Rape update

Report: 11
Date: 14 September 2006
By: Commissioner

Summary

This report provides members with a summary of the MPS performance on rape investigations in London during the current year, April 2006 to July 2006. It also includes an update on the progress on the MPS Rape Review of 2005 and developments in this area.

A. Recommendation

That the report be noted.

B. Supporting information

Progress on MPS Rape Review

1. Anni Marjoram, GLA Policy Advisor, chaired an initial meeting on the recommendations of the MPS Rape Review and an action plan was agreed. A number of areas were immediately addressed by the introduction of a ‘Case Tracking’ process.

2. The Case Tracking process started from 1 April 2006. All reported rapes are recorded on a spreadsheet and a number of areas are measured. These include the use of The Havens, timeliness of reviews, adherence to Sapphire Standard Operating Procedures (SOPs), through to liaison with the CPS, use of special measures and case conclusion. Due to the large amount of data gained and the length of time taken for cases to progress through the Criminal Justice Process, it will take some time to gather sufficient data for meaningful analysis. This process is designed to identify areas where attrition can be reduced.

3. Another area identified in the rape review is to establish a better understanding of alcohol-related issues and mental health. The Case Tracking process will identify where this is noted in the investigation.

4. In the area of alcohol-related incidents of rape, previous intelligence analysis has shown that a large number of victims are approached outdoors and 60% whilst on their way home. The MPS Sapphire Team works as a key partner in the ‘Safer Travel at Night’ campaign and is actively involved in information and awareness campaigns.

5. The Sapphire Intelligence Unit is currently completing a report on Mental Health issues and rape. It is anticipated that further project work will be undertaken when recommendations have been made.

6. In the area of minimum standards for investigation, an officer has now been selected for the purpose of taking central control of all No Crime/Crime Related Incident (CRI) classifications on reported rapes. On appointment, this officer will ensure that the Central Sapphire Team will confirm all No Crimes.

7. The setting of Non-Sanctioned detection rates has been removed from the policing plan. Sapphire Teams are now measured on sanctioned detection rates. Performance Information Bureau (PIB) now provides separate performance figures for investigation conducted by Borough Sapphire Teams and SCD5 Child Abuse Investigation Team (CAIT). The Project Team is also developing performance measures that reflect victim satisfaction. It is proposed that victims will be asked to comment on the quality of the investigation at the conclusion on each case.

8. In the area of strengthening rape investigation, there have been organisational changes within the MPS. The Central Sapphire Team is part of the Territorial Policing – Violent Crime Directorate, under Commander Violent Crime. This structure gives a clear ACPO lead to Boroughs on violent crime and separates rape from volume crime. The Crime Control Strategy Meetings (CCSM) separate Rape from volume crime, it is placed on the same agenda as Domestic Violence and Hate Crime. At these meetings operational performance and identification of good practice is discussed.

9. The Sapphire Team is developing training for Investigators and Sexual Offence Investigative Techniques (SOIT) trained officers. The Team is working with the Central Police Training and Development Authority (CENTREX) to develop a National Role Profile for SOIT Officers. Following this work, we will develop a similar profile for investigators. This must be established before any centrally approved training programmes can be set up. In addition to this work, the Central Sapphire Team has implemented a series of training sessions for all Sapphire Investigators and SOIT Officers. Two Investigators Seminars and one SOIT Seminar have been held this year. Areas covered in training have included Haven Psychological Services, risk assessment and domestic violence, the Poppy Project, assisting victims with disabilities through the criminal justice (CJ) process, male rape, forensic issues and a personal presentation by a rape victim on the impact of the investigation and the CJ Process.

Summary of performance on rape

10. There were 855 offences classified as rape between April and July 2006. This is a 2.2% decrease in the number of rape offences recorded during the same period for the previous year. The most notable reductions have been Sutton (-42.9%, 6 offences), Southwark (-42.4%, 25 offences) and Hillingdon (-30.4%, 7 offences).

11. Fifteen boroughs have seen an increase in the number of offences reported during this four-month period in comparison with the respective period of 2005. The most significant increases were Wandsworth (+66.7%, 10 offences), Bromley (+46.2%, 6 offences) and Hounslow (43.5%, 10 offences).

12. The corporate sanctioned detection target for rape is 30%. The sanctioned detection rate for this period currently stands at 25.7%. In 2005, the sanctioned detection target rate achieved in the same period was 29.1%.

13. In the period April and July 2006, Domestic Rape accounted for 10.5% of all rape offences (90 out of 855). This percentage was determined based on the ‘relationship’ recorded on crime reports e.g. boyfriend/girlfriend, husband/wife.

14. Overall, there has been a 69.8% increase (53 to 90) in the number of domestic rapes recorded during the first four months of this financial year in comparison to the same four months of 2005. It should be noted that during this period Sapphire Team Leaders and Investigators were provided with training on links with domestic violence and the use of Domestic Violence Risk Assessment Process.

15. Recorded rapes in London could not be compared to other police areas using iQuanta data. iQuanta data is only records data for all sexual offences, it does not separate rape cases. The MPS is one of the few police services in England and Wales to record rape as a priority and have a sanctioned detection rate target set in the policing plan.

MPS response to Office for Criminal Justice Reform (OCJR) consultation ‘Convicting Rapists and Protecting Victims – Justice for Rape Victims’

16. The response from the police service to the consultation paper was managed by DAC John Yates on behalf of the ACPO Rape Working Group. The Sapphire Team provided the MPS response on the paper to the working group and the views are included in the ACPO response to the OCJR. The ACPO response has been circulated to the members separately.

Emerging strategic issues

Rape of persons under the age of 18 years

17. One area of note is the percentage of rapes where the victim is under the age of 18 years. Over the past year, August 2005 to July 2006, 31.2% of reports made to police involved victims under the age of 18 years.

18. The MPS is working with key partners to improve investigation in this area. The Violent Crime Directorate has set up a working group to address intelligence, prevention and enforcement. Sapphire Officers will be providing training to Safer Schools Officers, raising awareness of investigative standards, the value of intelligence and the services provided by The Havens. Sapphire officers are also working with SCD5 Child Abuse Investigation Command to improve investigation standards in reported rape of all under 18 year olds.

19. The Havens at Paddington and Whitechapel have employed a Young Person’s Worker on each site to deal with issues affecting under 18 year olds. The posts were initially funded by a Home Office grant. The Young Person’s Workers provide support to all persons aged 13 to 18 accessing Haven Services. They also hold sessions in schools dealing with issues such as sexual health and attitudes to sexual violence.

20. The Haven’s Strategic Board will be asked to consider adopting the Young Person’s Workers as mainstream Haven work and extending the service to South London.

Her Majesty’s Inspectorate of Constabulary (HMIC)/Her Majesty’s Crown Prosecution Service Inspectorate (HMCPSI)

21. The HMIC and HMCPSI are currently conducting a follow up thematic Inspection based on the 2002 Report ‘The Investigation and Prosecution of Cases Involving Allegations of Rape’.

22. The Inspection Team visited eight sites across seven police areas. The MPS were inspected at two sites, Islington and Westminster Boroughs. The Team also interviewed Violent Crime Command, Sapphire Management Team and visited The Havens. The report is due for publication at the end of October 2006.

23. The previous HMIC/HMCPSI coincided with the MPA ‘Scrutiny of Rape Investigation and Victim Care’ 2002. This scrutiny was a catalyst for the provision of The Havens service across London. It also led to the MPS Standard Operating Procedures (SOP) contained in the ‘Policy for the Investigation of Rape and Serious Sexual Assaults’ of 2005.

24. In September 2006 a review of the existing Standard Operating Procedures (SOPs) will commence. Consideration will be given to the recommendations of the 2005 MPS Rape Review and any forthcoming recommendations from the HMIC/HMCPSI report. The process will rely on consultation and it is aimed to publish new SOPs in the spring of 2007.

Progress of Sapphire

Violent Crime Directorate

25. The Central Sapphire Team and Cold Case Investigation Team now come under the command of the Violent Crime Directorate, which is headed by Commander Steve Allen. The Sapphire Intelligence Unit, led by Detective Superintendent Eddie Thomson, now forms part of the Violent Crime Intelligence Unit, which also includes intelligence analysts specialising in areas such as Domestic Violence and Hate Crime.

26. The Sapphire Team is an essential part of the Violent Crime Directorate. Under the new directorate, staffing levels have been maintained and additional roles of covering the responsibilities of Case Tracking and No Crime Authorisation have been created.

Sapphire Cold Case Investigation Team

27. The Sapphire Cold Case Investigation Team has continued in the pioneering work. The team has worked in partnership with the SCD4 Directorate of Forensic Services, The Crown Prosecution Service (CPS) and the Forensic Science Service (FSS). They apply the latest scientific techniques to cases that have previously been regarded as ‘undetectable’. Although this process is regarded as being ‘forensics driven’, the commitment of investigative team to provide a ‘victim focussed’ approach is the key to their success.

28. The Cold Case Investigation Team has achieved its first conviction based on the review of fingerprint evidence. The team also work closely with the CPS to explore the use of ‘Bad Character’ evidence in appropriate cases. This will often involve detailed re-investigation of ‘similar’ crimes, to support victim’s testimony. The application of ‘Bad Character’ evidence has resulted in the defendant pleading guilty, saving victims from giving evidence in Court.

List of abbreviations

CCSM

Crime and Control Strategy Meeting

CENTREX

Central Police Training and Development Authority

CRIS

Crime Reporting Information System

MPA

Metropolitan Police Authority

MPS

Metropolitan Police Service

SCD5 - CAIT

Serious Crime Directorate Child Abuse Investigation Teams

SOIT

Sexual Offence Investigative Techniques

SOPs

Standard Operating Procedures

C. Race and equality impact

1. The MPS Rape Review of 2005 demonstrates that the crime of rape affects all communities in London. The MPS provides a ‘victim focussed’ approach to rape investigation and strives to meet the individual needs of all. This report mentions the work undertaken to provide specific services for young victims of crime. In addition to this the Haven, Whitechapel, employ an Asian Development Worker, who spends time in supporting community projects and promoting equal access to The Haven services.

2. This report also references the steps being taken, through training, to ensure that MPS investigators have a greater understanding of the needs of diverse communities.

D. Financial implications

1. The Haven Strategic Board has agreed the 2006/07 budget for the three Haven's at £4M. The costs are shared on a 50/50 basis with the NHS; the MPS share being contained within the TP business group budget. The NHS element of the 50/50 funding is being managed through the Haven Finance Board. The Haven Finance Board is chaired by the Treasurer to the MPA.

2. Forensic Analysis on Cold Case Rape Investigation has previously been supported by Home Office funding, through ‘Operation Advance’. The Home Office will now only fund new forensic work on a ‘case-by-case’ basis. Additional ‘Cold Case’ work will require new funding. The Violent Crime Directorate is currently funding this work. SCD4 Forensic Advisors are being used to ensure that all new submissions for forensic work are quality assured.

3. As a result of the 2005 Rape Review, two new Detective Sergeant’s Posts of Case Tracker and No Crime officer have been created. These posts are funded from within the existing Violent Crime Directorate budget.

E. Background papers

None

F. Contact details

Report author: Mark Yexley, Detective Chief Inspector, Sapphire, Violent Crime Directorate, MPS

For more information contact:

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

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