The Charter was not passed until a clause applying the charter to the bishops themselves was removed. They feebly argued that they had no authority over each other as they did over the priests in their dioceses, according to canon law.
That is how the scandals have persisted, even the notorious problems with Theodore McCarrick.
What was wrong with the 2002 charter? The bishops could have gone one step farther and pledged themselves, each of them, to apply the standards of the charter to themselves. But, they didn’t, even as a symbolic gesture.
On the other hand, the Pope has recently said that the bishops and priests have to solve the problems of sexual misconduct and sexual abuse themselves, with zero tolerance, and with transparency. So, what could that mean? Well, it should mean that the bishops should not restrict themselves to any limitations of canon law.
The bishops are appointed by the Pope, but they are accountable to God. They should act that way.