If someone reports to police that he or she was raped in Ramsey County, chances are slim that criminal charges will be filed in the case.
A study recently released by the Ramsey County attorney’s office found that of some 650 sexual assaults reported to a handful of east metro law enforcement agencies between 2013 and 2016, just 11 percent resulted in charges against suspects.
Overwhelming caseloads for investigators, insufficient training on best practices for law enforcement officers and prosecutors, as well as a hesitancy to tackle complicated and time-intensive cases are all part of the problem, the study found.
The findings are not unique to Ramsey County.
In fact, a spokesman for the Minnesota Coalition Against Sexual Assault said the statistics concerning sexual assault cases show better outcomes for survivors within its borders than national averages.

“To see a big prosecutor’s office in our state Capitol open the doors on their work and say ‘Look at what’s working and what’s not’ is really great,” said Caroline Palmer, manager of public and legal affairs for MNCASA, of the study. “I think it’s a really important first step that will hopefully serve as a model for other systems in the state.”
The study does point to problems with the existing criminal justice system’s response to sexual assaults though. It highlights ways prosecutors, law enforcement agencies and advocates can better serve survivors, according to those involved in the analysis.
The results prompted Ramsey County officials to commit to hiring two new investigative sergeants to help St. Paul police beef up investigations into sex crimes, as well as two more advocates within the county’s SOS Sexual Violence Services program to help survivors who want to press charges navigate what can sometimes feel like a legal minefield.
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STUDY LAUNCHED IN 2016
The Ramsey County attorney’s office kicked off the study in earnest in the summer of 2016 after launching its Start By Believing campaign that spring.
The campaign was intended to shift the response to reports of sex crimes and raise awareness about ways the criminal justice system can do better, according to Ramsey County Attorney John Choi.

To get a better understanding of the scope and nuance of the issue, Choi asked Assistant Ramsey County Attorney Kaarin Long to analyze reports of sexual assaults made to six law enforcement agencies between 2013 and 2016, including the St. Paul, Roseville, Maplewood and New Brighton police departments, as well as the Ramsey County sheriff’s office and Metro Transit police.
Only about 20 percent of St. Paul’s massive caseload were included in the analysis, which examined cases involving survivors 13 and older. It didn’t include sexual assaults within families.
The study also was unable to dig into cases unreported to law enforcement because that data was unavailable. National studies indicate about 80 percent of sexual assaults are never reported.
“I think in many ways (the study) confirms what we suspected or at least what national data suggests,” Choi said. “Many of these cases don’t end up proceeding for a number of reasons.
“In order for us to change any of this or to do a better job … the amount of resources that we put into these investigations (has to increase) because what we see is that the workload and caseloads for these investigations is extraordinary,” Choi continued.
BY THE NUMBERS
The study categorized some 180 data points from each sexual assault case examined during the three-year period.
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That included location of the alleged crime, age and race of the victim and suspect, whether alcohol was involved, how many witnesses were interviewed, whether cases were referred to prosecutors for possible charges, the length of time it took to reach charging decisions, and many other factors.
Of the data collected, some statistics and findings stood out, including:
- Of 646 cases reviewed, only about 30 percent were referred by investigators to the Ramsey County Attorney’s office for possible charges.
- Of cases submitted for review, 37 percent resulted in charges. By comparison, the average charging rate for all felony cases within Ramsey County is about 60 percent.
- Only 11 percent of total sexual assaults reported during the study-period resulted in charges.
- The total conviction rate for cases charged was 70 percent.
- About 26 percent of survivors stopped an investigation midstream.
- The average lag time between an initial sexual assault report and follow-up with law enforcement was 20 days. Protocol recommends no more than 24 hours.
- In 88 percent of cases, no search warrant was executed to gather more information about a case.
- Of about 15 law enforcement investigators surveyed, about half had only one training in sexual assault before starting their positions. Five had no training.
- Of the cases submitted for prosecutor review, it took the Ramsey County attorney’s office an average of 42 days to reach a charging decision.
UNDERSTANDING THE PROBLEM
A chief challenge to adequately responding to sexual assault cases is the overwhelming caseloads facing investigators, according to the study.
Axtell, the St. Paul police chief, said his department had to divide about 1,800 reports of sex crimes among six investigators last year.
One interviewed in the study compared keeping up with the demand to “drinking from a fire-hose.”
With so many cases to track, it makes it difficult to conduct in-person interviews with survivors or talk to other potential witnesses to the assault.
It also allows less time to execute search warrants and sift through social media accounts that might prove relevant to the case, Choi said.
Other blocks include the limited training some investigators and prosecutors have on handling sexual assault cases, the report found. Well-meaning but insensitive questions or lags in response times to survivors struggling with trauma can lead many to drop out of the process, the study said.
Bringing advocates into the process earlier can help, according to Anne Barry, director of Ramsey County Public Health.
“That first interaction is so important,” Barry said. “(Advocates) might (encourage an officer) to ask a question a (different way) or to start by (telling a survivor), ‘Yes, we believe you.’ … So the person who experienced this doesn’t feel like they have to prove something immediately.”
Another problem spot identified was a lack of consistent data collection among all law enforcement agencies. Some, for example, don’t track the race of survivors and suspects.
There is also currently no easy way for agencies to find out if reports have been made about suspects in another jurisdiction.
HOW TO GET BETTER
To improve, county officials are already committed to making changes, including:
- Adding two investigative sergeants to the tune of about $300,000 to the St. Paul police department’s team of six that currently investigate instances of sexual violence. The funding from the Ramsey County Attorney’s Office’s Criminal Forfeiture Account and will cover the positions for two years. The hope is St. Paul will fund it in later years.
- Training all sex crime investigators with St. Paul police in best practices that allow them to better understand victims and perpetrators of sex crime. While some have already received such training, those that haven’t will undertake it in following year.
- Adding two advocates to the team of five that now serve survivors via the Ramsey County SOS Sexual Violence Services program. The $150,000 investment will be paid for by the county.
- Form an East Metro Sexual Assault task force led by St. Paul Police Chief Axtell that will allow agencies to work collaboratively to address sexual assault. Axtell invited 29 agencies across the area to participate. The unit’s first meeting is May 9.
County officials also hope to create a shift around the hesitation some in the criminal justice system feel to take on sexual assault cases.
Instead of worrying about whether a jury will support a case, prosecutors need to focus on determining if there is probable cause to support that a crime took place, Choi said.
He compared it to when he first started his work around changing the approach to sex-trafficking.
“When I first started talking about that issue back in 2011, I was reminded numerous times about how hard these case were to prove,” Choi said, pointing out how much has changed since then.
Ramsey County Board Chair Jim McDonough, a survivor of sexual assault who has been integral to the Start By Believing Campaign, echoed that..
“The (whole) ‘He said, She said, this is too hard to prove’ can’t be where we start with these cases, and (too often) it is right now,” McDonough said.
County officials hope the study will continue to raise awareness about sexual violence and chip away at misconceptions, including the fallacy that more people are likely to falsely report a sexual assault than other crimes
Those involved said they are hopeful that the in-depth analysis coupled with well-informed strategies, collaboration, and a commitment of resources will create lasting change.
“The most promising thing to me … is that I see all (these) partners at the table that aren’t … defending what they do or pretending that everything is good,” Axtell said.
FOR HELP
Survivors of sexual assault looking to connect with an advocate or other resources can do so at http://mncasa.org/find-help/