Crime and Policing Bill (Ninth sitting)

Jack Rankin Excerpts

Committee stage
Thursday 24th April 2025 Public Bill Committees

I welcome clause 56 and schedule 8, and they have my full backing.

[Jack Rankin (Windsor) (Con)]

It is a pleasure to serve under your chairmanship, Dr Allin-Khan, and to follow the powerful and well-researched contribution from the hon. Member for Southend West and Leigh.

In the digital age, the non-consensual capture and distribution of intimate images and the act of voyeurism have become all too common. Clause 56, which seeks to confront these violations and better protect individuals’ privacy and dignity, is one that I am happy to support, and I thank the Minister for so clearly setting out the case. The clause expands existing laws to criminalise the non-consensual taking of intimate images, including instances such as downblousing, the creation and distribution of digitally altered images such as deepfakes without consent, and the installation of equipment intended to capture intimate images without consent. All are in response to the recommendation from the Law Commission’s 2022 report on intimate image abuse.

The digital landscape has facilitated new forms of abuse, often with devastating consequences. Refuge has reported that one in 14 adults in England and Wales has experienced threats to share intimate images—that is 4.4 million people. The Revenge Porn Helpline has detailed the rise in those figures—it received nearly 19,000 reports in 2023, marking a 106% increase from 2022, and a tenfold rise over five years.

I also welcome the Minister framing this crime in the Government’s violence against women and girls strategy. There is a clear gender disparity when it comes to this crime. In 71% of cases, the victim is female and in over 81% of cases, the perpetrator is male. Those statistics underscore the urgent need for legal reforms to address and deter such abuses effectively, and to protect women and girls overwhelmingly. However, as we have heard frequently in Committee, it will also be critical that the measures are matched with improved enforcement. The sharing of intimate images has been illegal since 2015, and threatening to share intimate images has been a crime since 2021 but, shamefully, perpetrators are rarely held to account.

Data published by Refuge in 2023 showed that conviction rates for intimate abuse remain woefully low, with only 4% of cases that are reported to the police resulting in perpetrators being charged. I share Refuge’s view that that must improve. I was also shocked to learn that there remains a gap in the law where non-consensual images remain on perpetrators’ devices even after a conviction. That must be incredibly distressing for those affected by this crime. I ask the Minister to outline what provisions are in place to protect the dignity of victims, so that perpetrators are compelled to delete any non-consensual images.

[Alex Davies-Jones]

I thank the hon. Members who have contributed to the discussion, which has been deeply moving at times, particularly when it has touched on the impact on victims in all our constituencies and how widespread and horrific the problem is. That stresses the importance of us tackling it in the Bill.

The shadow Minister, the hon. Member for Stockton West, mentioned sextortion, as did other hon. Members. It is a growing problem. Just this week, its impact—on young men as well as young women—was highlighted on “Good Morning Britain”. Sextortion is already covered by existing offences; we feel that it is already tackled. We are aware that it happens primarily online on social media platforms. Thankfully, the codes of practice that Ofcom is introducing under the powers in the Online Safety Act 2023 will compel platforms to do more to tackle this horrific abuse. However, it is already a crime, and I stress that any victim or survivor who is struggling with it should report it to the relevant authorities—to the police and to the social media platforms directly—because action should be taken to tackle it and the powers and offences to do so are available. These crimes have caused tragic suicides, and I would encourage anyone struggling to reach out and tell someone to contact the Revenge Porn Helpline, which is there to offer assistance and support. It is a brilliant resource, as has been highlighted.

The hon. Member for Windsor asked about deprivation orders, I believe, and how we can ensure that these images are removed from devices so that victims are not retraumatised but protected. We are updating sentencing guidelines, to ensure that that measure is available to the courts—that devices can be taken off perpetrators and the images removed so that victims retain their dignity and are not being revictimised consistently.

This has been a very important discussion, highlighting just how important these measures are. I commend this clause and schedule to the Committee.

Question put and agreed to.

Clause 56 accordingly ordered to stand part of the Bill.

Schedule 8 agreed to.

Clause 57

Exposure

Question proposed, That the clause stand part of the Bill.

--- Later in debate ---

[Matt Vickers]

The clause updates the offence of exposure set out in section 66 of the Sexual Offences Act 2003. The current legislation criminalises a person who intentionally exposes their genitals intending that someone will see them and experience alarm or distress. With technologies ever expanding, the last Conservative Government’s efforts to modernise the legal framework in response to the Law Commission’s 2021 report “Modernising Communications Offences” included the addition of a cyber-flashing offence aimed at better addressing the realities of digital abuse and ensuring that the law keeps pace with the increasing use of technology to commit sexual offences.

The clause rightly expands that to cover not just situations where the individual exposes their genitals to cause alarm or distress, but those where they do so for the purpose of sexual gratification and are reckless as to whether the exposure may cause alarm, distress or humiliation to someone who sees it. That follows the Law Commission’s reporting that it had received evidence indicating that limiting the offence to cases where there was intent to cause alarm or distress was too restrictive. It found that motivations such as seeking sexual gratification or aiming to humiliate the victim were also significant factors behind exposure-related behaviour. The Minister made a clear case for this change to the law, but also set out the impact that such behaviour can have or lead to.

Exposing yourself in public, often referred to as flashing, is a serious and unacceptable criminal offence. It is not just inappropriate; it can cause genuine fear, distress and long-term psychological harm to those who witness it, especially when the victim is a child or vulnerable person. Flashing is not a harmless prank or joke; it is a violation of personal boundaries and can be deeply traumatic. It demonstrates a lack of respect for others and a disregard for the basic right to feel safe in public spaces. This kind of behaviour erodes trust in the community and contributes to a culture of intimidation and discomfort. It is right that we take every measure to stop indecent exposure.

Proposed new section 66(1A) of the 2003 Act aims to introduce a safeguard by excluding certain scenarios, where the exposure is intended only for a specific person or group, from the offence. In such cases, the offence will not be committed under the sexual gratification limb unless the individual is also reckless as to whether one or more of those people will be caused alarm, distress or humiliation. This provision seeks to ensure that consensual acts of nudity—for example, between partners in a secluded area—are not criminalised simply because they are accidentally witnessed by a third party.

The clause will help to ensure that perpetrators of sexually motivated public exposure, such as flashing, can be held to account even if they deny intending to cause harm. The revised wording offers greater clarity for law enforcement and the courts, ensuring that such harmful behaviours are prosecuted more effectively while also providing reasonable protections for consensual and private conduct.

It has been reported that flashing offences have doubled in a decade, with more than 1,000 instances of indecent exposure being reported to the police every month, but barely one in 10 leads to a charge. In the light of that, can the Minister confirm whether she is confident that new subsection (1A) will not inadvertently create a loophole for perpetrators to evade accountability by claiming that their exposure was intended for only a particular person?

[Jack Rankin]

The clause aims to strengthen the protections for individuals from indecent exposure, and to ensure that our communities remain safe and respectful spaces for all. It seeks to provide clearer definitions and stricter penalties for offences involving indecent exposure so that perpetrators of such offences are held accountable and victims receive the justice that they deserve for this sexual crime.

While sometimes dismissed as minor, exposure of this kind can have a significant psychological and emotional impact on victims. It is not a trivial matter and can often be a precursor to more severe offences, as we saw with the tragic murder of Sarah Everard, and it contributes to a climate of fear and discomfort in public spaces. Multiple incidents of indecent exposure were linked to the convicted murderer of Sarah Everard before the tragic events of her death in March 2021. In 2015 and 2020, allegations of indecent exposure were made against him in Kent, where he was said to have exposed himself in public. Those reports were not fully investigated at the time. In February 2021, just days before he abducted and murdered Sarah Everard, he was reported to police for exposing himself to staff at a McDonald’s drive-through in Kent. Despite that report being made on 28 February, no meaningful action was taken prior to the murder, which occurred on 3 March. Those incidents have since been heavily scrutinised during inquests and reviews, revealing systematic failures in policing responses to sexual offences, especially so-called lower-level offences such as exposure.

While I welcome the expansion of the scope of this offence through clause 57, I urge police to use the new powers and treat these crimes as the serious crimes that they are. They can be a warning of even worse crimes to come. I welcome the Minister’s statement that the College of Policing guidance is being changed appropriately. Being subjected to indecent exposure by a stranger while walking home can leave a woman with lasting trauma. Such behaviour is unacceptable and should be met with appropriate consequences.

[Alex Davies-Jones]

I thank the hon. Member for Windsor for his important contribution. It is right that we expand the scope of the offence to ensure that all victims are properly protected and that perpetrators are brought to adequate justice. As he rightly pointed out, justice is a system; it needs every part to work. We need to ensure that the police are equipped with the guidance, training and tools to go after these foul perpetrators—they need to know what to do, what to look for and who to find. They should be taking this seriously, so I am glad that the College of Policing guidance is now in place. We need the CPS to have the offences available to charge the perpetrators—that is what this Bill will provide—and then we need the court system to be available to hear the cases so that justice can be brought.

The shadow Minister sought reassurance that perpetrators would be brought to justice. As I have just outlined, we are assured that we have all the tools available; we just need to stop these acts taking place. This modest but vital step is part of our wider strategy to halve violence against women and girls. These crimes may be low level and classed as non-contact, but sadly we all know what happens when they escalate. It is important that we take them seriously and have robust laws in place to deal with them.

Question put and agreed to.

Clause 57 accordingly ordered to stand part of the Bill.

Clause 58

Sexual activity with a corpse

Question proposed, That the clause stand part of the Bill.

--- Later in debate ---

[Matt Vickers]

The clause updates and strengthens the current offence of sexual activity involving a corpse, as set out in section 70 of the Sexual Offences Act 2003. The revised provisions broaden the scope of the offence by replacing the term “sexual penetration” with the more encompassing term “sexual activity”. The clause replicates a provision of the Conservative Government’s Criminal Justice Bill, which fell due to the 2024 general election. The change ensures that any form of intentional sexual touching of a dead body—not just acts of penetration—will be captured by the law.

Many members of the public are shocked to hear that these vile and horrific offences take place, and will be further shocked that some of this activity is not covered by the law. Currently, section 70 of the 2003 Act defines the offence of sexual penetration of a corpse. That offence applies when a person intentionally sexually penetrates the body of a deceased individual, and knows or is reckless as to whether the body is that of a deceased person. The offence carries a maximum sentence of two years’ imprisonment.

As the Minister mentioned, the provision was notably used in the high-profile case of David Fuller, a former hospital electrician who was convicted under section 70 for multiple instances of sexual penetration involving the bodies of at least 100 women and girls in hospital mortuaries. However, the current scope of section 70 does not extend to non-penetrative sexual acts, so it could not have been used to prosecute further allegations against Fuller relating to other forms of sexual activity with the bodies of his victims. Under this legislation, a person commits an offence if they intentionally touch a part of a dead person’s body, with that touching being sexual in nature, and if they either know or are reckless as to the fact that the body is that of a deceased person.

The clause also provides a new, tiered sentencing structure. Where the sexual activity involves penetration, the offence carries a maximum penalty of seven years’ imprisonment. In all other cases, the maximum penalty is five years. These sentencing thresholds aim to reflect the seriousness of the conduct, while allowing courts flexibility to reflect the nature of the offence. The new offence introduces different maximum sentences depending on whether penetration is involved. Can the Minister explain how these sentencing thresholds were determined, and have the Government considered how the updated offence aligns with comparable offences in other jurisdictions? Does this bring us into line with international best practice?

[Jack Rankin]

There have been some truly harrowing cases that have exposed the inadequacies of our current legal framework in this regard. As both the Minister and the shadow Minister highlighted, the case of David Fuller is the obvious and most extreme example—a hospital electrician who, over 12 years, sexually abused the bodies of more than 100 women and girls in women and mortuaries. His crimes went undetected for decades, revealing significant systematic failure. I fully support the clause that the Minister has outlined, particularly because, as Baroness Noakes has highlighted during parliamentary debates, had Fuller not been convicted of murder, he might have faced only a minimal sentence for his other offences.

I have several critical questions on clause 58. I appreciate that the clause would significantly increase the penalty, but are those proposed penalties sufficient? Given the gravity of these offences, should the maximum sentence not be even higher, so that it serves as a stronger deterrent? Take the example of David Fuller. If we had caught him before the murder, under the provisions of the Bill, would he have been given seven years, and is that enough? What safeguards are in place? How can institutions, especially hospitals and funeral homes, implement stricter protocols to prevent such abuses? Perhaps the Minister can comment on that. How do we support the victims’ families? Beyond legal measures, what support systems are available to help families to cope with the trauma inflicted by disgusting crimes such as this? Clause 58 is clearly a necessary and long overdue reform that acknowledges the sanctity of the deceased and the rights of the families, and provides greater justice for those who can no longer speak for themselves. I welcome it.

[Alex Davies-Jones]

I welcome the comments from the shadow Minister and the hon. Member for Windsor. Both touched on sentencing, and I am happy to address their questions. We have considered a range of options. Increasing the statutory maximum for section 70 to seven years is in keeping with the other serious contact offences in the Sexual Offences Act, while it remains lower than most of the serious contact sexual offences against living victims. Sexual assault and rape, for example, have a maximum penalty of 10 years and life imprisonment respectively. The statutory maximum set out in the clause is for a single offence. If a person receives multiple convictions for this offence, or if that offence is committed alongside other offences, then the court may adjust the overall sentence to reflect the totality of the offending in the ordinary way.

We also heard strong evidence of the harm caused by this offending to victims’ families and believe that two years does not reflect the harm caused. We have, therefore, considered, in particular, the serious emotional and psychological distress and the feelings of shame and embarrassment that the families undergo, knowing that the bodies of their loved ones have been sexually abused. It is therefore right that the new law takes

“Concealment, destruction, defilement or dismemberment of the body”

as a factor that indicates high culpability on the part of the offender, and that a more serious punishment may, therefore, be appropriate.

I remind hon. Members that we currently have a sentencing review in place, which is reviewing all the offences available and looking at this. That independent review is ongoing and we anticipate that it will report this year. We are also aware that the Law Commission is considering a review of the criminal law around the desecration of bodies as part of its next programme of law reform. We are currently discussing the possibility of looking into this with it. Let me reassure Members that we are not stopping and that we will not hesitate to go further if required.

On the support available for victims, I would like to reassure the hon. Member for Windsor that victim support is always available for anyone who has been a victim of crime, whether or not that crime has been reported to the police. I encourage any victim, survivor or family to reach out to victim support. The Ministry of Justice funds a number of victim support organisations and provides grants to local police and crime commissioners to provide tailored support in their areas for whatever they feel is necessary. We also have the victims’ code, which outlines exactly what victims are entitled to if they have been a victim of crime, and support is one of the many elements available to them there. I encourage anyone to reach out and seek the support that is available.

Question put and agreed to.

Clause 58 accordingly ordered to stand part of the Bill.

Clause 59

Notification of name change