Rape update

Report: 5
Date: 11 October 2007
By: AC Territorial Policing on behalf of the Commissioner

Summary

This report provides members with a summary of the MPS performance on rape investigations in London during the period of April 2007 to August 2007.

The report details the progress of work within The Havens.

Information is provided in relation to the MPS Rape Review of 2005 and work with the London Criminal Justice Board and developments in this area.

A. Recommendation

That the report be noted

B. Supporting information

1. In 2007 the Metropolitan Police Service (MPS) has continued to demonstrate the service commitment to improving victim care and the investigation of rape, through the work of Sapphire Teams and The Havens - Sexual Assault Referral Centres (SARCs).

2. This year has seen the publication of a number of reports and studies, culminating in the Cross Government Action Plan on Sexual Violence and Abuse. Recognition of the work in London was reflected in the decision of Home Office Minister Vernon Coker to launch the action plan in April 2007 at The Haven Paddington. This was followed up by a visit to The Haven Camberwell by The Home Secretary in August 2007, during which NHS staff and officers from Sapphire discussed the response to rape and serious sexual assaults in London.

Progress on MPS Rape Review 2005

3. In 2005 the MPS conducted the largest study of rape cases in the UK. A total of 677 cases recorded in April and May 2005 were examined in a number of areas. The cases identified have been subject to constant review by the Strategy, Modernisation and Performance Directorate (SM&PD), led by Professor Betsy Stanko. The cases have been tracked through the criminal justice process to identify points of attrition.

4. In summary, the 2005 review found a high attrition of rape allegations reported to the MPS.

• Of all rape allegations: 5.3% resulted in a conviction;
• Of all crimel allegations: 7.9% resulted in a conviction;
• Of all arrested suspects: 13.7% were convicted; and
• Of all charged suspects: 31.3% were convicted.

5. The review identified “The fact that victim vulnerabilities (victims aged under 18, domestic violence alcohol related rape and victims with mental health issues) featured prominently in rapes reported to the MPS in London. These vulnerabilities appear to have influenced both victims’ decisions to record the alleged incident as a ‘crime’ or not. It appears that these vulnerabilities influenced case provability, and therefore attrition, in complex ways”.

6. There were no specific recommendations forthcoming from this study of attrition. It concluded: “This review will be used to inform multi-agency discussions already underway to improve the delivery of care to, and justice for, rape victims in London”.

7. The MPS has used the findings to inform the work of Association of Chief Police Officers (ACPO) Rape Working Group, The London Criminal Justice Board (LCJB), The MPS Sapphire Specialist Advisory Group, The Havens Strategic Board and Sapphire Team Leader’s Meetings. The Rape Review has also been used to secure Home Office funds, to pilot the work of The Havens Young Persons Workers. Rape Review data, on victim ethnicity, was used to support the employment of The Havens Asian Development Worker.

The Havens

8. The Havens SARCs continue to provide the highest level of victim care and forensic examination. The work of the Havens has been independently reviewed in the Her Majesty’s Inspectorate of Constabulary (HMIC) and Crown Prosecution Service (HMCPSI) report ‘Without Consent’. A number of areas of good practice are identified. The work of SARCs is promoted in the Cross Government Action Plan on Sexual Violence and Abuse and the government is committed to “expanding the network of SARCs”. This is an area where London has an influence on the development of National services.

9. MPS Sapphire and Haven Managers are represented on the National SARCs Steering Group, which is used to develop policy and good practice for existing and developing SARCs. A new South East Regional SARC development group has been established, chaired by MPS Sapphire DCI, which includes membership from Hampshire, Kent, Surrey, Sussex and Thames Valley police areas. The aim of this group is to link with the national group and provide support for development in the region.

10. The Haven Strategic Board is in the process of setting priority areas for the development of the service in coming years. The Havens will use information provided in the MPS Rape Review, together with Haven Client data, to identify areas for development. A key priority area is improving access to the service and encouraging self-referrals. The Havens have established Communications Working group. Working in partnership with the Mayor’s Office, they have produced a series of posters providing information on the service, which are being distributed to community groups, libraries and GP’s surgeries. The MPS has distributed the posters to all safer neighbourhood teams and to licensed premises.

London Criminal Justice Board – Rape Convictions Working Group

11. The Rape Convictions Working Group was set up in July 2006 to examine issues around the convictions rate for rape cases in London and to identify areas for improvement to the service provided to victims of rape at each stage of the criminal justice process. The group, chaired by Richard Sumray of the MPA, has brought together key statutory partners and Non Government Organisations (NGOs). The group has made a number of recommendations, with reference to national targets and recommendations of the HMIC ‘Without Consent’ review.

12. The working group’s position is that it will now:

• Prioritise the recommendations with Criminal Justice bodies and partners;
• Review the Criminal Justice Service (CJS) performance against the recommendations;
• Monitor developments and compliance against the recommendations;
• Work with the Home Office Rape Performance Group to develop and facilitate the new basket of measures aimed at improving performance across the whole CJS (to be introduced to local criminal justice boards in the next financial year); and
• Ensure that our work is aligned with that of the findings of the ACPO/PSU stocktake and visits.

13. As a result of the formation of the working group, the MPS has established regular meetings with the Crown Prosecution Service (CPS). The aim of the meetings is to identify and promote good practice. CPS staff are now regular attendees at Sapphire Training days and Sapphire officers and Haven staff support CPS training. A number of key areas identified by the LCJB working group are being addressed as priorities by The Havens.

MPS Rape Data April 2007 – August 2007

14. The data provided is based on all reported rapes recorded between April 2007 and August 2007. It is based on offences investigated by Borough Sapphire Teams and SCD5 Child Abuse Investigation Teams. There were 807 offences classified as rape. This was a 14.7% decrease in the number of rape offences recorded during the same period for the previous year. The most notable decreases have been in Ealing (-53.6%, 15 offences), Greenwich (-43.2%, 19 offences) and Bexley (-42.9%, 6 offences).

15. Ten boroughs have seen a rise in the number of offences reported during this five-month period in comparison with the respective period of 2006. The largest increase was at Wandsworth (25%, 8 offences). Rises across the other boroughs do not significantly affect the overall number of offences in the MPS.

16. The Violent Crime Directorate (VCD) Sapphire Team has examined the number of rapes reported to the MPS as part of its standard operating procedure. The team identified differing approaches across London Boroughs in respect of initial recording standards and classification of crimes.

17. Initial examination of the reports subject to this review, has found no evidence to suggest that the level of service to victims of crimes has been reduced.

18. The detailed examination of crime reports identified some Boroughs had not initially classified a crime as rape but rather as a sexual assault. This did not reduce the level of service to the victim but could result in the reports not being subject to VCD Sapphire scrutiny on areas such as ‘No Crime’ where the volume of ‘sexual assault’ allegations are not monitored by VCD Sapphire whereas all rape allegations are monitored. This issue has been raised directly with Borough Commanders and a number of Boroughs have been instructed to review their recording standards. This work will be overseen by Commander VCD and Commander Criminal Justice through the Sapphire Team and independently audited by the Data Accuracy Team (DAT).

19. The corporate sanctioned detection target for rape is 32%. The sanctioned detection rate for this period was 31.8%. In 2006, the sanctioned detection target rate achieved in the same period was 28.6%.

20. Domestic rape accounted for 26.3% of all rape offences (212 out of 807). This percentage was calculated on the offences where the ‘relationship’ was recorded on the crime report and indicated an intimate relationship e.g. Boyfriend/Girlfriend, Husband/Wife (including ex-partners). This represents a one percent increase in domestic rapes on the same period in 2006.

Training

21. The MPS continues to improve the training of front line police officers in their response to victims of rape. In July 2007, the Violent Crime Directorate (VCD) provided a lecture to a group of 120 probationary constables. The Sapphire presentation focused on the first steps to be taken when conducting an initial investigation and the impact of their actions on each victim of crime. The MPS is currently devising a new interactive training programme on public protection for all probationary constables. This training will include a Domestic Rape scenario.

22. Further training is being developed for response team officers. The MPS training board will evaluate this. The Sexual Offences Investigative Techniques (SOIT) course is currently under review, and is likely to be extended from three weeks to four. This will allow more time for officers to develop interview skills in a safe learning environment.

Sapphire Specialist Advisory Group

23. The Sapphire Independent Advisory Group has now changed its title to the Sapphire Specialist Advisory Group in line with new internal guidance. The group is now chaired by Denise Marshall, Chief Executive, Eaves Housing For Women, The Lilith Project, The Poppy Project and Eaves Women's Aid. Denise has recently conducted an audit of the skills and expertise of the group and representation of key groups is being addressed.

Cold Case Investigations

24. The Sapphire Cold Case Investigation Team are reviewing undetected rapes and serious sexual assaults. The team has a new process that will ensure that all forensic identifications on offences reported more than five years ago will be notified to the team. Since formation, in 2002, the Cold Case Team has reviewed in excess of 900 cases. Reviews conducted by the team have resulted in 91 full DNA profiles for, as yet unknown, offenders being loaded onto the National DNA Database (NDNAD). As persons come to notice to the police for other offences, DNA taken from them is compared the NDNAD and any matches are notified to the Cold Case Team. In partnership with the Special casework section of CPS London, the Cold Case Team has secured 39 convictions for a total of 65 offences.

Abbreviations

ACPO

Association of Chief Police Officers

CJS

Criminal Justice Service

DAT

Data Accuracy Team

HMIC

Her Majesty’s Inspectorate of Constabulary

LCJB

London Criminal Justice Board

NDNAD

National DNA Database

NGOs

Non Government Organisations

SARCS

Sexual Assault Referral Centres

SM&PD

Strategy, Modernisation and Performance Directorate

SOIT

Sexual Offences Investigative Techniques

VCD

Violent Crime Directorate

C. Race and equality impact

The Cross Government Action Plan on Sexual Violence and Abuse of April 2007 makes reference to gender inequality suffered through these crimes. The report states, “Most Perpetrators are male and most victims are female. It is both a consequence and cause of gender inequality”. The report continues “Women are more worried about rape than any other crime”. The work completed in the MPS Rape review highlights vulnerabilities categorised by age, mental health issues and previous or current domestic relationship. The commitment of the MPS to combat sexual violence and offer the highest standards of care is reflected in this report.

D. Financial implications

1. The cost of The Havens is paid by the MPS in a 50/50 partnership with the NHS in London. The cost to the MPS for the financial year 2007/8 is £2.09 Million.

2. A new funding line has been identified from within existing forensic budgets to cover the cost of Cold Case forensic examinations. The forensic budget for 2007-8 will be £150,000. The Haven awareness campaign will be funded from existing Haven finances.

E. Background papers

None

F. Contact details

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

For more information contact:

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

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