for uniform federal regulations was included in the coalition agreement.17 In view of the continuing urgent need for action in the area of protection against violence, rapid implementation is required, taking into account the need for human and material resources, in order to make significant improvements in the area of protection against violence.
1 Bundeskriminalamt (2024), Häusliche Gewalt im Jahr 2023 um 6,5 Prozent gestiegen. https://www.bka.de/DE/Presse/Listenseite_Pressemitteilungen/2024/Presse2024/240607_PM_BLB_Haeusliche_Gewalt.html [last access: 11.04.2025].
2 Bundeskriminalamt (2024), Häusliche Gewalt. Bundeslagebild 2023. https://www.bka.de/SharedDocs/Downloads/DE/Publikationen/JahresberichteUndLagebilder/HaeuslicheGewalt/HaeuslicheGewalt2023.html?nn=219004 [last access: 11.04.2025].
3 Domestic violence refers to criminal offences listed in a fixed catalogue, in which the relationship between the victim and the suspect is recorded in the PKS as a partnership. These include spouses, registered civil partnerships, partners in non-marital cohabitation and former partners.
4 Bundeskriminalamt (2024), Häusliche Gewalt. Bundeslagebild 2023. https://www.bka.de/SharedDocs/Downloads/DE/Publikationen/JahresberichteUndLagebilder/HaeuslicheGewalt/HaeuslicheGewalt2023.html?nn=219004 [last access: 11.04.2025].
5 Bundeskriminalamt (2024), Häusliche Gewalt. Bundeslagebild 2023. https://www.bka.de/SharedDocs/Downloads/DE/Publikationen/JahresberichteUndLagebilder/HaeuslicheGewalt/HaeuslicheGewalt2023.html?nn=219004 [last access: 11.04.2025].
6 Bundesministerium der Justiz, Bundesministerium für Familie, Senioren, Frauen und Jugend (2024) Mehr Schutz bei häuslicher Gewalt – Information zum Gewaltschutzgesetz. https://www.bmfsfj.de/resource/blob/94308/a780d466bb9e609f5788caa8f431ebfd/mehr-schutz-bei-haeuslicher-gewalt-data.pdf [last access: 11.04.2025].
7 Bundesministerium der Justiz, Bundesministerium für Familie, Senioren, Frauen und Jugend (2024) Mehr Schutz bei häuslicher Gewalt – Information zum Gewaltschutzgesetz. https://www.bmfsfj.de/resource/blob/94308/a780d466bb9e609f5788caa8f431ebfd/mehr-schutz-bei-haeuslicher-gewalt-data.pdf [last access: 11.04.2025].
8 Klemp, Christoph / Krogmann, Karsten / Meyer, Marius (o.J.), Wie der Staat Frauen besser vor Gewalt schützen könnte. https://forum-opferhilfe.de/gewalt-gegen-frauen-fussfessel-ueberwachung-deutschland-spanien/ [last access: 11.04.2025].
9 Deutscher Bundestag, Drucksache 20/12085, Gesetzentwurf der Fraktion der CDU/CSU Entwurf eines Gesetzes zur Änderung des Strafgesetzbuches und weiterer Gesetze – Verbesserung des Opferschutzes, insbesondere für Frauen und verletzliche Personen; Deutscher Bundestag, Drucksache 20/13734, Antrag der Fraktion der CDU/CSU Gewalt gegen Frauen wirksam bekämpfen – Schutz, Hilfe und Unterstützungsangebote ausbauen.
10 Bundesministerium der Justiz (2025), Formulierungshilfe für die Koalitionsfraktionen für einen aus der Mitte des Deutschen Bundestages einzubringenden Gesetzentwurf. https://www.bmj.de/SharedDocs/Downloads/DE/Gesetzgebung/FormH/FH_GewSchG.pdf?__blob=publicationFile&v=1 [last access: 11.04.2025].
11 Strafgesetzbuch (StGB) 63. Auflage (2024) Beck im dtv.
12 Bundesverfassungsgericht, Beschluss des Zweiten Senats vom 01. Dezember 2020 – 2 BvR 916/11, 2 BvR 636/12 – Bundesverfassungsgericht – Entscheidungen – Erfolglose Verfassungsbeschwerde zur elektronischen Aufenthaltsüberwachung („elektronische Fußfessel“) [last access: 11.04.2025]
13 Kinzig, Jörg (2021), Karlsruhe verpflichtet den Gesetzgeber zur Evaluierung. www.lto.de/recht/hintergruende/h/bverfg-2bvr91611-elektronische-fussfessel-ueberwachung-sexualstraftaeter-fuehrungsaufsicht-grundrechte-verfassungsbeschwerden [last access: 11.04.2025].
14 IT-Stelle der hessischen Justiz (o.J.), Gemeinsame elektronische Überwachungsstelle der
Länder (GÜL). https://it-stelle-justiz.hessen.de/gemeinsame-elektronische-ueberwachungsstelle-der-laender-guel [last access: 11.04.2025].
15 Klemp, Christoph / Krogmann, Karsten / Meyer, Marius (o.J.), Wie der Staat Frauen besser vor Gewalt schützen könnte. https://forum-opferhilfe.de/gewalt-gegen-frauen-fussfessel-ueberwachung-deutschland-spanien/ [last access: 11.04.2025].
16 Klemp, Christoph / Krogmann, Karsten / Meyer, Marius (o.J.), Wie der Staat Frauen besser vor Gewalt schützen könnte. https://forum-opferhilfe.de/gewalt-gegen-frauen-fussfessel-ueberwachung-deutschland-spanien/ [last access: 11.04.2025].
17 CDU / CSU / SPD, Verantwortung für Deutschland, Koalitionsvertrag zwischen CDU, CSU und SPD, 21. Legislaturperiode. https://www.koalitionsvertrag2025.de/ [last access: 11.04.2025].
