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 Assistant Chief Constable Avon and Somerset Constabulary

Jill Cotgrove Assistant Chief Officer Avon and Somerset Probation Area

Suzy Dymond-White Governor Bristol Prison

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

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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: providing known victims and current partners of men undertaking the programme with information; supporting safety planning; helping men understand why they use violence and abuse against partners and the all-round effects of this behaviour; encouraging participants to take responsibility for their behaviour; motivating participants to take specific steps to change their behaviour; 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 multiagency 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 given two years' imprisonment for public order offences and possession of a blade. His risk category was assessed as high by both police and probation. Diagnosed as a paranoid schizophrenic, it was considered impossible to predict when the man may attack. Those at risk were considered to be psychiatrists, two of whom he had attempted to attack in the past, and the public. The risks increased when he panicked, became obsessed with a female, failed to take his medication or drank heavily. He had also made threats to his psychiatrist. Factors likely to reduce his risks were consistency of medication, accommodation that was suitable and quick access to hospital. He would require a good support network with ongoing involvement of the probation service, mental health support organisations, police and the voluntary sector. He was, therefore, managed within the MAPPA system. Released initially to a hostel, the man failed to return to the curfew and a recall to prison was instigated. There were concerns for previous victims and his family were fearful for their own safety. Visits were made prior to re-release by the 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. There was positive engagement with the offender during the final period of custody and, under the continuing management of Level Two MARC, he met regularly with his supervising officer, even though he was not subject to ongoing supervision. A flat had been obtained and mental health support was ongoing via a psychiatrist, a community psychiatric nurse and floating support from part of the Bristol Cyrenians charity. There was also liaison with previous victims and the offender's parents, and 'alert' notices were circulated prior to his release date. The local beat officer for his new home address was also informed. Subsequent to his release, visits to the man’s home also took place and he attended meetings at the office. This case is an example of how a very difficult and potentially dangerous offender can be managed by the MAPPP process by engaging all relevant agencies in a risk management plan. At the expiry dates of his sentence the offender was complying with mental health services and his medication, was offence-free, had not returned to alcohol misuse, had established himself in a flat, undertaken voluntary employment and had plans to undertake other suitable work in due course.

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

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

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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 a number of female victims and was sentenced to 20 months’ imprisonment. The assaults had taken place when the victims were children and Michael held a position of trust in a local youth club. The offences came to light once the victims became adults. The victim liaison officer contacted both victims but only one – Anna – responded. A meeting was arranged and it became clear that Anna was very angry at what she perceived to be the leniency of the sentence and the fact that the offender would not serve the entire length of the sentence in prison, but would be eligible for release at the half-way stage. She no longer felt herself to be at risk, as she had now grown up, but she still had a number of concerns : l She lived in the same area as the offender and she knew he would eventually be allowed back home to live; l Her sister (who had a two young daughters) also lived nearby; l She worked with vulnerable young people in the local area and she believed that the offender was a danger to young girls and that he would prey on vulnerable children. At the time of trial and conviction, Anna had been contacted by the local and national newspapers and felt that she could use this medium to alert local people to the potential risk of the offender being allowed to live in the community. The offender was in denial of his offences and had not undertaken any relevant sex offender treatment programmes in prison – this meant that he was seen as a risk of reoffending upon release. Combined with Anna’s concerns and the risk posed to the offender by possible media interest, a MARC meeting was convened before his release. The MARC meeting agreed that the offender should live, initially, in a hostel away from his immediate home area. Licence conditions were placed on him preventing him from contacting Anna, either directly or indirectly. A visit to Anna was arranged by the victim liaison officer and the police liaison officer for the Public Protection Unit. At this meeting it was explained about the licence conditions and the possible dangers of talking to the local press. Anna was also able to talk about other individuals who she felt might be at risk – both to and from – the offender and the police were able to manage this. The offender was also ordered to sign on the Sex Offender Register for an indefinite period and the officers were able to explain to Anna what this meant. After living at the hostel for three months, the offender was allowed to return home and another visit was made to Anna by the officers to discuss how this transition was to be managed effectively. While Anna will never be happy with the offender being in the community, she was reassured that probation, police and social services were monitoring the situation.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.

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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:

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.”

l The availability of accommodation l Support and options l Local knowledge of particular areas and

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Case Study Two: Domestic abuse with false imprisonment
The female victim was under 18 at time of the offence and had been in a relationship with the offender for a very short period. She knew the offender had a history of mental illness but they had been friends for a long time and she thought she could help him control his illusions. When the attack took place, he held her at his flat threatening her with a knife and telling her that he would kill her, or her relatives, as one of them had harmed him. This was not true. The offender was charged with false imprisonment and sentenced to mental health treatment and then prison. Initially the victim liaison unit was unable to establish contact with the victim due to the fact that she had moved. She was not aware of the service provided as she did not receive any correspondence. During the MAPPA process and because the police were aware of the domestic violence, further successful attempts were made to contact her. The victim was concerned that, due to the offender’s mental health problems and his infatuation, that he would seek her out. She had been living at an alternative address as she did not want him to find her. The offender had kept her mobile number and would telephone her on the odd occasion, telling her that he was going to be released and was coming to see her. Following the contact with the victim, and through the MAPPA process, certain actions on behalf of the victim were required:

l An exclusion zone was put around the victim’s l l

home, which also included her relative’s address. A “treat as urgent” marker was also put against both addresses; There was a condition for the offender not to try to approach or communicate with the victim;

It was agreed, through working with the mental health team, that a medium secure hospital unit should be found prior to release. The offender would refuse to take his medication, causing further problems of compliance in his supervision, pre and post release. He was considered very dangerous due to his anger and the risk of harm he posed to staff within the institutions. These MARC actions are reviewed on a regular basis and the offender, once released, has been recalled on a number of occasions due to breach of his conditions. The unit continues to monitor the situation and 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 recalled the MAPPA asked for victim inquiries to be extended to include, not only the female victims of the current offences, but those of the original murder offence in the seventies. The prisoner had a violent relationship with his wife, who had eventually left him. He had then tracked her down and murdered her new partner in front of her. No victim work had ever been done for the seventies offence and it soon became clear to the victim contact unit that the ex wife did not want to be found again by anyone. At that point, officers felt it was better not to try to trace her. The unit was successful, however, in contacting the family of the dead young man and they were very pleased to be given information, even after so long.

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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:

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l l l l l l

The availability of accommodation Support and options Local knowledge of particular areas and types of accommodation Housing rights Advice on anti-social behaviour and rent arrears policies 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 victims 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 decisions, they are involved in the management of the MAPPA process. “The value of the lay advisers role is essentially twofold,” explained MAP PA coordinator Mair Wise. “Firstly they represent the community interest in public protection and secondly they bring a different perspective from that of the professional 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 l l l

To prepare for and attend strategic management board meetings; To ask questions of the authority – particularly the ‘why’ questions; To offer constructive criticism and challenge assumptions; To offer views on how the work of MAPPA can be best communicated to the local community.

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The people who help shape the MAPPA process
Avon and Somerset Probation Jill Cotgrove Assistant Chief Officer jill.cotgrove@avon-somerset.probation.gsx.gov.uk Address 11, Canon Street Taunton Somerset TA1 1SN Phone 01823 346411

Mair Wise MAPPA co-ordinator mair.wise@avon-somerset.probation.gsx.gov.uk

Bridewell Probation Office Bridewell Street Bristol BS1 2JX

0117 930 3720

Avon and Somerset Police Jackie Roberts Assistant Chief Constable jackie.roberts@avonandsomerset.police.uk

Address Police HQ PO Box 37 Valley Road Portishead Bristol BS20 8QJ Police HQ PO Box 37 Valley Road Portishead Bristol BS20 8QJ

Phone 01275 816009

Trevor Simpson Detective Superintendent trevor.simpson@avonandsomerset.police.uk

01275 816630

HM Prison Service Suzy Dymond–White

Address HMP Bristol

Phone 07968 907329

Victim Support Coordinators Russell Kent Area Manager Victim Support Somerset

Address 9a The Butts Blackdown View Ilminster Somerset TA19 OAY 36, Deane Lane Bedminster Bristol BS3 1BS Radstock Police Station Wells Road Radstock Bath BA23 3SG

Phone 01460 55535

Bristol

0117 963 1114

North East Somerset

01761 432212

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Victim Support Coordinators North Woodspring

Address PO Box 1013 Nailsea Bristol BS48 2FG

Phone 01275 846892

South Gloucestershire

C/O South Glos Council 244 Station Road Yate South Glos BS37 4AF 12a Westgate Street Bath BA1 1EQ Weston Police Station Walliscote Road Weston-super-Mare BS23 1UU

01454 866548

Bath

01225 444212

Weston-super-Mare

01934 638179

Members of MAPPP Strategic Board Sally Churchyard Tony May Jolanda Anderson Fred Inman Suzy Dymond-White Joanne Brandon Tim Archer Russell Kent Mair Wise Anne Randall Charles Beal John Pridham

Agency B&NES Youth Offending Teams Somerset Social Services Housing Services- South Glos Council Avon and Wiltshire Mental Health Trust HM Prison Service Avon and Somerset Constabulary Somerset NHS and Social Care Trust Victim Support Avonvale MAPPA co-ordinator MAPPA adminstrator MAPPA Lay Advisor MAPPA Lay Advisor

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

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(iii) The number of Sex Offenders Orders (a) applied for (b) imposed by the courts 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 (iv) The number of Notification Orders (a) applied for (b) granted (c) imposed by the courts between 1 May 2004 and 31 March 2005 (v) The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts between 1 May 2004 & 31 March 2005 0 0 0 0 0 40 12

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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

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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 the MAPPP system between 1 April 2004 and 31 March 2005 (a) Registered sex offenders (b) Violent offenders and other sexual offenders (c) Other offenders (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? (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? (c) Were charged with a serious sexual or violent offence? 0 0 0 38 3 2 Level 3 3 3 1 Level 2 195 83 100

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