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Avon and Somerset

Multi-Agency Public Protection Arrangements


Annual Report 2004-5

PROTECTION THROUGH PARTNERSHIP


Foreword
During the last year the Multi Agency Public Protection Arrangements
(MAPPA) process has continued to go from strength to strength delivering
its fundamental objective – safeguarding the public from the threat posed
by sexual and violent offenders in Avon and Somerset while focussing on
the needs of the victim.

Thanks to the close co-operation and specialist skills of the many agencies
that form MAPPA in this area, the vast majority of public citizens are
largely unaware of the often complex and difficult risk management of
offenders that is being carried out every day.

The importance of partnership in the ongoing success of MAPPA cannot


be overstated.

Under the direction of the police, probation and prison services a whole
host of key agencies are signatories to the MAPPA process, each one
bringing its own expertise that is vital in drawing up the most effective risk
management procedures for the offenders.

Joint chairs of the MAPPA are Avon and Somerset Constabulary Assistant
Chief Constable Jackie Roberts, Assistant Chief Officer of the Avon and
Somerset Probation Area Jill Cotgrove and Bristol Prison Governor Suzy
Dymond-White.

All are jointly responsible with managing arrangements for offenders.


In the last year, the role of the prison service has become vital as many of
the offenders dealt with will be coming through the prison system. To
maximise the chances of success, the risk management must start in
prison, not on release.

MAPPA has meant agencies are very efficient in the way they support
each other in tackling the risk posed by offenders while maintaining the
true focus of this process – the victims and their needs.

We must not forget that this work is both victim focussed and offender
driven. The multi agency arrangements are designed in a way that the
safety of victims or potential victims is paramount.

None of us involved in this process would be foolish enough to suggest we


can eliminate risk entirely, but what we have now is a picture of who is
around in our community and lots of information about them, information
that didn’t exist previously and perhaps more importantly wasn’t shared.

We are looking forward to forging closer links with mental health providers
because of the increasingly important role they play in risk management.

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Keeping the public informed is something we want to make a priority too.
Assuring the ordinary person in the street that the vast majority of sex
offences are carried out against victims already known by the offender and
not by an opportunist.

If any serious incidents do occur during the MAPPA process, we believe


we can demonstrate we have done everything within our power to prevent
them happening and manage any problem safely.

We want everyone in Avon and Somerset to feel that the safety


arrangements we have got in place are sound and have the best interests
of them and their families at heart.

We can assure them though – we are not soft on offenders, but we also
want offenders to know they will be dealt with fairly in accordance with the
legislation currently in place.

The single best thing that MAPPA has brought to this difficult process of
managing offenders is the transformation in the working relationships and
the respect between probation, police, the prison service and other
agencies.

Today we share information – and a common goal, which for the people of
Avon and Somerset can only be a good thing.

Jackie Roberts Jill Cotgrove Suzy Dymond-White


Assistant Chief Constable Assistant Chief Officer Governor
Avon and Somerset Constabulary Avon and Somerset Bristol Prison
Probation Area

Joint chairs of the Multi Agency Public Protection Panel Strategic Management Board

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Ministerial Foreword by Baroness Scotland
The work being undertaken to improve the safety of communities through
the Multi-Agency Public Protection Arrangements (MAPPA) is vitally
important and a priority for government. The annual reports for 2004/5
provide evidence of that active engagement. Violence and sexual abuse
are unacceptable wherever they occur and it is evident that through
MAPPA such offenders are identified and better managed than ever
before. As the number of offenders within MAPPA continues to grow as
expected there is clear evidence that the Responsible Authority, that is the
local police, probation and the Prison Service, is addressing these
additional demands by strengthening local partnerships, using new
statutory powers to restrict the behaviour of offenders, returning offenders
to custody where they breach their licence or order, and using the findings
of research and inspection to strengthen national guidance and local
practice.

Although it is never possible completely to eliminate the risk posed by


dangerous offenders, MAPPA is helping to ensure that fewer people are
re-victimised.

The active implementation of the Criminal Justice Act (2003) during the
last year has clearly enhanced the ability of a number of agencies
including health, social services and housing to work collaboratively with
the Responsible Authority in assessing and managing those sexual and
violent offenders in our communities who pose the highest risk of serious
harm. For the continued success of MAPPA this collaboration together with
the scrutiny of policy and practice must become the hallmark of these
arrangements. Similarly MAPPA must integrate with other public protection
mechanisms dealing with child abuse, domestic abuse and racial abuse.

For me one of the most exciting developments in this arena in the last 12
months has been the appointment of lay advisers to assist the
Responsible Authority in the oversight of the arrangements. As ordinary
members of the public these lay advisers represent a diverse, able and
committed group of people who are now helping the statutory agencies to
oversee the work being undertaken through MAPPA and communicate with
the public more effectively. Without a growing sense of public knowledge
and confidence about this work much of the benefits of the public
protection arrangements will be lost.

I hope this annual report will be useful, informative and


re-assuring to local communities. The agencies and
individuals who have contributed to the achievement of
MAPPA locally are to be commended.

Baroness Scotland
Minister of State for Criminal Justice
and Offender Management

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Who does what in the MAPPA process?
Avon and Somerset Constabulary
The Avon and Somerset Constabulary, probation service and prison
service all help drive the MAPPA process.

MAPPA was set up in 2000 and, at first, one police officer was attached to
the probation service to start the process. Two years later Detective
Sergeant Maurice Flay was appointed to start setting up a new team.
Now the Dangerous Offenders Unit has expanded to comprise officers in
Portishead, Central Bristol and Bridgwater covering the whole of the force
area.

Initially established to combat child abusive images on the internet, the


remit of the Dangerous Offenders Unit was extended to support the
MAPPA process in reactive and proactive investigations into the activities
of the most dangerous offenders, including paedophiles.

Under the direction of DS Flay, the unit works closely with police child
protection officers and probation officers sharing information and
intelligence. A member of the prison service was also added to the
team in April 2005 to enable vital information to be shared, prior to an
offender’s release.

The combined task is to effectively risk manage the dangerous offenders in


the community.

More recently the unit has also teamed up with mental health workers as
part of the management plan to ease such offenders safely back into the
community.

Backing up the unit at police headquarters in Portishead are two


dangerous offenders registration officers, who is responsible for the
registration of offenders when they are released from prison. This role was
formerly known as the sex offenders registration officer, but both violent
and sexual offenders have now been brought under his remit. They are
assisted by three support staff to handle administration and paperwork.

“From one police constable we now have a dedicated team working


together with the probation service to ensure the highest possible
protection for the public,” said DS Flay.

The probation service


The probation service aims to reduce re-offending and to protect victims
and potential victims. It does this through assessment, supervision and
control of offenders and through its direct contact with victims. Its
assessments contribute to decisions about sentencing and release from
prison and influence the level of control placed on offenders and the type
of intervention which is made available to enable them to break the pattern
of offending.

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The probation service runs hostels where offenders can be kept under
scrutiny and where those who want it can take advantage of support
towards a crime-free life. It provides individual supervision and group work
programmes, which research suggests have successful outcomes.
The probation service takes seriously its authority to return to court or
prison any offender who does not co-operate with the terms of their
supervision or licence. Contact with victims enables them to take steps to
protect themselves and be supported and also allows the controls placed
on an offender to be specific to the circumstances of each situation.

MAPPA work is not just confined to Avon and Somerset, but is also part of
a regional panel where vital information and best practice can be shared.

The Regional Public Protection Steering Group sees representatives from


this area, Gloucestershire, Wiltshire, Devon and Cornwall and Dorset meet
on a regular basis.

The prison service


The prison service protects the public by ensuring that those committed by
the courts are kept in custody. It is the service’s duty to ensure all inmates
are looked after with humanity to help them adapt to law abiding and
useful lives upon their release back into the community.

It also aims to work closely with inmates, fostering skills that will prove
invaluable on release. These include addressing offending behaviour and
improving educational and work skills through practical sessions.

The prison service is also playing an increasing role in the risk assessment
of offenders to ensure protective measures begin to be put in place well
before release.

Social services
Social services have a statutory duty to protect children and vulnerable
adults. In Avon and Somerset they are organised into five authorities.
Social services professionals play one of the biggest roles in the multi-
agency assessment of certain offenders. At the MARC level of risk
assessment/management, they provide thorough reports and work closely
with all relevant agencies in supervision plans of offenders.

Housing
Local authorities and Registered Social Landlords (Housing Associations)
provide large numbers of rented properties in the area and manage the
tenancies involved.
Their role within MAPPA is to help in delivering the fundamental aim of
public protection by providing the type of accommodation most suitable to
an offender, depending on the seriousness of the crime.

It is a key role of the housing provider to know the location and availability
of its accommodation stock, ensuring that, for example, a sex offender is
not placed near to potential victims.

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One of the new developments in Avon and Somerset has been a protocol
on housing dangerous offenders in the force area.

The protocol is an agreement between the nine district and unitary


councils in the area and the MAPPP. It has now been finalised and is in
the process of being formally adopted by each Council. It will enable
dangerous offenders who would otherwise be homeless to be suitably
accommodated wherever is appropriate in the area.

The protocol will ensure that the Multi Agency Risk Assessment
Committees (MARCs) are able to put housing provision as a key element
of effective risk management plans for offenders.

Training takes place for housing staff to help them understand the
important role they play in public protection.

In Avon and Somerset, there are 118 social housing providers


managing in the region of 100,000 properties.

Mental health
The Avon and Wiltshire Mental Health Trust Partnership (AWP) and
Somerset Partnership Trust provide statutory mental health services
across the Avon and Somerset force region and beyond. They are
committed to playing their part in the MAPPA process.

Providing a wide spectrum of services, the AWP works alongside GPs,


offering advice and support to them and their staff.

Those people in the community requiring support are given it by the AWP
in partnership with social services. The Trust offers in-patient units for
those who require a period of hospital care and also operates a range of
specialised units.

Among these is the Fromeside Unit at Blackberry Hill Hospital in Bristol, a


medium secure facility that can take people from within Wiltshire and
Gloucestershire as well as Avon and Somerset. This unit caters for those
with a mental illness, some of whom will have offended.

As part of the MAPPA process, members of the AWP will attend the
MARCs. Although the number of cases considered by the MARCs
requiring AWP input will be comparatively small, where its help is needed
staff will provide a careful assessment of the risks presented by individuals
to themselves, their carers and the general public. AWP will also provide
information to other agencies at the MARC level, where it is deemed
necessary.

Youth offending teams


Multi-agency youth offending teams have a statutory responsibility to
prevent crime amongst 10 to 17-year-olds. They provide a range of
services to young people who have offended, and also seek to engage
and support their parents. They also offer direct services to victims of

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youth crime, using a restorative justice approach wherever possible, and
so are particularly aware of public protection issues.

All Youth Offending Teams use ASSET, a validated assessment tool, to


identify young people's needs and rate their likelihood of further offending.
Where there are particular concerns, a full risk of serious harm
assessment is undertaken.

Youth offending teams have established systems for sharing information


and have skilled, specialist staff who can manage risk effectively, while
also addressing the vulnerability of the young people themselves.
However, with the minority of young people who present a high risk,
managers will take a decision to refer to a MARC.

The five youth offending teams in Avon and Somerset are committed
to working in partnership with all other agencies involved in the MAPPA
process.

Domestic Abuse and MAPPA


The statistics are staggering. Domestic abuse accounts for 25 per cent of
all violent crime.

Between April 2000 and March 2004 there were 62 murders in the Avon
and Somerset Constabulary area. Amazingly 21 of them – one third – were
related to a domestic situation.

It is estimated that one in four women will suffer domestic abuse – defined
in Avon and Somerset as being threats, violence or abuse (physical,
psychological, sexual, emotional or financial) between adults who are, or
who have been, intimate partners or family members, regardless of gender
or sexuality.

It is no coincidence then, that both the police and probation service are
forcing the issue ever higher up the priority agenda.

Detective Sergeant Lisa Barnett is the Constabulary’s domestic violence


co-ordinator. Over the last year, she has been responsible for putting
together a new delivery plan with 125 separate actions.

“If domestic violence was treated as a medical illness it would be


described as an epidemic,” she said.

“The police are giving it far more priority than ever before. We have more
dedicated resources, we are working smarter, assessing the risks more
carefully and starting to make a big difference to these victim’s lives.”
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Lisa is proud of the fact that the number of convictions where a man has
been taken to court – even without a partner testifying against him – has
jumped to 68 per cent.

“We are better at arresting these people and, thanks to the multi-agency
approach, we are better at dealing with them when they are convicted,”
she said.

That’s a view shared by Jenny Rakoczi, the probation service’s


programmes manager with lead responsibility for domestic violence.
“We are committed to domestic violence prevention, the protection of
victims and potential victims and to bringing perpetrators to justice,” she
said.

The assumptions underpinning this policy are that:


l Perpetrators are responsible for their own violence: it is not excused,
condoned or minimised by individual pathology, stress, substance
misuse of dysfunctional relationships;
l Perpetrators can change and must take personal responsibility;
l Victims and witnesses will be taken seriously.

Implementation of the Integrated Domestic Abuse Programme (IDAP)


For the last few years ASPA has been running the Duluth domestic
violence programme. “During the last two years we have increased the
number of Duluth programmes running from two to five. More recently the
Integrated Domestic Abuse Programme (IDAP) has been accredited and
we are currently in a transition phase of moving our programmes over,”
said Jenny. “We also intend to increase the number of programmes from
five to eight in responce to demand.”

The IDAP programme is largely based on Duluth. It consists of 27 weekly


(usually) group work sessions each lasting two-and-a-half hours and is
designed to reduce offending by adult men whose victims are women.

IDAP directly promotes and requires co-operation and inter-agency


working with both statutory agencies (police; Crown Prosecution Services;
courts and social services) and non-government organisations (women's
services)). It forms part of a wider holistic community approach, which
aims to prioritise and centralise women's and children's safety.

Objectives include:
l providing known victims and current partners of men undertaking the
programme with information;
l supporting safety planning;
l helping men understand why they use violence and abuse against
partners and the all-round effects of this behaviour;
l encouraging participants to take responsibility for their behaviour;
l motivating participants to take specific steps to change their behaviour;
l encouraging participants to learn how to use non-controlling behaviour
strategies in their relationships.
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IDAP is a community-based programme and it is essential that it is run in
partnership with a women's safety worker.

Two have just been appointed to support female victims in any way
possible and help construct realistic safety plans, provide information
about the men's domestic violence programme, including their attendance
and possible outcomes, as well as liaising with case workers and other
agencies involved.

Training
Both the police and the probation service have launched ambitious training
programmes to raise the awareness of staff on domestic violence issues.

As an example, all front-line police sergeants are undergoing a special


three-day crime investigation training session.

Meanwhile, the probation service has trained 18 facilitators for IDAP, seven
regional trainers and one national trainer.

Offenders: Risk management


– MAPPA style
Introduction:
The MAPPA process is a multi-agency approach dealing with those
offenders who have committed violence, a sex offence or pose a very high
risk of causing harm.

These offenders are either supervised on Community Orders, Automatic


Conditional Release Licences or Discretionary Conditional Release
Licences.

These licences include various conditions placed on an offender following


their release, such as attending group sessions.

Since the introduction of MAPPA, Action Plans for Release drawn up for
every offender, involve more agencies.

Liz Hodge, senior probation officer said: “We now have better risk
management because we are able to call on psychiatric and psychological
reports and get police input rather than it just being down to the probation
service to manage the risk. It means we can protect the public more
effectively.”
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Probation or police officers now put forward a comprehensive action plan
for the management of a particular offender, which is ratified by the
members of the MARC on a group decision basis. Once the plan has been
drawn up, it is reviewed regularly.

From the police perspective, the MAPPA process has brought many added
benefits.

Detective sergeant Maurice Flay, of the Avon and Somerset force, said:
“What can happen now is that, in some cases, registered sex offenders
will come out of prison on licence and have a probation officer attached to
the case with an action plan already in place. After a period they will come
off licence and the police will become the lead agency, so there is basically
a period of hand-over when we are looking at those offenders from a multi-
agency perspective, as opposed to just us dealing with them.”

Liz Hodge says significant and effective working relationships are being
built.

“Local health authorities and trusts, Social Services and youth offending
teams are all making referrals into the MAPPP process,” she said.

The public protection team has 11.5 officers across the Avon and
Somerset area, as well as an area accommodation officer.

“We have good liaison with the victims unit, very effective relationships
with our police colleagues in the dangerous offender unit and, additionally
in April 2005, a seconded prison officer. It is planned that they will
negotiate with prisons regarding allocation of offenders on our caseload to
ensure that they go to a prison where the appropriate intervention
programmes are available to address their risk factors, attend reviews,
make appropriate links to exchange relevant information and feed into the
Multi Agency Risk Conference process.

“This is when representatives from all agencies risk assess an individual”,


said Liz.

She added: “Working as a team, we aim to effectively protect children and


the public from violent and sexual behaviour, reduce the number of victims
and reduce sexual, violent and dangerous offences.”

The following offender case studies are based on real cases that occurred
within the Avon and Somerset Constabulary area.

Perhaps the best way to explain the MAPPA process in action in through a
series of offender case studies.

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Case Study One: Violent offender

This case study concerns a man who was There was positive engagement with the
given two years' imprisonment for public order offender during the final period of custody
offences and possession of a blade. His risk and, under the continuing management of
category was assessed as high by both police Level Two MARC, he met regularly with his
and probation. supervising officer, even though he was not
subject to ongoing supervision.
Diagnosed as a paranoid schizophrenic, it
was considered impossible to predict when A flat had been obtained and mental health
the man may attack. Those at risk were support was ongoing via a psychiatrist, a
considered to be psychiatrists, two of whom community psychiatric nurse and floating
he had attempted to attack in the past, and support from part of the Bristol Cyrenians
the public. charity.

The risks increased when he panicked, There was also liaison with previous victims
became obsessed with a female, failed to and the offender's parents, and 'alert' notices
take his medication or drank heavily. He had were circulated prior to his release date. The
also made threats to his psychiatrist. local beat officer for his new home address
was also informed.
Factors likely to reduce his risks were
consistency of medication, accommodation Subsequent to his release, visits to the man’s
that was suitable and quick access to home also took place and he attended
hospital. He would require a good support meetings at the office.
network with ongoing involvement of the
probation service, mental health support This case is an example of how a very
organisations, police and the voluntary sector. difficult and potentially dangerous offender
He was, therefore, managed within the can be managed by the MAPPP process by
MAPPA system. engaging all relevant agencies in a risk
management plan. At the expiry dates of his
Released initially to a hostel, the man failed sentence the offender was complying with
to return to the curfew and a recall to prison mental health services and his medication,
was instigated. There were concerns for was offence-free, had not returned to alcohol
previous victims and his family were fearful misuse, had established himself in a flat,
for their own safety. undertaken voluntary employment and had
plans to undertake other suitable work in due
Visits were made prior to re-release by the course.
psychiatrist who confirmed that, with the
man's co-operation, his schizophrenic
condition was being treated successfully. The
supervising officer visited with the area
accommodation officer, who made a referral
to Bristol City Council under the protocol for
housing dangerous and potentially violent
offenders – a strategy that came from
MAPPP.

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Case Study Two: Domestic violence and
sexual offender

This offender at MAPPP medium risk level. His ex-partners were both known to the local
police domestic violence unit and while one
The man had a history of domestic violence had an existing restraining order, she had not
against his two ex-partners and had received sought its enforcement. Both women said
a three-year Community Order (CO) for they were too afraid, after the door-smashing
indecent assault, assault by beating and incident, to make statements to the police.
criminal damage.
The risk management plan included requests
The assault had been quite severe, for assessments to be made by social
incorporating a sexual element to control the services within three weeks. The women's
victim and assert his authority. It had been support worker from the Duluth programme
seen by the couple’s two young sons. visited the victims and there was increased
supervisory contact. A "treat as urgent"
As part of the CO, the man had been required marker was also put on both their addresses.
to attend a domestic violence programme. There was also close liaison between the
probation service, social services, and the
He had ongoing contact with his ex-partner police’s dangerous offender and domestic
because of baby-sitting and there had been a violence units.
further incident when he smashed her door
down after learning that she was in the After initially failing to keep appointments, the
company of another man. offender has now re-committed himself to
supervision under the new integrated
The offender's ongoing, obsessional beliefs, domestic violence programme. This assists
attitudes and behaviour and his use of body- him in understanding why he uses violence
building steroids had indicated his escalating against partners and ex-partners and looks at
risk and he was, consequently, re-referred the effect of his behaviour on the victims,
into the MAPPA system. their children, others and himself. It also helps
victims by providing information and safety
Despite having previously participated planning advice.
positively in the domestic violence
programme, it became clear that the offender The man’s progress will be reviewed by the
should be required to repeat aspects of it – MAPPP with all the relevant agencies
not an unusual occurrence in this complex involved in the management of this case.
area.

To reduce the risk, the offender had to take


responsibility for distancing himself
emotionally from his former partners. He also
had to stop using steroids and carefully
consider the purpose of weight-training
activities, which made him more powerful and
potentially dangerous.

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Case Study Three: Sex offender

This offender is rated as a high risk of harm An assessment by Fromeside Clinic was
and is subject of a three-year Community unsuccessful, with the offender saying he
Order (CO), which ends later this year. He wanted to leave.
must also register as a sex offender for five
years. The risk management plan included liaison
with floating support (Bristol Cyrenians) to
He was convicted of indecent exposure to a encourage some continuing practical help and
woman in an isolated location and admitted befriending, participation by the supervising
that there had been other similar incidents. officer in a care plan meeting to ensure that
the offender's mental health needs were
During the CO he was jailed for two months properly met and, on closure of his case by
after breaching an injunction not to have the mental health unit, liaison with the GP.
contact with his mother, who was afraid of
him. Then, while in custody, he assaulted a The programme also included home visiting
male prison officer. and alcohol education to encourage
abstinence, as well as compliance with his
He was assessed and it was felt that on sex offender registration by police and
release there was a risk of assaults against appropriate sharing of information by
his mother and girlfriend, who also has probation, police, mental health and floating
alcohol and anger management problems and support services.
is known to social services through her
children, who are in foster care. This case highlights the complexity of
problems that some offenders present to be
There was also a risk of sexual assault and managed by the MAPPP in the interests of
indecent exposure against adult women. protecting the public, victims and potential
victims.
While he had periods of relative stability and
good health, the man also had a history of
self-harming (cutting himself).

Changes in his behaviour – he had become


withdrawn and uncommunicative, was using
alcohol and had admitted thoughts of re-
offending – escalated his risk so he was
referred into MAPPP.

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Protecting Victims: How the MAPPA
process makes a difference
Agencies in the MAPPA process focus energy and commitment on the
needs and experiences of the victims – both in order to protect them and
to safeguard other potential sufferers.

The agencies always want to learn what the victims think would better
protect everyone.

Section 69 of the Criminal Justice and Court Services Act 2000


places a statutory duty on local Probation Boards to consult and
notify victims about the release arrangements of offenders serving a
sentence of 12 months or more for a sexual or violent crime. In Avon
and Somerset, this duty is delivered by the Avon and Somerset
Probation Area Victim Liaison Unit.

Victim liaison officers offer contact to victims after the offender has
been sentenced, and then liaise with staff in the probation service
and other agencies in order to provide relevant information to the
victim.

The unit is staffed by a manager, three victim liaison officers, a special


administrative officer, and an administrative assistant.

If the offender is being managed within the MAPPA process, the victim
liaison officer will provide, with the victim’s consent, information to the Multi
Agency Risk Conference (MARC). This information is based on the
meeting with the victim and considers the current and future risk posed by
the offender.

The agencies can then use this knowledge to inform the risk management
plan. Agencies can agree to supervise and monitor the offender in
particular ways to take account of the victim’s views.

Between the period January 2004 and December 2004, a total of 401 new
victims were offered contact in line with the Victims’ Charter. People can
choose to take up the service at any time.

Ongoing contact is also kept with other people using the service –
something victim liaison manager Elizabeth Spencer sees as vital.

“We had one situation where, almost 20 years after the end of an abusive
relationship, the victim and her husband were confronted by the ex-partner
breaking down their front door and threatening to kill them both,” said
Elizabeth.

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“The offender was given a fairly short sentence and, while in prison and in
the hostel, seemed to making good progress. However, within days of
leaving the hostel he was making threats and leaving menacing
messages.

“The man was sentenced again to other offences and the same thing
happened when he was released a second time.

“However, during this entire period he was subject to the MAPPA process
and it was reassuring for the victims to be kept informed of the measures
that were in place to protect them, and to know that the risk to them was
being taken very seriously. I believe that this is the most important
message we can give to victims.”

The following case studies are based on real incidents in the Avon and
Somerset Constabulary area. All names have been changed to protect the
identity of the individuals and some details altered to prevent identification.

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Case Study One: Indecent assault
by a trusted person

Michael was convicted of indecent assault on offending upon release. Combined with
a number of female victims and was Anna’s concerns and the risk posed to the
sentenced to 20 months’ imprisonment. offender by possible media interest, a MARC
meeting was convened before his release.
The assaults had taken place when the
victims were children and Michael held a The MARC meeting agreed that the offender
position of trust in a local youth club. The should live, initially, in a hostel away from his
offences came to light once the victims immediate home area. Licence conditions
became adults. were placed on him preventing him from
contacting Anna, either directly or indirectly.
The victim liaison officer contacted both
victims but only one – Anna – responded. A visit to Anna was arranged by the victim
liaison officer and the police liaison officer for
A meeting was arranged and it became clear the Public Protection Unit. At this meeting it
that Anna was very angry at what she was explained about the licence conditions
perceived to be the leniency of the sentence and the possible dangers of talking to the
and the fact that the offender would not serve local press.
the entire length of the sentence in prison, but
would be eligible for release at the half-way Anna was also able to talk about other
stage. individuals who she felt might be at risk –
both to and from – the offender and the police
She no longer felt herself to be at risk, as she were able to manage this.
had now grown up, but she still had a number
of concerns : The offender was also ordered to sign on the
l She lived in the same area as the offender Sex Offender Register for an indefinite period
and she knew he would eventually be allowed and the officers were able to explain to Anna
back home to live; what this meant.
l Her sister (who had a two young
daughters) also lived nearby; After living at the hostel for three months, the
l She worked with vulnerable young people offender was allowed to return home and
in the local area and she believed that the another visit was made to Anna by the
offender was a danger to young girls and that officers to discuss how this transition was to
he would prey on vulnerable children. be managed effectively.

At the time of trial and conviction, Anna had While Anna will never be happy with the
been contacted by the local and national offender being in the community, she was
newspapers and felt that she could use this reassured that probation, police and social
medium to alert local people to the potential services were monitoring the
risk of the offender being allowed to live in the situation.Mapping out a new future
community.
Partners against crime
The offender was in denial of his offences The fundamental key to the success of
and had not undertaken any relevant sex MAPPA is the partnership of the relevant
offender treatment programmes in prison – agencies, which have signed up to the
this meant that he was seen as a risk of re- MAPPA protocol.

17
Alongside Avon and Somerset police and the clear from where previous victims might live.
probation service, a string of agencies serve
on the strategic management board, which “Essentially, what this protocol has also done
drives the process. is to ensure that no one agency, such as the
housing authorities, are left trying to manage
MAPPA co-ordinator Mair Wise said: offenders without the support of all the other
“Partnership brings together all those agencies. As a result the public and any
agencies that can contribute to the previous victims are protected.”
management of somebody’s risk, in however
small a way, and avoid the situation where Getting the type of accommodation right for
you get one agency dealing in isolation with an offender is essential to proper risk
an offender and having no real awareness of management. Agencies involved in the
what kind of issues are going on in other MAPPA process need to know where an
areas.” offender is living to provide the right level of
monitoring.
The eight districts in the Avon and Somerset
force area each have a Multi Agency Risk “If people don’t have a suitable address then
Conference (MARC) every month. The they may pose a threat to potential victims
standing members of those meetings are the and, in the worst cases, they have no
probation service and police and then other identifiable address which means they cannot
agencies are called in as and when needed. be properly monitored and managed. The
housing protocol is a major step forward in
Housing protocol ensuring this doesn’t happen,” said Mair.
One of the biggest recent changes in the
Avon and Somerset area has been the Housing providers will contribute to the risk
introduction of a housing protocol. assessment process with specialist
knowledge including:
The protocol has formalised the existing,
excellent relationship between housing l The availability of accommodation
authorities and the police and probation l Support and options
service. It has meant that those high-risk l Local knowledge of particular areas and
MAPPA offenders eligible for public and types of accommodation
voluntary sector housing are placed in the l Housing rights
type of accommodation that maximises public l Advice on anti-social behaviour and rent
safety. arrears policies
l Advice on exclusions
It also means that housing providers can now
make a very positive contribution to the You get a complete picture of someone when
management of offenders through the you have a multi-agency approach,” said
MAPPA process. This involves linking into the Mair. “There are lots of different perspectives
work being done by police and the probation coming in and we are able to pass on that
service to manage an offender’s potential risk information. The type of information say, a
to the public. housing officer will pick up, is different to what
a probation officer would get in an interview
Mair Wise said: “If a particular offender has with an offender.”
targeted young people, then the housing
provider can try and ensure they are
accommodated as far away from youth clubs
and schools as possible and also keep them

18
Case Study Two: Domestic abuse
with false imprisonment
The female victim was under 18 at time of the The offender had kept her mobile number and
offence and had been in a relationship with the would telephone her on the odd occasion, telling
offender for a very short period. her that he was going to be released and was
coming to see her. Following the contact with the
She knew the offender had a history of mental victim, and through the MAPPA process, certain
illness but they had been friends for a long time actions on behalf of the victim were required:
and she thought she could help him control his
illusions.
When the attack took place, he held her at his flat
l An exclusion zone was put around the victim’s
home, which also included her relative’s address.
threatening her with a knife and telling her that he A “treat as urgent” marker was also put against
would kill her, or her relatives, as one of them had both addresses;
harmed him. This was not true. l There was a condition for the offender not to try
to approach or communicate with the victim;
The offender was charged with false imprisonment
and sentenced to mental health treatment and
then prison. l It was agreed, through working with the mental
health team, that a medium secure hospital unit
should be found prior to release.
Initially the victim liaison unit was unable to
establish contact with the victim due to the fact
The offender would refuse to take his medication,
that she had moved. She was not aware of the
causing further problems of compliance in his
service provided as she did not receive any
supervision, pre and post release. He was
correspondence.
considered very dangerous due to his anger and
the risk of harm he posed to staff within the
During the MAPPA process and because the
institutions.
police were aware of the domestic violence,
further successful attempts were made to contact
These MARC actions are reviewed on a regular
her.
basis and the offender, once released, has been
The victim was concerned that, due to the
recalled on a number of occasions due to breach
offender’s mental health problems and his
of his conditions.
infatuation, that he would seek her out. She had
been living at an alternative address as she did
The unit continues to monitor the situation and
not want him to find her.
keeps the victim informed of the offender’s
progress during his time in secure facilities.

Case Study Three: Life sentence


for murder
In the case of a life sentence prisoner being No victim work had ever been done for the seven-
recalled the MAPPA asked for victim inquiries to ties offence and it soon became clear to the victim
be extended to include, not only the female vic- contact unit that the ex wife did not want to be
tims of the current offences, but those of the origi- found again by anyone. At that point, officers felt it
nal murder offence in the seventies. was better not to try to trace her.

The prisoner had a violent relationship with his The unit was successful, however, in contacting
wife, who had eventually left him. He had then the family of the dead young man and they were
tracked her down and murdered her new partner very pleased to be given information, even after
in front of her. so long.

19
Mapping out a new future
Partners against crime
The fundamental key to the success of MAPPA is the partnership of the relevant
agencies, which have signed up to the MAPPA protocol.

Alongside Avon and Somerset police and the probation service, a string of
agencies serve on the strategic management board, which drives the process.

MAPPA co-ordinator Mair Wise said: “Partnership brings together all those
agencies that can contribute to the management of somebody’s risk, in however
small a way, and avoid the situation where you get one agency dealing in isolation
with an offender and having no real awareness of what kind of issues are going
on in other areas.”

The eight districts in the Avon and Somerset force area each have a Multi Agency
Risk Conference (MARC) every month. The standing members of those meetings
are the probation service and police and then other agencies are called in as and
when needed.

Housing protocol
One of the biggest recent changes in the Avon and Somerset area has been the
introduction of a housing protocol.

The protocol has formalised the existing, excellent relationship between housing
authorities and the police and probation service. It has meant that those high-risk
MAPPA offenders eligible for public and voluntary sector housing are placed in the
type of accommodation that maximises public safety.

It also means that housing providers can now make a very positive contribution to
the management of offenders through the MAPPA process. This involves linking
into the work being done by police and the probation service to manage an
offender’s potential risk to the public.

Mair Wise said: “If a particular offender has targeted young people, then the
housing provider can try and ensure they are accommodated as far away from
youth clubs and schools as possible and also keep them clear from where
previous victims might live.

“Essentially, what this protocol has also done is to ensure that no one agency,
such as the housing authorities, are left trying to manage offenders without the
support of all the other agencies. As a result the public and any previous victims
are protected.”

Getting the type of accommodation right for an offender is essential to proper risk
management. Agencies involved in the MAPPA process need to know where an
offender is living to provide the right level of monitoring.

“If people don’t have a suitable address then they may pose a threat to potential
victims and, in the worst cases, they have no identifiable address which means
they cannot be properly monitored and managed. The housing protocol is a major
step forward in ensuring this doesn’t happen,” said Mair.

Housing providers will contribute to the risk assessment process with specialist
knowledge including:
20
l The availability of accommodation
l Support and options
l Local knowledge of particular areas and types of accommodation
l Housing rights
l Advice on anti-social behaviour and rent arrears policies
l Advice on exclusions

You get a complete picture of someone when you have a multi-agency approach,”
said Mair. “There are lots of different perspectives coming in and we are able to
pass on that information. The type of information say, a housing officer will pick
up, is different to what a probation officer would get in an interview with an
offender.”

Getting victims on board for a key role


Another new development has been the introduction of a representative for the
victims of crime to the MAPPA management board.

As the whole of the MAPPA system is victim-focussed, it became clear that it was
vital to gain a victim perspective.

Russell Kent, of Victim Support Avonvale, has now joined the board. “Once again
it is about having different perspectives,” said Mair.

“Russell is able to make sure that we are constantly reminded about the place vic-
tims have in this process. He is the eyes and ears of the victim ensuring that
issues are raised.”

Lay advisers
To ensure public accountability of MAPPA, two lay advisers have recently been
appointed on a voluntary basis. Although they will not take part in operational deci-
sions, they are involved in the management of the MAPPA process.

“The value of the lay advisers role is essentially twofold,” explained MAP PA co-
ordinator Mair Wise. “Firstly they represent the community interest in public pro-
tection and secondly they bring a different perspective from that of the profession-
al interests of MAPPA.

“Although lay advisers cannot ‘report’ to the local community independently, or


canvass views, their different perspective does bring a freshness of view. They
have a disinterested opinion which can, as the pilot arrangements have shown,
provide what might be termed as a ‘reality check’.”
Lay advisers have four key roles:

l To prepare for and attend strategic management board meetings;


l To ask questions of the authority – particularly the ‘why’ questions;
l To offer constructive criticism and challenge assumptions;
l To offer views on how the work of MAPPA can be best communicated to the
local community.
21
The people who help shape the MAPPA process
Avon and Somerset Probation Address Phone

Jill Cotgrove 11, Canon Street 01823 346411


Assistant Chief Officer Taunton
jill.cotgrove@avon-somerset.probation.gsx.gov.uk Somerset TA1 1SN

Mair Wise Bridewell Probation Office 0117 930 3720


MAPPA co-ordinator Bridewell Street
mair.wise@avon-somerset.probation.gsx.gov.uk Bristol BS1 2JX

Avon and Somerset Police Address Phone

Jackie Roberts Police HQ 01275 816009


Assistant Chief Constable PO Box 37
jackie.roberts@avonandsomerset.police.uk Valley Road
Portishead
Bristol BS20 8QJ

Trevor Simpson Police HQ 01275 816630


Detective Superintendent PO Box 37
trevor.simpson@avonandsomerset.police.uk Valley Road
Portishead
Bristol BS20 8QJ

HM Prison Service Address Phone

Suzy Dymond–White HMP Bristol 07968 907329

Victim Support Coordinators Address Phone

Russell Kent 9a The Butts 01460 55535


Area Manager Blackdown View
Victim Support Somerset Ilminster
Somerset
TA19 OAY

Bristol 36, Deane Lane 0117 963 1114


Bedminster
Bristol BS3 1BS

North East Somerset Radstock Police Station 01761 432212


Wells Road
Radstock
Bath
BA23 3SG

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Victim Support Coordinators Address Phone

North Woodspring PO Box 1013 01275 846892


Nailsea
Bristol
BS48 2FG

South Gloucestershire C/O South Glos Council 01454 866548


244 Station Road
Yate
South Glos
BS37 4AF

Bath 12a Westgate Street 01225 444212


Bath
BA1 1EQ

Weston-super-Mare Weston Police Station 01934 638179


Walliscote Road
Weston-super-Mare
BS23 1UU

Members of MAPPP Strategic Board Agency

Sally Churchyard B&NES Youth Offending Teams

Tony May Somerset Social Services

Jolanda Anderson Housing Services- South Glos Council

Fred Inman Avon and Wiltshire Mental Health Trust

Suzy Dymond-White HM Prison Service

Joanne Brandon Avon and Somerset Constabulary

Tim Archer Somerset NHS and Social Care Trust

Russell Kent Victim Support Avonvale

Mair Wise MAPPA co-ordinator

Anne Randall MAPPA adminstrator

Charles Beal MAPPA Lay Advisor

John Pridham MAPPA Lay Advisor

23
Statistics on offenders 2004/05
Below is the statistical information relating to the offenders managed under the
MAPPA system in the Avon and Somerset force area for the 12 month period
between 1 April 2004 and 31 March 2005.

The figures are divided into four category areas, registered sex offenders, violent
and other sex offenders and other offenders, those who do not fall within the other
two categories, but are assessed as posing risk to the public.

The final category deals with the MAPPA cases, the so-caalled ‘critical few’ of
offenders dealt with at the highest risk management level.

Category One: Registered sex offenders (RSOs)

No. of offenders

(i) The number of RSOs living in the Avon and Somerset area on 31 March 2005 674

(ii) The number of sex offenders having a registration requirement who were
cautioned or convicted for breaches of the requirement between 1 April 2004
and 31 March 2005 37

(iii) The number of Sex Offenders Orders


(a) applied for 40
(b) imposed by the courts 12
Sex Offender Orders & Sex Offender Restraining orders (both superseded by the
SOPO) and their interim counterparts applied for and/or imposed by the courts
between 1 - 30 April 2004 40

(iv) The number of Notification Orders


(a) applied for 0
(b) granted 0
(c) imposed by the courts between 1 May 2004 and 31 March 2005 0

(v) The number of Foreign Travel Orders


(a) applied for and 0
(b) imposed by the courts between 1 May 2004 & 31 March 2005 0

Category Two: Violent offenders and other sexual offencers

No. of offenders

(vi) The number of violent and other sexual offenders living in the Avon and Somerset area
between 1 April 2004 and 31 March 2005 361

24
Category Three: Other offenders

No. of offenders

(vii) The number of ‘other offenders’ living in the Avon and Somerset area between
1st April 2004 and 31st March 2005. 101

Category Four: MAPPA cases

No. of offenders

(viii) How many MAPPA offenders in the three previous categories were managed through Level 3 Level 2
the MAPPP system between 1 April 2004 and 31 March 2005
(a) Registered sex offenders 3 195
(b) Violent offenders and other sexual offenders 3 83
(c) Other offenders 1 100

(ix) Of the cases managed by the MAPPA system between 1 April 2004 and
31 March 2005 how many, whilst still in MAPPA
(a) Were returned to custody for a breach of licence? 0 38
(b) Were returned to custody for a breach of a restraining order or sexual offences
prevention order? 0 3
(c) Were charged with a serious sexual or violent offence? 0 2

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