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Avon and Somerset

Multi-Agency Public Protection Arrangements

Annual Report 2003-4
Since its inception in 2000, 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 focusing on the
needs of the victim.

Thanks to the close co-operation of the many agencies that form MAPPA in
this force 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.

It is a testament to the skills of the many individuals involved in the MAPPA

process that ordinary people have little or no idea of the strict protective
measures in place and that they can go about their business safe in the
knowledge that experts are working tirelessly to ensure the potential threat
from such offenders is minimised.

The importance of partnership in the ongoing success of MAPPA cannot be


Under the direction of the police and probation service a whole host of key
agencies are now 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.

As from April this year, the Prison Service has become a key player, jointly
charged with police and probation in managing arrangements for offenders.

This change is vital as many of the offenders we are dealing with will be
coming through the prison system. To maximise our chances of success,
the risk management must start in prison, not on release.

In the past, whenever an investigation has pinpointed that serious offences

could have been prevented what emerges is that the communication and
co-operation with key agencies has been in some way deficient.

What MAPPA has meant is that we are no longer deficient, but very efficient
in the way we support each other in tackling the risk posed by offenders
while maintaining the true focus of this process- the victims and their

We must not forget that this work is both victim focused 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.
Clearly there are areas of our work where some improvement is needed.
We are looking forward to forging closer links with mental health providers
because of the increasingly important role they play in risk management.

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.

Looking to the future, we would like to think that if any serious incidents did
occur during the MAPPA process, we could demonstrate that we had done
everything within our power to prevent it happening and that it was not down
to poor practice.

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 and the police. It is simply phenomenal.

The era of non co-operation has long gone. Today we share information –
and a common goal, which for the people of Avon and Somerset can only
be a good thing.

Steve Mortimore Jill Cotgrove

Assistant Chief Constable Assistant Chief Officer
Avon and Somerset Constabulary Avon and Somerset Probation Service

Joint chair of the Multi Agency Public Protection Panel Strategic Management Board
Mapping out a new future
As members of the MAPPA process look to build on past successes and
examine ways of improving the system, there is one area in this, the third
annual report, where certain figures need to be highlighted.

Statistics published later in the report apparently reflect a stark rise in the
number of violent and other sexual offenders that have come under the
control of MAPPA.

But these figures need to be put in context. This year for the first time, the
Home Office has changed the way the statistics for sexual and violent
offenders are presented.

The changes govern what MAPPA class as the category two offenders,
largely those sentenced to prison for 12 months or more for an offence of
violence or a sexual offence that doesn’t require registration as a sex

For example an offender could get 12 months for the sexual assault of an
adult female and, although considered to be a violent or other sexual
offender, does not need to be registered as a sex offender.

Such offenders were not included in last year’s statistics. Only the so called
‘critical few’ - those managed at the highest level because they posed the
most risk to the public featured in the statistics. In last year’s report they
numbered just five.

This year the figures show all the offenders in Avon and Somerset who are
on licence to the probation service and were sentenced to 12 months or
more for a violent or other sexual offence, which increases the figure to 347.

But this does not mean that 347 offenders are being managed at the highest
level. Those ‘critical few’ of the most potentially dangerous offenders now
total seven, an increase of just two.
But Mair Wise, MAPPA co-ordinator for Avon and Somerset police explained
that although the inclusion of the category two offenders has meant a
dramatic change in the figures, they are not all the subject of the highest
level of risk management.

“The vast majority of those category two offenders are managed at the
lowest possible level. They are not considered high risk. They are either low
or medium risk and are managed by probation staff in the normal way,” said

“The reason for the changes is that the Home Office wants to give the public
greater clarity, so they can see the numbers of people who committed a
violent offence that warrants a sentence of 12 months or more rather than
just the ‘critical few’.”

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 are a string of
agencies that serve on the Strategic Management Board, who drive the
MAPPA process.

MAPPA co-ordinator Mair Wise says the partnership process is vital in risk
management of an offender.

“The purpose of partnership is to bring 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,” said Mair.

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 meeting are the probation and police and then other agencies are
called in as and when they are needed, depending on the nature of the case.

Housing protocol
In terms of partnership, one of the biggest changes in the MAPPA process in
the last 12 months 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

It also means that Housing Providers can now make a very positive
contribution to the management of offenders through the MARC process.
This involves linking into the work police and the probation service are doing
to manage an offender’s potential risk to the public.

Mair Wise says: “If in the past 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 placing them away 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:

• 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
The staff who were instrumental in establishing the protocol were Carol
Price, Accommodation Officer with the Probation Service and Chris Knight,
head of operations for South Gloucestershire Council’s housing department.

Mair Wise says the importance of such protocols and the overall multi
agency approach to risk management of offenders cannot be overstated.

“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 pick up in an interview with
an offender.”

Getting victims on board for a key role

Another new development in the Avon and Somerset area in the last 12
months is the introduction to the management board of MAPPA of a
representative for the victims of crime.

As the whole of the MAPPA system is victim focused, it became clear to

those at the sharp end of the process that it was vital to have a victim
perspective brought into the Strategic Management Board (SMB).

Ian Deane, chief executive of Victim Support Avonvale has now joined the
board to bring a much clearer picture of a victim’s needs in each case of risk

“Once again it is about having different perspectives. There wasn’t any direct
representation for victims on the board and now there is,” said Mair.

“He will be able to make sure that we are constantly reminded about the
place victims have in this process. Ian will be the eyes and ears of the victim
ensuring that victims’ issues are raised at board level.

To ensure public accountability of MAPPA, the Home Office is also seeking

to appoint lay advisors to the SMB and are currently in the process of
advertising the posts.

The lay advisors, who will be appointed on a voluntary basis, will not take
part in operational decisions, but will be involved in the management of the
MAPPA administrative process.

Two advisors will join the board initially after a thorough selection and
training process and should be in place by the summer of next year.
A co-ordinated approach to violent and sexual offenders

The protection of the public MAPPA works on a clear risk management plan to
from violent and sexual categorisation process: ensure the potential danger an
offenders has been a top offender poses is minimised.
priority of both the police and Category One:
probation service for many Registered Sex Offenders. Two validated risk assessment
years. Category Two: tools are used to gauge an
Violent or other sex offenders offender’s potential for re-
But in 2000, sections 67 and 68 on licence to the probation offending.
of the Criminal Justice and service.
Court Service Act paved the Category Three: The Probation Service use the
way for a new co-ordinated Anyone who has had a OASys System which is
approach to the management conviction for an offence, described as ‘dynamic’, in other
of such offenders in the whose behaviour suggests they words factors that are variable in
community - and the MAPPA are still dangerous. an offender’s life including
process was born. MAPPA is relationships and change in
now covered by Section 325- Sexual offenders are deemed circumstances are taken into
327 of the Criminal Justice Act as those people registered with account.
2003. police under the Sex Offenders
Act 1997 or someone given a Police use a Risk Matrix 2000
For the first time the work of sentence related a sexual assessment method devised by
both police and probation offence for 12 months or more Home Office psychologist Dr
officers in this field was put on since April 2001. David Thornton. It is described as
a statutory footing. A multi a ‘static’ assessment tool which
agency approach to offender Violent offenders are those who means it is based on factors that
management was established, have committed certain violent cannot change in an offenders
combining the skills of relevant offences and have been given a life, eg the number of past
agencies to first assess and sentence of 12 months or offences and how old the
then manage the risks posed more. individual was when they
by certain offenders in the offended.
community. The MAPPA process also has a
series of levels under which all Points are awarded for different
Under the MAPPA legislation a the above offenders are categories including whether the
series of measures can be managed, depending upon their offence was against males or
drawn up to protect people level of risk. females or it was committed
against the potential dangers against a stranger or someone
certain offenders pose, such as Level One: known to the offender.
increased monitoring, An offender who poses a low to
surveillance and the use of medium risk. However many points an offender
supervised accommodation. Level Two: gets raises them to a certain level
Offenders that pose a high risk. of risk and will decide where they
Information relating to a certain Level Three: will fit in to the MAPPA operational
offender can be divulged to The so called ‘critical few’ of the structure for risk management,
communities, schools or most potentially dangerous which is explained elsewhere in
employers to ensure the risks offenders. this report.
that offenders may pose are
minimised, which in turn, It is the task of those agencies It is vitally important to remember
promotes public reassurance. serving on the MAPPA panels to that the majority of people who
draw up a rigorous risk commit a criminal offence may
assessment and subsequent never come into contact with the
MAPPA process.
Multi-Agency Public Protection Structure

This is level one of the MAPPA process for low to medium risk offenders. It effectively means that one agency is looking after
an offender that falls within this category e.g. a sexual offender who is deemed to be at a low risk of re-offending. Offenders
within this level are risk managed by either the police or probation rather than at a multi agency level.

Multi-Agency Risk Conferences

Level two of the MAPPA structure. Offenders OASys risk assessed by the probation service as high, following their release
from prison after serving a sentence of 12 months or more will come into the Multi-Agency Risk Conferences (MARC)
structure. Also if the police, who are responsible for registered sex offenders, have a particular offender who scores high or very
high under the Thornton’s method, he too will come into the MARC system. This is because the offender has been deemed as
needing, not only the police and probation input on future risk management, but other agencies such as housing, mental health
and social services.

Multi-Agency Public Protection Panel

The highest level where offenders are known as the ‘critical few’. Offenders are risk assessed as very high because they meet
five very specific criteria that take them out of the MARC process.

• Imminence of serious harm. Where there is an • Media implications. An offender whose criminal status is
immediate physical and psychological risk to a victim by an likely to attract widespread media interest.

• May require unusual resource allocation. For example, • Need to involve other agencies not usually involved.
an offender who is so dangerous he/she may require Where an offender is at such high risk of offending, he/she
additional staff at a probation hostel to handle him/her or has to be monitored on a daily basis by a care team who are
police surveillance. not specifically part of the MAPPA process, but are members
of a private care firm, highly skilled in this kind of risk
• Serious community concerns. If the offender’s criminal management. NB: Just five people were at this level in Avon &
status is likely to result in public order issues. Somerset last year.

Strategic Management Arrangements

The strategic management board, which governs the whole MAPPA process. Senior managers sitting at this level come from a
whole host of agencies and draw up policy decisions for the whole MAPPA process and monitor staff performance.
Who does what in the MAPPA process?
Avon and Somerset Constabulary are released from prison. He was
Along with the probation service, it formerly known as the Sex
is the Avon and Somerset Offenders Registration Officer, but
constabulary, which drives the both violent and sexual offenders
MAPPA process and one of the have now been brought under his
most significant developments since remit. He is assisted by three
the inception of MAPPA has been support staff to handle
the formation of a Dangerous administration and paperwork.
Offenders Unit.
“The Dangerous Offenders Unit has
When MAPPA was set up in 2000, really grown over the last year and
for the following year just one police will continue to do so in the future,”
officer was attached to the probation said DS Flay.
service to start the MAPPA process.
Two years later Detective Sergeant “The unit has an investigative arm
Maurice Flay was appointed to set of one Det Sgt, four Det
up the team. Constables, two intelligence
officers and administrative support.
Now the unit comprises five
detective constables, based “Initially established to combat
throughout the force are: Three DCs child abusive images on the
are based in Central Bristol, also internet, it has been decided to
covering the South Gloucestershire, extend this remit to support the
Bath while two further officers based Dangerous Offenders Unit and
at Wells also cover Weston-super- MAPPA process in reactive and
Mare, Taunton, and Yeovil. pro-active investigations into the
activities of the most dangerous
Under the direction of DS Flay, staff offenders, including paedophiles.
with the Dangerous Offenders Unit
work closely with police Child “From one police constable we now
Protection Officers throughout the have a dedicated team working
force area and with probation officers together with the probation service
sharing information and intelligence. to ensure the highest possible
A member of the Prison Service is protection for the public.”
also to be added to the team to
enable vital information to be shared, The Probation Service
prior to an offender’s release. The aims of the probation service
are to reduce re-offending and to
Their combined task is to effectively protect victims and potential
risk manage the dangerous victims. It does this through
offenders in the community and assessment, supervision and
more recently they have teamed up control of offenders and through its
with mental health workers as part direct contact with victims. Its
of the management plan to ease assessments contribute to
such offenders safely back into the decisions about sentencing and
community. release from prison and influence
the level of control placed on
Backing up the unit at police offenders and the type of
headquarters in Portishead is a intervention which is made available
Dangerous Offenders Registration to enable them to break the pattern
officer who is responsible for the of offending.
registration of offenders when they
The probation service runs hostels staff play one of the biggest roles
where offenders can be kept under in the multi-agency assessment of
close scrutiny and where those certain offenders. At the MARC
offenders who want it can take level of risk assessment/
advantage of support towards a management, staff provide
crime-free life. It provides individual thorough written and verbal reports
supervision and it provides group and work closely with all relevant
work programmes which research agencies in supervision plans of
suggests to have successful offenders.
The probation service takes Local Authorities and Registered
seriously its authority to return to Social Landlords (Housing
court or prison any offender who Associations) provide large
does not co-operate with the terms numbers of rented properties in the
of their supervision or licence. area and manage the tenancies
Contact with victims enables involved.
victims to take steps to protect
themselves and be supported and Their role within the MAPPA is to
also allows the controls placed on help in delivering the fundamental
an offender to be specific to the aim of public protection by
circumstances of each situation. providing the type of
accommodation most suitable to
The Prison Service an offender, depending on the
Protecting the public by ensuring seriousness of the crime.
those committed by the courts are
kept in custody. It is the Prison It is a key role of the housing
Service’s duty to ensure all provider to know the location and
inmates are looked after with availability of its accommodation
humanity to help them adapt to law stock, ensuring that, for example,
abiding and useful lives upon their a sex offender is not placed near to
release back into the community. potential victims.
It is also the aim of the prison
service to work closely with One of the new developments in
inmates, fostering skills that will Avon and Somerset has been a
prove invaluable on release. These protocol on housing dangerous
include addressing offending offenders in the force area.
behaviour and improving
educational and work skills through The protocol is an agreement
practical sessions. between the nine district and
In the coming year the Prison unitary councils in the area and the
Service will also play an increasing MAPPP. It has now been finalised
role in the risk assessment of and is in the process of being
offenders to ensure protective formally adopted by each Council.
measures begin to be put in place It will enable dangerous offenders
well before release. who would otherwise be homeless
to be suitably accommodated
Social Services wherever is appropriate in the area.
The protection of children and
vulnerable adults is a statutory The protocol will ensure that the
duty of the social services and in Multi Agency Risk Assessment
Avon and Somerset they are Committees (MARCs) are able to
organised into five authorities. put housing provision as a key
Social services element of its effective risk
management plans of offenders.
Housing providers will use their As part of the MAPPA process,
knowledge of accommodation to members of the AWP will attend
ensure offenders are placed in the the MARCs. Although the number
most suitable housing and such of cases considered by the MARCs
arrangements have already been requiring AWP input will be com-
valuable in several cases. paratively small, where its help is
needed staff will provide a careful
Once the protocol is formally assessment of the risks presented
adopted, training will take place for by individuals to themselves, their
housing staff to help them carers and the general public. AWP
understand the important role they will also provide information to other
play in public protection where there agencies at the MARC level, where
is a housing dimension to the case. it is deemed necessary.

In Avon and Somerset, there are 118 Youth Offending Teams

social housing providers managing Multi-agency Youth Offending
in the region of 100,000 properties. Teams have a statutory responsibil-
ity to prevent offending amongst 10-
Mental Health 17 year olds. They provide a full
The Avon and Wiltshire Mental range of services to young people
Health Trust Partnership (AWP) and who have offended, and also seek
Somerset Partnership Trust provide to engage and support their parents
statutory mental health services in this work. They also offer direct
across the Avon and Somerset force services to victims of youth crime,
region and beyond and are using a restorative justice approach
committed to playing their part in wherever possible, and so are
the MAPPA process. particularly aware of public protec-
tion issues in their work.
Providing a wide spectrum of  
services, the AWP works alongside All Youth Offending Teams use
GPs, offering advice and support to ASSET, a validated assessment
them and their staff in dealing with tool, to identify young people’s
those people with a mental health needs and rate their likelihood of
problem. further offending.  Where there are
particular concerns, a full risk of
Those people in the community serious harm assessment is
requiring support are given it by the undertaken. Youth Offending Teams
AWP in partnership with social have established systems for
services and it also offers in-patient sharing information, and have
units for those who require a period skilled, specialist staff who can
of hospital care. Alongside these in- manage risk effectively, whilst also
patient units, AWP also operates a addressing the vulnerability of the
range of specialised units. young people themselves.  How-
ever, with the minority of young
Among these units is the Fromeside people who present a high risk,
Unit at Blackberry Hill Hospital in managers will take a decision to
Bristol, a medium secure unit that refer to a Multi-Agency Risk
can take people from within Conference.
Wiltshire and Gloucestershire as  
well as Avon and Somerset. This The five Youth Offending Teams in
unit caters for those with a mental Avon and Somerset are committed
illness, some of whom will have to working in partnership with all
offended. other agencies involved in the
MAPPA process.
Offenders: Risk management – MAPPA style
Introduction which is ratified by the members of
In dealing with the violent offenders the MARC on a group decision basis.
that come under the MAPPA process,
gone are the days when leading Once an Action Plan has been drawn
agencies involved in rehabilitation up, it is reviewed regularly depending
would fail to pull together. on the nature of the case.

Legislation has meant that the multi- From the police perspective, the
agency process will result in a much MAPPA process has brought many
better chance of successful risk added benefits to the management of
management of offenders, however offenders that pose a real risk to the
serious a threat they pose. public.

The MAPPA process deals with

those offenders who have
committed violence, those
convicted of a sex offence or those
who pose a very high risk of
causing harm.

These offenders are either

supervised on Community
Rehabilitation Orders, Automatic
Conditional Release Licences or
Discretionary Conditional Release

These licences include various

conditions placed on an offender
following their release such as
attending group sessions to
address their offending behaviour.
Since the introduction of MAPPA,
Action Plans for Release drawn up
for every offender are able to involve
more agencies.
Detective sergeant Maurice Flay of the
Liz Hodge, senior probation officer Avon and Somerset force said: “What
said: “What we have now is better risk can happen now is that in
management than we did before some cases registered sex offenders
because we are able to call on say, will come out of prison on licence via
psychiatric and psychological reports the Probation Service and come with a
and police input rather than it just probation officer attached to that case
being down to the Probation Service to with an Action Plan already in place.
manage the risk.
“After a period of time they will come
“Post MAPPA we can call upon and off licence and the police will become
have more members of multi agencies the lead agency so there is basically
involved in managing the risk of that a period of handover when we are
person in the community and so looking at those offenders from a
therefore we can protect the public multi-agency perspective as opposed
more effectively than we could before.” to just us dealing with them.”

At MARC level, the probation or police The following offender case studies
officer will put forward a very are based on real cases that occurred
comprehensive Action Plan for the within the Avon and Somerset
management of a particular offender, Constabulary area.
Case Study One: Convicted of manslaughter against a child

This is an update to case study diagnosed him as a accommodation and has a

two from last year’s annual psychopath. The tribunal was team of helpers from a private
report and highlights the difficult not satisfied that the agency who are with him on a
and complex nature of psychiatrist had made his case daily basis helping to integrate
managing a high risk offender and the offender was released him back into the community.
released without restrictions. It with an absolute discharge with He is also being visited
focuses on an offender no conditions attached. regularly by police from the
convicted for the manslaughter Dangerous Offenders Unit and
of a young girl. The The offender came to live in the is subject to a daily monitoring
manslaughter charge was due force area, but neighbours routine.
to guidance from psychiatric found out some details of his
reports. criminal past and he was
moved to a place of safety for a
The victim had interrupted the couple of days.
offender as he was performing
a sexual act and was beaten to For the next few months, he
death. The offender concealed was moved around between
the body and then even joined secure psychiatric hospitals in
the police search for the little the area. As no conditions had
girl until she was finally found been placed on the offender’s
some days later. release he was only complying
with the risk management plan
Convicted of manslaughter, the voluntarily. At any stage, even
offender was made the subject now, the offender could stop co-
of a hospital order under the operating.
Mental Health Act and spent the
next 30 years in a range of He had been assessed on the
secure mental institutions Risk Matrix 2000 as being of
around the country. considerable risk to women and
Under the terms of the act, children. Only recently he was
there is an annual right of re-assessed by a psychiatrist
review to a hospital order and in as still being of a high risk to
2002, the offender went before causing harm of a sexual
a medical health tribunal. nature to young female children.

At this stage it was decided he Managed under both the MARC

was no longer mentally system and the level three
impaired, even though the MAPPP system, the man
psychiatrist at the tribunal re- currently lives in suitable
Case Study Two: The violent offender

This concerns a teenage As well as substance misuse in Covert surveillance would be

offender with a personality the form of amphetamines, carried out at the hostel and a
disorder exhibiting ecstasy, butane gas, glue and police action plan was drawn up
psychopathic traits who also alcohol, he also had made should any further offences be
had to be managed at the consistent threats to kill social committed.
highest possible level. The workers and mental health
teenager set fire to his professionals. Having agreed to his
accommodation and then responsibilities at the hostel,
returned to the scene to watch In the run up to his release, it the offender subsequently
crews tackling the blaze. was decided he could not breached a curfew order, police
return to his original were called after he became
He was subsequently accommodation, but other drunk and aggressive.
sentenced to 18 months ranges of accommodation also Ambulance crews treated him
imprisonment for the blaze and proved difficult. He could not be for a self-inflicted arm wound.
is assessed as a very high risk placed in a probation hostel
of causing harm under the because his violent behaviour Due to his unauthorised
OASys system and high under would put other residents at absence from the hostel, the
the Thornton’s Risk Matrix. risk. Social services look at offender was returned to
The offender already had five placing him in a residential custody. He is due for release in
previous convictions for other establishment, but he physically three months time on licence
offences including criminal assaulted the member of staff and will be the subject of
damage, public order crimes tasked with assessing him. another appropriate multi-
and had been sentenced to 12 It was decided that the teenager agency management plan.
months in detention for actual could only be managed at
bodily harm when he hit a MAPPP level three because his The case shows that some
female member of staff at a risk of harm could only be offenders are extremely difficult
residential unit over the head managed by co-operation from to manage. If the offender had
with a bottle and had planned to several agencies. been diagnosed with mental
stab her in the eyes. health problems he could have
He was transferred from the been placed in a secure unit,
Although the psychiatric reports Young Offender Institute to but as he had a personality
had highlighted the prison prior to his release so disorder such options currently
psychopathic traits he was not he only had a short distance to are not available without a
considered amenable to travel to the hostel and a change in current legislation.
treatment, yet his violent protocol was established with
behaviour was recognised as the police that hostel staff could
escalating. contact them immediately if he
posed a threat.
Case Study Three: The sex offender

The offender in this case was but his behaviour soon raised of his licence conditions by
managed at the MARC level cause for concern. being with the girl he was
two after being convicted of two arrested and held in custody.
offences of indecent assault Staff discovered he had He was subsequently
and abduction on young girl purchased a mobile phone with transferred to another jail on
whom he grabbed as she was integral camera and requested and it is understood he will
playing in the street. He was catalogues for children’s appeal against the recall of his
sentenced to 10 years clothing. He also videoed licence. It was the first time in
imprisonment and was children’s TV programmes the Avon and Somerset force
assessed as of very high risk of portraying youngsters to whom area that surveillance had been
re-offending as there had been it was known he was attracted carried out to catch someone
evidence of him networking with and it was discovered that he breaching their probation
other sex offenders during his was listening to conversations licence conditions. The offender
imprisonment. He had also on his radio scanner writing will remain in prison until 2007
gone through a number of sex down relevant information about before he is eligible for further
offender treatment youngsters including their parole and goods seized from
programmes and yet he was names and ages. his possession at the hostel
still a fixated paedophile. All the items were confiscated and are currently being
Following his release he was from the room, but it was clear investigated by Avon and
placed at a probation hostel the offender still posed a risk to Somerset police.
where the following conditions children and he was the subject
were imposed. He was tagged of monthly MARC meetings. The case demonstrates that
between 3pm and 9pm daily, such was the co-operation
when children would have been Signings were relaxed, but it between relevant agencies, a
around. He was subject to a was decided to increase meeting organised by a fixated
hostel curfew at 11pm and had surveillance by the Police paedophile that previously may
to sign in at the hostel on an Surveillance Unit. This proved have gone unnoticed was
hourly basis. the key as the offender was picked up and the appropriate
seen at McDonalds with action to return him to custody
It was decided that the Police another resident from the was taken.
Surveillance Unit would keep probation hostel who was due
watch as the offender had been to meet his wife and child. It
classed as a fixated paedophile transpired the meeting had
and would take advantage of been set up by the offender and
any situation possible. he had specifically asked the
His residency at the hostel girl to attend. He was seen
started well. He was very taking pictures of the girl with
compliant with the conditions, his phone. As he was in breach
Victims: The real focus of the MAPPA process
Introduction “Our overriding concern is the
While the fundamental duty of protection and safety of victims,”
those involved in the MAPPA said Elizabeth Spencer.
process is to do everything in their “Victims are offered the opportunity
power to safeguard the public from to be kept informed about
dangerous and violent offenders, developments in the offender’s
the real priority is always to the sentence and they are invited to
victims. express their views on release
plans as well as being told any
Section 69 of the Criminal Justice relevant conditions that have been
and Court Services Act 2000 placed on an offenders release.”
places a statutory duty upon 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 order to deliver this vital

service, there is a dedicated
unit of staff, the Avon and
Somerset Probation Area
Victim Liaison Unit.

Led by a manager, there are

three Victim Liaison Officers,
(VLO) a special administrative
officer, and two administrative

Members of the team meet

regularly with victims and
liaise with other staff in the
Probation Service in order to During the period January to
provide those victims with December 2003, a total of 398 new
information about what happens victims were offered contact in line
after a prisoner is sentenced. with the Victims Charter.

They are also given the opportunity This is in addition to the on-going
to express their views about risk service offered to people who
management arrangements for the became victims prior to this period.
particular offenders in their cases.
Again, the following cases studies
The role of the victims in risk are based on real cases in the
management is key as research Avon and Somerset Constabulary
suggests that in 80 per cent of area.
sexual offending, the attacker is
known to the victim. The victim is
therefore able to provide a lot of
detailed information, which can
help reduce further offending.
Case Study One: Indecent assault by a close friend of the family

This case study shows how the attacker would be able to return Subsequently, the release and
Victim Liaison Officers have to their area to live, as they did Licence conditions were
such a vital role in explaining not want to meet him on the accepted by the Parole Board
how the system to deal with streets locally. They had and the offender has been
offenders works and in the way requested a Licence condition released to another area. The
they can represent the needs forbidding the offender from victims have been advised what
and wishes of both the victim approaching or communicating the conditions are in relation to
and victim’s family. with any of the family members. them and they are currently
A victims’ report was prepared content with the outcome of the
The victims were two children and sent to the supervising release plan.
who had been indecently officer with the permission of
assaulted, and obscene photos the victims. There have been monthly
had been taken by the offender reviews to monitor the progress
who was a close friend of the Prior to Parole, the victims were of this offender, and to
father. A letter was sent to the contacted again to see if they ascertain what the next steps
parents of the victims, who had anything to add to their should be for working with him.
responded and wanted to meet original statement and if they To date the offender has
with victim liaison staff and talk wished to talk again about the complied with his licence
about the offender and how it issues contained in the original conditions.
had affected them. report. They were also able to
amend it as time had moved on.
It was the mother who revealed
the offender’s connection with Prior to release, the case
the family and she explained manager advised that the
how he would often visit and offender would be subject to
offer to look after the children. MARC, which would discuss
his release plan, collate
The family welcomed the information and raise any
contact with the Victim Liaison outstanding actions or issues.
Officer and they were able to The victims were represented
obtain relevant information by the VLO and at the meeting
regarding the sentence and an all the points were discussed,
explanation of how the offender i.e. accommodation, area,
progresses through the location, work, transport,
Criminal Justice agencies. signing the Sex Offender
register. A plan was agreed and
The victims were concerned prepared for the release of the
about whether or not their offender.
Case Study Two: High risk of violence to a woman in terror

What is demonstrated in this behaviour deteriorated to the release and one whilst on
case study is how without the extent that a risk meeting was licence. It was agreed that he
intervention of the MAPPA convened. should live in a hostel throughout
process, the risk of further more the licence period and the no
serious offences would not have The couple were identified as contact condition should stand.
been managed properly. being at risk, and a no contact
The offender was convicted of condition and exclusion from the Within a few weeks of his
threats to kill after he had burst place where they lived was release, the woman informed
into his ex partner’s house and added to the offender’s licence. the VLO that she had seen him
threatened to take the lives of The offender subsequently in the town where she lived. On
both her and her husband. But absconded from a hostel and checking with the hostel it was
the courts only imposed a two the victims reported they had found he had asked permission
year community sentence. The returned home from work and from staff to go to that area.
offender was living in the area found a wreath of dead flowers Once again, the victim’s
and the woman was so anxious placed in their back garden with concerns were brought to the
about the safety of herself and a note threatening to kill them. attention of the supervising
her family that the CPS called in officer and he agreed to discuss
the Victim Liaison Unit. No-one knew where the offender with the offender his motives for
was but after several days he going to that place.
The officer assigned to the case was sighted in a stolen car and
found the woman had good in possession of a firearm. Within two weeks of this the
reason to be terrified. The Eventually he was arrested and offender absconded, but
incident had happened many went to trial. The charges fortunately he was picked up
years after they had split up and against him concerning the very quickly by the police in
there had been no contact couple were dropped and he possession of a weapon. He
during that time right up until the was convicted of theft, and had breached his licence and
evening when he had recalled back to prison. was back in prison. As he is due
hammered down the door of her Again he expressed remorse for release soon A further
home. and seemed determined to MARC has been convened, and
change his ways. The couple part of that discussion will be
She felt that the sentence did were concerned that a pattern of about protecting the woman and
not protect her or her father who behaviour was emerging and her family.
was living close to the the he was not getting the
offender’s home. Soon after, psychiatric help he needed. His This case demonstrates the
the offender was convicted of a current supervising officer was flexibility of the MARC process
burglary offence and was unaware of the previous history as even though his sentence
sentenced to a short custodial regarding the woman and her had expired, some effective
sentence. The offender said he husband so when this was measures could be put into
bore no ill feeling to the woman reported to her it was agreed to place to help prevent future
or her husband, but as his convene a MARC. Two harm to the woman and her
release date approached, his meetings were held one before family.
Case Study Three: Lifetime of abuse by a step-father

What this particularly tragic case released early and was unaware inability of their mother to
study demonstrates is the that offenders do not serve the full provide a suitable home
support that VLOs can give a term of their sentence in prison. environment. The MARC
victim in even the most harrowing decided that the offender should
of circumstances and how they She considered the offender not be released to his home
often walk a tightrope in posed a risk to young people as address but should go to a
maintaining some kind of family she knew that he was still in Probation Hostel for the first few
unit. denial about the offences and that months so that he could be
he had not undertaken any Sex monitored closely.
The victim was the offender’s Offender treatment programmes
step-daughter and her rape whilst in prison. She also knew The Probation Officer, Victim
marked the culmination of years that her mother was in denial and Liaison Officer and police officer
of sexual abuse that she suffered was concerned that their attached to the Public Protection
for many years by the offender. relationship would be Unit of the Probation Service
compromised by the offender’s visited the brother on several
The victim’s mother, who was release to his home address, occasions to help clarify a way
married to the offender, was which he shared with her mother. forward for him that did not put
completely oblivious to the abuse either himself or the offender at
and maintained contact with him According to the victim, her risk. The Victim Liaison Officer
throughout his prison sentence. brother posed a risk to the and Probation Officer met with
He pleaded not guilty to the offender as he had threatened to victim and her mother to find a
offence so put his victim through kill him when he came out of way forward for them to
the harrowing experience of a prison for what he had done to his continue their contact in a safe
trial. The offender was convicted sister. The Victim Liaison Officer way that did not involve the
prior to the introduction of prepared a report based on her offender.
legislation placing a statutory duty meeting with the victim and
upon probation areas to contact shared this with the offender’s Conditions imposed on the
victims of serious, violent or Probation Officer, with her licence which affected the victim
sexual crimes where the offender permission. Parole was not included one of no contact with
receives a prison sentence of 12 being recommended by the home her either directly or indirectly,
months or more. Probation Officer as the offender but no exclusion zone condition
was in denial and had not was requested as the victim had
It was not until sometime later undertaken any offence-focused moved and did not want her new
that a contact letter was sent to work. But to the victim’s shock location made known to the
the victim, but she had moved early release was granted. offender. Mother has also
home and face to face contact maintained contact with the
with her was not finally achieved A MARC was convened urgently victim and her brother although
until two years after that. By this to deal with the issues of risk that the subject of the offender’s
time, the offender was being the offender posed once crimes remains an unresolved
assessed for early release under released. The issue of risk to the issue.
parole. The victim was shocked offender from the victim’s brother
to learn that the offender could be was also noted as was the
Statistics on offenders 2003/04
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 2003 and 31 March 2004.

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 MAPPP cases, the so-called ‘critical few’ of
offenders dealt with at the highest risk management level.

Category One: Registered sex offenders (RSOs)

No. of offenders

(a) The number of RSOs living in the Avon and Somerset area on 31 March 2004 671

(b) The number of RSOs per 100,000 head of population XXX

(c) The number of Sex Offenders having a registration requirement who were
cautioned or convicted for breaches of the requirement between 1 April 2003
and 31 March 2004 20

(d) The number of Sex Offenders Orders

(i) applied for 7
(ii) imposed by the courts 7
in the Avon and Somerset area between 1 April 2003 and 31 March 31 2004

(e) The number of interim Sex Offender Orders

(i) applied for 7
(ii) imposed by the courts 7
in the Avon and Somerset area between 1 April 2003 and 31 March 31 2004

Category Two: Violent offenders and other sexual offenders

No. of offenders

(a) The number of violent and other sexual offenders living in the Avon and
Somerset area between 1 April 2003 and 31 March 2004 347
Category Three: Other offenders

No. of offenders

(a) The number of other offenders living in the Avon and

Somerset area between 1 April 2003 and 31 March 2004 53

(a) The number of restraining orders imposed on any MAPPA offenders by the courts
in the Avon and Somerset area between 1 April 2003 and 31 March 2004 10

Category Four: MAPPA cases

No. of offenders

(a) How many MAPPA offenders in the three previous categories were managed through
the MAPPA system between 1 April 2003 and 31 March 2004

(i) Registered sex offenders 4

(ii) Violent offenders and other sexual offenders 1

(iii) Other offenders 2

(b) Of the cases managed by the MAPPA system between 1 April 2003 and
31 March 2004 how many, whilst still in MAPPA

(i) Were returned to custody for a breach of licence 1

(ii) Were returned to custody for a breach of a restraining order

or sex offender order 1

(iii) Were charged with a serious sexual or violent offence 0

The people who help shape the MAPPA process
Avon and Somerset Probation Area Address Phone

Jill Cotgrove 10 Canon Street 01823 346411

Assistant Chief Officer Taunton Somerset TA1 1SN

Mair Wise Bridewell Probation Office 0117 930 3720

MAPPA Co-ordinator Bridewell Street Bristol BS1 2JX

Avon and Somerset Police Address Phone

Steve Mortimore Police HQ 01275 816009

Assistant Chief Constable PO Box 37 Valley Road
Bristol BS20 8QJ

Trevor Simpson Police HQ 01275 816630

Detective Superintendent PO Box 37 Valley Road
Bristol BS20 8QJ

Victim Support Coordinators Address Phone

Ian Deane Area Office 01454 334420

Chief Executive Unit 5
19 West Walk
Bristol BS37 4AZ

Russell Kent 9a The Butts 01460 55535

Area Manager Blackdown View
Somerset TA19 0AY

Bristol 36 Deane Lane 0117 963 1114

Bristol BS3 1BS

North East Somerset Radstock Police Station 01761 432212

Wells Road
Bath BA23 3SG
Victim Support Coordinators Address Phone

North Woodspring PO Box 1013 01275 846892

Bristol BS48 2FG

South Gloucestershire C/o South Glos Council 01454 866548

244 Station Road
South Glos
BS37 4AF

Bath 12a Westgate Street 01225 444212


Weston Super Mare Weston Police Station 01934 638179

Walliscote Road
Weston Super Mare
BS23 1UU

Members of MAPPP Strategic Group Agency

Sally Churchyard B&NES Youth Offending Team

Tony May Somerset Social Services

Chris Knight 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

Ian Deane Victim Support Avondale

Mair Wise MAPP Co-ordinator

Anita Wiegel MAPP Administrator