The case has raised grave questions about the guards at the Singer center, the city’s main jail for female detainees and convicts. Both victims have notified the city they intend to sue. They claim in court papers that several guards not only turned a blind eye to Ms. James’s assaults, but in some cases helped her, giving her access to the victims and providing her with materials used in the attacks.

“They knew these women were being abused, raped and terrorized by Ms. James and they let that go,” said Paul V. Prestia, a lawyer representing one of the victims. “The fact that Ms. James was indicted is no surprise. The real question is does the Bronx district attorney have the spine to prosecute the corrections officers who let this happen.”

Asked about possible charges against correction officers, Ms. Clark’s spokeswoman, Patrice O’Shaughnessy, said the investigation was continuing.

Ms. Clark said in a statement that the rapes took place in view of cameras or in areas Ms. James should not have been able to enter. “No matter why these women are in jail, they cannot and must not be treated as less than human,” Ms. Clark said.

Cynthia Brann, the acting city correction commissioner, said her agency was starting an investigation into the allegations that officers knew about the attacks and did not intervene. She said in a statement guards “found to have contributed to these alleged incidents” will face penalties, including dismissal.