Like I said, the numbers are impressive, but they don't really provide much information. Look at the way that sentence is structured: those "identified", were they previously unknown? I think the 21 convictions is the only real meaningful part of that story - because the meaning is unambiguous. While it is a shame that a rapist can run around free while evidence is in hand, (21 / 11341) x 100 = 0.19%. Not nearly as impressive as "11,341 examples of why cops don't care!".