Multi perpetrator rape and youth violence

Report: 7
Date: 5 November 2009
By: Assistant Commissioner Specialist Crime Directorate on behalf of the Commissioner

Summary

This report is in response to some specific questions from the MPA in relation to the issue of offences of rape committed by multiple offenders. It outlines current recorded crime statistics and our operational and partnership responses to supporting victims and encouraging reporting.

A. Recommendation

That members note the report.

B. Supporting information

Background

1. The report is submitted in response to a long term interest in this topic by the MPA. The common parlance for this offence is ‘gang’ rape. This is an emotive term - but it is used widely in the public domain. There have been instances in the past where the term ‘gang’ has come to mean different things - either groups known to each other, criminal networks or peer groups. Care has been taken with the definition of the term ‘gang’ in this paper. It is however accepted that there is a public perception/understanding of what this term means. Recent academic studies have suggested that the term ‘Multiple Perpetrator Rape’ should be used as the overarching term for offences involving two or more perpetrators.

2. When examining rapes committed by multiple perpetrators, it should be noted that the number of offenders involved and the methods used by assailants, vary. Analysis on such offending is primarily based on victim testimony and any other supporting evidence, so links to ‘gangs’ cannot necessarily be established. These offences are complex in nature, ranging from allegations of consensual sex between the victims and a known party followed by non-consensual assaults committed by associates, to stranger attacks involving large groups.

Recorded multiple perpetrator rapes with three or more suspects

3. Data of recorded crimes has been gathered from April 2008 to March 2009. It has been compared to data from April 2003 to March 2004. It should be noted that comparisons would be limited, as the definition of the offence of rape changed on 1 May 2004 with the enactment of Sexual Offences Act 2003. Prior to this date the offence of rape would only relate to vaginal penetration. Rape now includes oral and anal penetration and as such figures are not directly comparable.

4. Multi perpetrator rapes are categorised into offences involving 3,4,5,6 7 or 8 suspects. The overall number of these offences (with all the multiple categories) in 2003/4 was 71 and in 2008/9 it rose to 93. The biggest single group (by number of suspects) is those involving 3. This particular group has reduced from 43 offences in 2003/4 to 36 offences in 2008/9. However - those involving 4 suspects have risen from 12 to 26 offences and those involving 5 or more from 6 to 13.

Ethnicity and age of suspects

5. Based on accounts supplied by victims and witnesses, the breakdown for offences with three or more suspects since 2003/4 to 2008/9, is as follows: groups of all white suspects have dropped from 11% (eight offences) to 8% (seven offences). Where there are groups of mixed ethnicity, this has risen from 14% (10 offences) to 24% (22 offences). Groups of all black suspects have dropped from 44% (31 offences) to 32% (30 offences). Groups of all white suspects have dropped from 11% (eight offences) to 8% (seven offences). There is little variance in the age of the suspects described. In 2003/4 38% were aged 19 and under, compared to 42% for 2008/9. The next largest age group was between 20 and 29 years, with 32% in 2003/4 and 30% in 2008/9. The age of suspects was unknown in 20% of cases.

Detections for multiple perpetrator rapes

6. In 2003/4, 25% of offences with three or more suspects were detected, that figure rose to 28% in 2008/9. This compares to overall MPS sanction detection rates for rape of 25% and 33.6% respectively.

Gender of victims

7. Rape and serious sexual offences disproportionately affect women. In 2008/9 97% of offences with three of more suspects were committed against women, in 2003/4 this was 93%.

Ethnicity of victims

8. The data on ethnicity of victims has been recorded very accurately from 1998/9. The percentage of white victims has dropped from 69% in 1998/9 to 53% in 2003/4 and for the last reporting year stands at 50%. The percentage of black victims has doubled from 17% in 1998/99 to 34% in 2008/9.

9. The data provided demonstrates a level of disproportionality in relation to suspects and victims, since the 2001 census data shows 11% of London’s population as being black. This does not however provide the most accurate picture, as there is no record of ethnicity in the particular age groups affected by these crimes, being predominately young people where the black % of the population is higher.

Age of victims

10. Young people represent the largest group of victims for this type of offending. The average age of victims has fallen; 48% of victims were 19 years or younger in 1998/99, to 64% in that age group in 2008/9. Further analysis shows that 36% of victims for 2008/9 were aged 15 years or younger. The next largest age group for victims is between 20 and 29 years and the percentage of offences against persons in this age group has dropped from 25% to 21%.

11. Previous MPS reviews and Haven data would usually estimate the percentage of all rape offences, including lone and duo offenders against persons aged under 18 years, to be around 30% of reported cases. Haven data from the three MPS Sexual Assault Referral Centres (SARCs) is recorded independently of the MPS and includes data from rape survivors who have not reported their crimes to police.

Geographical factors

12. There is a correlation between the volume of multiple perpetrator offences and the Boroughs that have a high volume of all rape offences. London’s five highest volume boroughs for overall rape offences (Croydon, Lambeth, Newham, Southwark and Westminster) feature in the top six boroughs for offences recorded with three or more offenders.

13. Data for offences involving three or more suspects has been compared to the Index of Multiple Deprivation (IMD). When examining offences recorded in 2008/9 with three or more offenders, four of the Boroughs with the highest number of recorded multiple perpetrator offences also feature in London’s top ten areas of highest social deprivation. These are Lambeth (IMD rank eight), Newham (IMD rank four), Southwark (IMD rank six) and Westminster (IMD rank nine). Of the top three IMD rankings, the Borough of Hackney also features in the top ten Boroughs for multiple perpetrator offences with three or more suspects in 2008/9.

Potential for under reporting

14. In the area of serious sexual violence, there is an appreciably high level of under-reporting. In offences involving multiple perpetrators, the pressures for not reporting to police are believed to be even higher. This could be through fear of reprisals from a wider network of suspects, or through social links to the victim if a known party initiated the offence and unknown offenders then took part. Because a significant proportion of these offences are committed against young people, there is further potential for under-reporting due to the victims’ age, additional vulnerabilities and the powerful effect of peer group pressures.

15. In order to gain a better understanding of these issues, further initiatives are required across agencies to gain the confidence of young victims and to better support them. Developing ways of gathering intelligence from the wider range of groups will support this.

Strategy and operational response

16. The MPS recognises multiple perpetrator sex offending linked to youth violence, as one of the most serious crime types committed in London. The complex nature of the offending, the young age of victims and the possible social links between victims and suspects, are all likely to lead to high levels of under reporting. As with the investigation of all serious sexual offences, it is a priority of the service to provide the highest levels of victim care combined with consistently high professional standards of investigation. Recent successful investigations in Hackney and Haringey, attracting a high level of media attention, have evidenced this response and are detailed in paragraph 20 below.

17. Dedicated specially trained officers and detectives within SCD2 Sapphire Teams will investigate any serious sexual offence in line with the recently revised Standard Operating Procedures (SOP) for the investigation of Rape and Serious Sexual Offences. The responsibility for these investigations transferred to the Specialist Crime Directorate (SCD) SCD2 Sapphire on 23 September 2009.

MPS Youth Strategy

18. Through the implementation of Every Child Matters and the MPS Youth Strategy, the MPS has developed excellent links with partners and practitioners, sharing information and best practice with them. The MPS is keen to explore this serious issue and has commissioned a number of reports concerning female gang membership. In addition, a multi agency ‘Girls and Serious Violence Conference’ is arranged for the 15 October, jointly funded between MPS and Home Office. Workshops include ‘How do young women experience sexual violence?’ This is a preliminary exploration of what issues there are in this area that require further action and will focus particularly on identifying and sharing good practice in London.

19. The MPS strategy for tackling Youth Violence across London is delivered by Operation Blunt 2. The operation ensures each Borough holds responsibility for strategies in tackling gang violence, but allows for a centrally based task force to be deployed where intelligence directs serious issues in a particular geographical area. The key focus remains on preventing serious violence, disrupting gangs and spearheading the positive knife crime policy. Links to serious sexual offending can be addressed through operational and intelligence tasking processes led at ACPO level.

Investigation of offences and victim focus

20. Recent media attention in 2009 focussed on two successful investigations into offences committed by multiple perpetrators. Sapphire Teams from the Boroughs of Hackney and Haringey investigated these offences where the victims received the highest level of service from Haven staff and investigation tactics demonstrated the benefits of intelligence gathering and communications data, to establish links between assailants, venues and victims.

21. The investigation into multiple perpetrator rapes follows the same strands of investigation as all other allegations of rape following MPS Policy and Standard operating procedures for rape investigation, but where the service differs, is in the welfare support for the victim. In addition to the service provided to persons of all ages, the Havens Sexual Assault Referral Centres offers a unique service for young people between the ages of 13 and 18 years, through the employment of Young Persons Workers.

The Havens

22. Work with young people is a key part of the Haven approach. Each Haven has a worker dedicated to advocacy, support and crisis intervention for all 13 to 18 year olds attending The Havens. These posts have secured Home Office funding to perform the role of Independent Sexual Violence Advisors (ISVAs), supporting victims through medical care, follow up and the criminal justice process. Work with individuals will involve identifying healthy and unhealthy behaviours. Issues such as safety, housing, asylum, schooling, bullying, self harm and mental health may be discussed. Any identified needs are addressed. The work involves established links and referrals to statutory and non-statutory partners including: Social Services, Child and Adolescent Mental Health Service (CAMHS), Paediatricians, Child Exploitation Services, NSPCC and Barnados.

23. The young persons workers at the Whitechapel and Paddington Havens have also developed a schools based violence prevention programme, now used in secondary schools and youth groups across London. This programme works to specifically dispel common myths around sexual violence and the law. So far, this has been delivered to over 6000 young people across the capital. This programme is being delivered across London, but requires the support of schools to engage in the project.

24. The programme seeks not only to alert teenagers to Haven services, but also to raise awareness and understanding of the law and provides the chance to dispel rape myths. The Havens also acknowledge that teenagers are our next generation of jurors.

Havens awareness campaigns

25. In order to support this programme in the wider community, The Havens have secured Home Office funding for raising awareness among teenagers. New posters have been published aimed at a youth market and to promote the free Haven text service. Texting the word ‘Havens’ to 64118 will result in a reply with contact details on all three sites. ‘Rape Myth’ cards, distributed through schools engaged with the Haven Young Persons workers, have been developed to invoke discussion and challenge attitudes.

26. The Havens have also worked in partnership with the Greater London Authority to increase awareness of the service. This work has involved use of public transport, youth magazines, Black and Ethnic Minority hair salons, and internet and social networking sites. Targeted campaigns in 2008 resulted in ‘Self Referrals’ doubling during the marketing period. A new campaign is planned for the winter of 2009.

Public Protection

27. Through the Every Child Matters programme, new processes have been set up on every London Borough to focus on the well being of children and young people. Officers are required to report persons coming to notice, whether they are a victim or a witness of crime, a missing person, or involved in criminality. The local Public Protection Desk will review all young people coming to police notice and refer them on to the appropriate statutory agency. This ensures that early links are made with Social Services to ensure that the needs of children and vulnerable young people are highlighted at an early stage. Any high risk case will be discussed at a daily meeting where appropriate actions are set.

Intelligence

28. The issue of multiple perpetrator offending is a key element in MPS Intelligence Bureau (MIB) Sexual Offences Desk processes. Specific work has been undertaken to monitor levels of offending and focus on any emerging trends. The MPS are now increasing the level of resources focussing on providing strategic and tactical intelligence on rape and serious sexual offences with the creation of the new SCD2 Intelligence Unit which will provide tactical intelligence support for the investigation of rape and serious sexual offences. The Intelligence Unit will be fully operational from 1 April 2010.

29. The SCD2 Intelligence Unit will also contribute to the MPS Control Strategy for Serious Sexual Offences. SCD2 priorities for prevention, intelligence and enforcement will be set for 2010 and key partners will be consulted in setting these priorities.

New SCD2 Sapphire Command

30. The new SCD2 Sapphire Command is developing a community engagement strategy, part of which is a new Reference Group being established with the aim of listening to the fears and concerns of hard to reach groups in order to develop our services and increase public confidence. Experts in group offending and those with access to, or representing young people, are currently involved in the formation of the group and agreeing its priorities for the forthcoming year. Further key community contacts will be developed through each new Sapphire Team, which will have the responsibility for developing partnership links at a Borough and Crime and Disorder Reduction Partnership (CDRP) level. This will involve working with Education, Health, Social Services and local Safeguarding Boards.

The future

31. The MPS has been and is currently working with leading academics at the University of Surrey in research on multiple perpetrator offending. This involves detailed analysis of victim and suspect responses. It is intended that this research will support enhanced development of services for victims of serious sexual violence, training for police staff and wider education for young people, particularly at risk of becoming victims and perpetrators.

32. The MPS is building on recent successful prosecutions to provide a consistently high standard of investigations and care for victims of serious sexual violence in order to bring more perpetrators to justice. Building on lessons learned, we continue to engage with communities to build confidence and to encourage reporting.  

C. Race and equality impact

1. The MPS is conscious of any adverse impact or disproportionality that may occur as a result of the delivery of its services. In doing so, the MPS fully embraces the need to engage and consult with, communities and their informed representatives.

2. The Cross Government Action Plan on Sexual Violence and Abuse of April 2007, recognised the gender inequality experienced through the commission of such crimes i.e. most perpetrators are men and most victims are women.

3. This report outlines issues of disproportionality of offences involving black suspects and victims and young victims. The MPS recognises that we must gain a better understanding of compound discrimination issues affecting these groups and how we shape our services to meet such needs. The promotion of the Haven services and the SCD2 Community Engagement Strategy will support this aim as does the MPS Youth Strategy.

4. The MPS works side-by-side with the Haven Strategic Board on how best to improve the MPS service delivery across the equalities strands, particularly those where victims are disproportionately represented.

D. Financial implications

There are no additional financial implications linked to this report.

E. Legal implications

This report is for information only, therefore there are no direct legal implications arising.

F. Background papers

• None

G. Contact details

Report author: Detective Chief Inspector Mark Yexley

For information contact:

MPA general: 020 7202 0202
Media enquiries: 020 7202 0217/18

Abbreviations and Acronyms

CAMHS

Child and Adolescent Mental Health Service

CDRP

Crime and Disorder Reduction Partnership

ISVA

Independent Sexual Violence Advisors

IMD

Index of Multiple Deprivation

NDNAD

National DNA Database

SARCS

Sexual Assault Referral Centres

SCD

Specialist Crime Directorate

SOP

Standard Operating Procedures

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