Protecting the Public

Protecting the Public
Cambridgeshire Multi-Agency Public Protection Arrangements (MAPPA) Annual Report 2006/07
To Cambridgeshire Residents
As the independent Lay Advisors, who contribute to the Strategic Management Board of MAPPA, and do our best to understand the challenges and procedures for managing and improving how the public are protected against violent and sexual offences, we felt that our own – ordinary person’s - summary of this Annual Report might be helpful for the general reader. This is a new approach and we would like to hear whether you, as members of the public have found it helpful.
So here goes…
The MAPPA seek to protect the public through effective partnership working between police, probation and prison services by having clearly defined and strong procedures for sharing information. MAPPA applies to people who have already committed a violent or sexual crime (offenders). As Lay Advisors, we have come to appreciate that just locking up a relative or friend who has committed an offence, for the rest of their life, helps no-one in the long term: hence we think strengthening ways to prevent further offences is absolutely essential. Other organisations, such as Housing Associations, the Primary Care Trusts, Mental Health Teams, Youth Offending Services, Victim Support Services, Unitary, County and District Councils, etc have a significant contribution to make in preventing further sexual and violent offending by working in partnership. It is the positive impact of providing services such as housing and mental health support that can bring long term benefit to everyone by supporting offenders and helping them to live law abiding lives. This year’s Report talks about considerable achievements towards improving the way Cambridgeshire is preventing further crimes being carried out by these people. For example: • The restructuring of the Police into a new Public Protection Team with specialist staff working to improve procedures, closely linked to child abuse, domestic violence and internet sexual offending. Tightening up ways to assess how unsafe (how risky) it would be to let a person back into the community. These risk assessments may indicate that a person first needs to learn how to behave decently in the supportive community of the Probation run Approved Premises where they are continually assessed and have to successfully complete individualised courses or programmes to modify their behaviour.
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Do let us know if you have found this report helpful.
Dr Caroline Bolton-Smith Nusrat Choudhary
Contents
Foreword Introduction Key Achievements How the MAPPA operate locally Who’s who in MAPPA Case Histories Statistical Information Helping victims of Crime Strategic Management Board Lay Advisors Annex A Cambridgeshire MAPPA Business Plan 2006/7 Annex B Cambridgeshire MAPPA Business Plan 2007/8 Frequently Asked Questions Acronyms 2 3 4 6 7 11 14-15 16 17 18-20 21-23 24-26 27 28
Protecting the Public 2006/07
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Foreword
These are the sixth MAPPA Annual Reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the Government’s continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. On 13 June 2007, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the way the MAPPA work. I want to highlight two of them here. Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents will be able to register a child-protection interest in a named individual with whom they have a personal relationship and who has regular unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption that the offences will be disclosed to the parent. Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that robust performance management is in place. To achieve this, we intend to introduce new National Standards, which will ensure a consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the Standards. We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always room for improvement. I commend this Annual Report to you as an indication of the commitment, skills and achievements of the professionals, and Lay Advisors, in managing and monitoring this essential, often difficult area of business.
Maria Eagle MP
Parliamentary Under Secretary of State
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Introduction
Julie Spence
John Hughes
Adrian Smith
Working together to protect the public from known or potentially dangerous offenders remains our highest priority and we believe there is good evidence to show that the work carried out under Cambridgeshire’s Multi Agency Public Protection Arrangements (MAPPA) has greatly increased our ability to reduce re-offending by violent and sexual offenders. MAPPA provides a robust and clear framework within which the Police, Probation and Prison Services work closely together with a range of co-operating partner agencies to identify and assess those individuals seen as posing particular risks within our communities and to implement plans to actively minimise the risk of harm to others. Over this last period, there has been an increased emphasis on ensuring the protection of some of the more vulnerable groups in our communities, including victims of domestic violence, children and young people and the elderly. This report demonstrates that MAPPA has successfully managed over 700 serious sexual or violent offenders and it is our hope that such work will provide an increased confidence amongst the public that positive and active measures can be taken to better protect communities. At the same time, there will be no let up in the efforts of our agencies as we continue to improve and strengthen the operation of MAPPA. We are acutely aware that identifying and managing risky individuals is becoming an ever increasingly complex and demanding area of work. Indeed, we are already preparing for the implementation of the revised National MAPPA Operational Guidance in the autumn of 2007.
Julie Spence John Hughes Adrian Smith
Chief Constable, Cambridgeshire Constabulary Chief Officer, National Probation Service Cambridgeshire Eastern Area Manager, Prison Service
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Key Achievements
During the year 2006/7 there has been a further consolidation of the Multi Agency Public Protection Arrangements in Cambridgeshire. Workload has continued to increase as more offenders are brought under the risk management structure.
Police in Cambridgeshire restructured this area of work and formed a new Public Protection Team in September 2006. This brought the specialist police officers and support staff who have the remit to manage sex offenders and violent people under a central management structure headed up by Superintendent John Raine, in line with best practice advice. A newly created Sergeant’s post is now operational to ensure a high level of monitoring and support for the staff engaged in this difficult area of work. The Team works within a wider unit that also includes officers concerned with the investigation of child abuse, domestic violence and internet sex offending and will lead to a more co-ordinated approach. The MAPP Manager supported and cooperated with an in-depth inspection, carried out by the Cambridgeshire Constabulary Quality Assurance Team, into local police responsibilities under MAPPA. The Objectives of this piece of work were agreed to be: 1. To ascertain the views of partners as to the role and effectiveness of the Police in MAPPA. To assess the benefits of the performance management framework introduced for the Public Protection Department. To benchmark cases to ensure working practices adhere to national guidance and gauge good practice. the formulation of the risk management plan to determine how well the public are protected. The cases identified and reviewed are spotlighted in the next section of this report and demonstrate the extent to which MAPPA has developed in Cambridgeshire. The report concludes that: “In terms of MAPPA the inspection team discovered a commendable structure led by a very experienced MAPP Manager. Meetings revealed a commitment by all agencies involved to the effective sharing of information through good levels of attendance at meetings. The MAPPA national guidance is closely adhered to throughout the MAPPA processes employed by the force, so much so that the inspection team did not feel the need to attend other force MAPPA meetings.” The Probation Service in Cambridgeshire has continued to work in very active partnership with Police and cooperated fully with the Police Quality Inspection Process. It has itself been subject to a Home Office Inspection in relation to Offender Management and the recently published report noted that “the Cambridgeshire MAPPA were organised appropriately and the Probation Area was participating well.” It noted that MAPPA cases were allocated to a specialist team of Probation Officers who are experienced in working with high risk offenders. The establishment of this team, following a major reorganisation, is a key achievement this year for the Probation Service in relation to delivering its responsibilities under the MAPPA. This year has also seen much closer liaison between HMP Peterborough and MAPPA, with regular exchange of information on MAPPA offenders between the MAPP Manager and the Senior Probation Officer located in the Prison. The latter has also attended several meetings in relation to the most serious offenders and there has been a development programme for relevant staff in the Prison to attend MAPPA meetings as observers, to increase their commitment to the identification and exchange of information critical to public protection cases. This year has seen the first time that MAPPA has been underpinned by a Business Plan and the final report for
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The methodology included 1. Research into MAPPA guidance and other relevant local and national policies and procedures including other force working practices with a view to identifying good practice. Inviting MAPPA partners’ views via questionnaires and conducting follow-up interviews and attending relevant MAPPA meetings. Identifying a representative sample of MAPPA Level 3 cases (the most serious) and conducting a paper review of the process from the identification of them as Level 3 offenders, through to MAPPA Level 3 meetings and the formulation of the risk management plan. Identifying a representative sample of MAPPA Level 2 cases and conducting a paper review of the process and
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2006/7 – as well as the new plan for 2007/8 - can be seen at Annexe A and B at the end of this report. Notable achievements have been the setting up of a Quality Assurance subgroup of the Strategic Management Board, the development of a MAPPA Database to collate statistical information and the development of Media and Communications Policies. A second Lay Advisor has now been appointed to join the first and a full induction programme has been agreed. A policy has been agreed that sets out their role and the access that they will be given to the process and this is reproduced on Page 18 along with comments from both the Advisors. Cambridgeshire has two Youth Offending Service Teams – one for the unitary authority and one for the rest of Cambridgeshire. Both YOS Teams have been the focus of a Home Office Inspection this year and both have been given a clean bill of health in respect of their links with MAPPA. The HMI Report into Cambridgeshire YOS (May 2007) concludes that “The YOS worked well with the Multi Agency Public Protection Panels and with the Police to ensure that High Risk of Harm Cases were appropriately supervised .” This year has also seen the establishment of a separate but linked system of multi agency meetings focusing on domestic violence issues – known as MARAC (Multi-Agency Risk Assessment Conferencing). These meetings are particularly focused on the protection of the victims of domestic violence – and of any children within the family – but because of the obvious overlap with MAPPA offenders who have committed violent crimes, a protocol was needed to clarify which system should be utilised for which offenders. It is important that professionals come together to plan a coordinated approach to risk management but to do this effectively it is also important that they are not asked to spend too much time in meetings! An Operating Agreement has been drawn up between MAPPA and MARAC and the opening statement sums up the position. “The strengths of each meeting should be used to maximize the benefit for victims and the efficiency of the agencies involved. MAPPA is best able to generate the response required to manage high risk of harm offenders over a period of time and is able to protect a range of victims. It has considerable authority in mobilising the resources of the key agencies.
The new courts at Huntingdon
MARAC may be quicker to respond but short term in focus, its membership includes those most likely to meet the immediate needs of the victim and it may have stronger links with the line management of Children's Social Care. It is necessary to avoid duplication and confusion and to work in the most effective way to protect victims.”
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How the MAPPA operates locally
The MAPPA in Cambridgeshire has been developed through the appointment of a MAPP Manager, a Senior Probation Officer, who was seconded to work at Police Headquarters. The location of the MAPP Manager with the Police has been a major success in developing information sharing between Police and Probation.
The post of the MAPP Manager is jointly funded by the two agencies, as is the position of two MAPPA Coordinators. The latter support the MAPP Manager by producing high quality minutes and risk management plans. Formal meetings are held regularly in each of the Police Divisions. The Manager chairs the meetings where members concentrate on offenders living in the local community, or about to be released from prison. These meetings are called Local Risk Management Meetings and are at “Level Two”. Level Three meetings for the “critical few” are called on an occasional basis when cases arise. In 2006/7 only four offenders were managed for a time at this level. This is in line with Home Office advice that only the “critical few” should be referred to the Level Three Multi Agency Public Protection Panel. In practice, therefore, MAPPA is a three level system that ensures that the most dangerous offenders receive the greatest degree of scrutiny and oversight.
The three levels
Level One: Offenders at this level are those assessed as
posing a low or medium risk of re-offending. They are likely to be managed by one agency without actively or significantly involving other agencies. A typical Level One case would be a man charged with a small number of cases of downloading child pornography on the internet. Living alone and with a stable work history he is given a three year Community Order with a condition of attendance on a Sex Offender Treatment Programme. Or: A young man who serves an 18 month prison sentence for an offence of affray. He has alcohol abuse issues and as part of his licence to the Probation Service he will have conditions to attend a “Think First” programme and for sessions with the Drug and Alcohol Team.
Or: A man is charged with an offence of Wounding against his long term partner. There is a history of escalating domestic violence incidents and breaches of injunctions and restraining orders. An Approved Premises release with licence conditions, including exclusion zones is needed and close liaison between Probation and domestic violence Police Officers will be required to ensure the safety of his victim.
Level Three: The ‘critical few’ level three offenders are
assessed as being at high or very high risk of causing serious harm and are managed by a range of agencies sitting on the Multi Agency Public Protection Panel. This small group presents risks that can only be managed by a plan that requires close cooperation at senior level or where the case is exceptional because of media scrutiny and/or public interest in the management of the case. A typical Level Three case would have an extensive history of sexual assaults on children with predatory activity and a range of grooming methods. They have a mental health diagnosis of depression and anxiety and need medication and monitoring to ensure their mental health remains stable. They have through sex offender treatment programmes but continue to exhibit distorted thinking and “poor me” attitudes. They will be initially resident in Approved Premises and very difficult to move safely into independent accommodation. Or: Diagnosed with a psychopathic personality disorder this typical Level Three Offender has committed many violent offences and is an immediate risk to the public and to staff. He is heavily involved in drug supply and acquisitive crime. He has no conscience and is unpredictable.
Level Two: The management of offenders in this category is handled at Local Risk Management Meetings where the active involvement of more than one agency is required in managing the risk. The level of risk is more complex than Level One, but does not require the intensive supervision of the Multi-Agency Public Protection Panel (MAPPP).
A typical Level Two case would be a man charged with a number of indecent assaults against his grandchildren. His conviction reveals a history of earlier allegations and splits between family members. He denies the offences and wants to return home to the family – the involvement of Social Services alongside Probation (who will supervise the licence) and Police (who have responsibility for him as a Registered Sex Offender) is essential.
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Who’s who in the MAPPA
Protecting the Public from sexual and violent offenders is best achieved by effective joint working between all the relevant statutory and voluntary bodies. The private sector can also have a role to play. The MAPPA is headed up by the Responsible Authority Members: Cambridgeshire Police, Probation Service and the Prison Service.
CAMBRIDGESHIRE POLICE
Responsible Authority Member, Detective Supt John Raine The Cambridgeshire Constabulary contributes to the MAPPA through: • Investigating crimes that come to light through the information sharing activities of the MAPPA and taking appropriate action. Having dedicated Public Protection Officers on each of the three Divisions who focus on public protection and the management of high risk offenders. Using a nationally agreed Risk Assessment Tool (Risk Matrix 2000) to prioritise Registered Sex Offenders and visit them according to agreed policy. Having a dedicated officer holding the Constabulary responsibility for the National Register of Violent and Sex Offenders (ViSOR) and locating this officer with the MAPPP Manager to ensure prompt and effective information sharing. By the Assistant Chief Constable chairing the Strategic Management Board, and jointly funding the post of the MAPPP Manager and the MAPPA Coordinators with the Probation Service.
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Supervision and management of offenders placed on community orders, including action to ‘breach’, or in other words, to return an offender to court or prison who has failed to comply. Delivery of Specialist Accredited Programmes to address offending behaviour, including the nationally recognised “Thames Valley” Sex Offender Treatment Programme. Work with prisoners before their release, and the supervision and management of offenders on licence living in the community, including taking necessary action to recall individuals back to prison. Provision of accommodation in National Probation Service Approved Premises for offenders who need an enhanced level of supervision.
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NATIONAL PROBATION SERVICE, CAMBRIDGESHIRE
Responsible Authority Member, Matthew Ryder, Assistant Chief Officer The National Probation Service, Cambridgeshire, makes a wide ranging contribution to the work of the MAPPA. This includes the: • Initial assessment of offenders who come before the courts for offences of sex or violence. Probation staff use a standard assessment tool, the Offender Assessment System (OASys). This assessment process also enables the report writer to determine an offender’s suitability to attend a Sex Offender Treatment Programme.
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PRISON SERVICE
Responsible Authority Member, Steve Rodford, Governor, HMP Whitemoor. The Prison Service, alongside Police and Probation, is also part of the Responsible Authority. While offenders are serving their custodial sentences, the Prison Service also works with them to address the causes of their offending behaviour; and undertakes further programmes of work to assist their successful resettlement back into the community.
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Who’s who in the MAPPA continued
A number of measures have been put in place in prisons to ensure that this will be effective and has resulted in: • Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with Police and Probation colleagues All relevant risk management information being provided to multi agency meetings which help plan an offender’s release At least three months notification to Police and Probation of the expected release dates of those offenders who have been referred to the Multi-Agency Public Protection Panel (MAPP Level 3), and at least six weeks notification of those being managed at Level Two risk meetings No changes to release dates or arrangements being made without prior consultation with Police and Probation
CHILD PROTECTION
Child Protection is a lead responsibility for the Councils. Their responsibilities are undertaken in partnership with the agencies that make up the Cambridgeshire and Peterborough Local Safeguarding Children Boards. These responsibilities include: • Undertaking enquiries with the Police into allegations of abuse of children Organising multi-agency child protection conferences Providing key workers for all children who have a Child Protection Plan Safeguarding and promoting the welfare of children in need Ensuring with Local Safeguarding Children Board partners that the procedures for safeguarding the welfare of children are up to date and effective Promoting “Keeping Children Safe” work in all child care settings e.g. schools, pre-school settings, after school clubs Ensuring safe recruitment practices are implemented across the councils and promoted in all childcare settings.
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The Director of HMP Peterborough – a private prison – has now joined the Strategic Management Board. A number of other agencies are under the “Duty to Cooperate” established in the Criminal Justice Act 2003 and have signed a Memorandum of Understanding:
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CAMBRIDGESHIRE COUNTY COUNCIL AND PETERBOROUGH CITY COUNCIL CHILDREN’S SERVICES
The Cambridgeshire MAPPA has links to the Cambridgeshire County Council and Peterborough City Council. Both councils are committed to creating safer communities by working in partnership with statutory authorities. Children’s Services in both authorities carry out serious case reviews in accordance with the provisions laid down in Working Together (DCSF 2006) Children’s Services in both areas also provide a comprehensive Children’s Protection Training Programme for practitioners whose work involves the safeguarding of children’s welfare.
There is close collaboration between Childrens’ and Education Services and ever closer working links with the MAPPA. The Government advice “Working Together to Safeguard Children” 2006 emphasises the role of the MAPPA and other processes for managing individuals who pose a risk of harm to children, including those where there are allegations but no convictions.
PROTECTION OF VULNERABLE ADULTS FROM ABUSE
Cambridgeshire County Council Adult Support Services and the Greater Peterborough Primary Care Partnership have the lead role in ensuring that statutory agencies work in partnership to protect vulnerable adults from abuse. The Cambridgeshire and Peterborough Vulnerable Adult Protection Committees bring together representatives from the statutory, voluntary and private sectors responsible for working with and providing services for adults. The responsibilities of the committees include:
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To develop, implement and monitor local policies, guidance and procedures for inter-agency work. To improve ways of working in the light of national and local experience and research. To improve the quality of adult protection work through further development of training opportunities and programmes. To ensure agreement and understanding across agencies about operational definitions and thresholds for intervention. To audit and evaluate how well local services work together to protect vulnerable adults from abuse.
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prescriptions for medication, or helping with quick access to psychiatric assessment. Work on a multi-agency basis is also targeting the sizeable group of offenders who exhibit worrying, and sometimes dangerous behaviour, who “fall between” the criminal justice and the mental health system. Primary Care Trusts (PCTs) are also signatories to the Memorandum of Understanding. MAPPA ensures information is sent to GPs as necessary to inform them of particular risks associated with their patients. There is very good communication between the local GP practice and those responsible for offenders in Approved Premises provision. Kneesworth Hospital is an important facility that although run by the Private Sector has patients with a wide range of disorders whose stay is funded by the Department of Health or Funding Authorities. There is a ward specialising in the treatment of people with Personality Disorders. Good liaison between the hospital and community agencies is vital to monitor offenders treated and subsequently discharged.
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YOUTH OFFENDING SERVICES
These services operate in Peterborough and Cambridgeshire and have the primary aim of preventing youth offending amongst 10 – 17 year olds. The Youth Offending Services are statutory partnerships led by the local authorities and involve a multi-agency approach, which includes the Police, Health, Probation and voluntary sector services. Programmes of supervision and support are developed and delivered to offenders in the community and in young offender institutes. The youth offending services lead in developing strategies with other agencies such as schools and children’s social care to prevent younger children getting involved in crime. Only a few young offenders will come to the attention of the risk management arrangements, but those that do, will have difficult and complex needs.
Primary Care Trusts for Huntingdonshire, Greater Peterborough, East Cambridgeshire & Fenland, Cambridge City & South Cambs District. Cambridgeshire & Peterborough Mental Health Partnership NHS Trust. Kneesworth Hospital (Private Sector)
STATUTORY AND VOLUNTARY HOUSING
One of the most difficult and challenging issues surrounding public protection is the provision of accommodation for released prisoners. The number of statutory and voluntary housing agencies that have signed up to the MAPPA Memorandum of Understanding illustrates the importance of finding suitable accommodation. Many serious offenders are initially released to National Probation Service Approved Premises. These places are limited and in high demand. Offenders cannot stay in Approved Premises indefinitely, and will eventually move on to further suitable housing at the appropriate time. A great deal of work is undertaken to place offenders as sensitively and safely as possible in local accommodation. Housing agencies rely on an individual’s risk assessment report and other information to help them make informed and responsible decisions.
Peterborough Youth Offending Service Cambridgeshire Youth Offending Service HEALTH SERVICES
The involvement of health care professionals is highly beneficial in the work of the MAPPA. The Cambridgeshire & Peterborough Mental Health Partnership NHS Trust signed up to the original protocol and signed the Memorandum of Understanding. A local Community Psychiatric Nurse (CPN) or Psychiatric Social Worker attends the Local Risk Management Meetings (LRMM) in each of the Police areas. The involvement of the CPN is invaluable in ensuring there are good practical arrangements for newly released prisoners to receive their
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Who’s who in the MAPPA continued
Supporting People legislation has created opportunities to provide accommodation support through workers that will keep in regular touch with offenders in community provision. These workers provide another way of monitoring offenders’ activities and helping them lead responsible lives.
They also work closely within the Child Protection system and with many statutory and non-statutory partners. They provide services to the Probation Service, Peterborough Youth Offending Service and Cambridgeshire Youth Offending Service.
Peterborough City Council Housing Department Cambridge City Council Housing Department East Cambridgeshire District Council Housing Department South Cambridgeshire District Council Housing Department Fenland District Council Housing Department Huntingdon District Council Housing Department Hereward Housing Association Ltd Luminus Group Muir Housing Nene Housing Society Axiom Housing Society Warden Housing Association Cross Keys Association Granta Housing Association
Turning Point
Turning Point is a leading national charity that helps the socially excluded build more independent lives. The organisation provides locally tailored services helping people recover from the effects of substance misuse and provides care and support for individuals with mental health problems or learning disabilities. There are projects in Cambridge and in Huntingdon, and since 1998 a service has been provided for the whole of Southern Cambridgeshire. Both projects work closely with and alongside statutory agencies, assisting them in the discharge of their responsibilities under the Mental Health Act and the NHS and Community Care Act. They also have a history of liaison with the Probation Service, working with offenders who have mental health problems.
Bridgegate and Turning Point have both signed up to the original protocol. The two agencies have agreed to work on a case by case basis with the MAPPA. Other Organisations
Drinksense and Cambridge Cyrenians have become involved at an individual case level by providing support for individuals that contributes to risk management plans.
OTHER ‘DUTY TO COOPERATE AGENCIES’ WHO ARE REPRESENTED ON THE STRATEGIC MANAGEMENT BOARD ARE Serco Monitoring Services Jobcentre Plus
A number of voluntary agencies have also signed the memorandum of understanding and work closely with other MAPPA partners on a case by case basis
Bridgegate
Bridgegate provides advice, information and counselling to drug users, concerned others and professionals. They have specialist projects for young people and drug using parents. Bridgegate also manages the Communities against Drugs Project that works closely with the Police and communities.
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Case histories
These cases were reviewed under the Quality Assurance Procedure referred to in the Key Achievements section of the report. For the first time we can show an objective assessment of the value of MAPPA activity by quoting from the Quality Assurance Report.
PERSON A
Background
A 28 year old man with over 60 convictions for burglary, theft, possession of drugs, breach of licence and various vehicle offences. Convicted in 2002 for a common assault on a child/young person he has been managed by MAPPA for five years. During this time the offender was sent to prison five times for convictions and breaches and MAPPA continued to hold meetings and share information throughout, elevating the man from a Level 2 to Level 3 MAPPA offender.
Information secured from prison interdepartmental management team meetings aided release plans and fuelled appropriate accommodation discussions Police analysts gathered information about visitors and correspondence and telephone calls made and received.
Outcome
Approved Premises accommodation was secured with appropriate licence conditions Regular Probation reports provided an up-to-date account of movements and state of mind which led to recall to prison whilst in Approved Premises. MAPP Level 3 meetings continue to discuss and manage the offender.
Assessment
The offender was rated in 2002 as a high risk to Police Officers and to witnesses, particularly his ex-partner and in a psychiatric report, the offender was described as having a personality disorder and psychopathic tendencies who is capable of killing. A MAPPA Risk Management Plan was put in place to cater for the needs of the community and the offender.
PERSON B
Background
A 36 year old man convicted for meeting a girl under 16 following sexual grooming following a five year registration on the Sex Offender Register. Offender was sentenced in 2005 for 18mths in prison and had a Sex Offender Prevention Order (SOPO) for 11 years with 5 conditions all relating to any female under the age of 16. He was referred to MAPPA in 2006 by Probation, one month ahead of his release date.
Action
In terms of protecting the public: Police visits were made to ex-partner and offender’s family to investigate threats and provide information on release dates and plans Jackpot alarm (emergency call out system) fitted at ex-partner’s house. Injunction obtained by the ex-partner and licence conditions secured Evidence gathering of ex-partner’s children’s whereabouts Police analysts drew up a list of all potential victims and risk issues were addressed accordingly. In terms of sharing information: Information received from Police visits to relatives about drug use and access to firearms led to arrests for breaches
Assessment
The referral form refers to an increase in risk from medium to high after a discussion with the MAPP Manager. A review of the RM 2000 (static assessment tool) and subsequent discussion between the inspection team and an offender manager revealed that the
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Case histories continued
assessment had been incorrectly calculated and should in fact have been a high risk assessment. A MAPPA Risk Management Plan was put in place to cater for the needs of the community and the offender and he was registered as a Level 2 case:
Details of car linked to ANPR (Automatic Number Plate Recognition) system to track movements Police and Probation visits revealed that the offender had bought a people carrier and had picked up his partner’s children in it. This constituted a breach of the SOPO and Police have arrested and charged the offender. MAPPA Level 2 meetings continue to discuss and manage the offender.
Action
In terms of protecting the public: Social Service involvement with offender’s partner’s child resulted in a Child Protection Conference taking place and a Child in Need plan being drawn up Police visits to new partner to gain information about offender’s conduct with her children Referral made to Social Care in terms of offender’s new partner’s three children also resulted in a Child Protection Conference taking place which was attended by Police and Probation. Information disclosed to offender’s family of offences Police investigated reports about threats made by the offender towards his family. In terms of sharing information: Social Services updating MAPPA about their involvement with the children Approved Premises staff informing the meetings of the offender regularly pushing the boundaries including missing one-to-one meetings with his key worker and accruing rent arrears Regular Police and Probation reports provided an up-todate account of offender’s movements and plans particularly in relation to wanting to attend a relative’s wedding where children would be present and progress reports about the offender’s attendance on the Sex Offender Treatment Programme.
PERSON C
Background
A 48 year old man convicted in 2002 for 5 years with a 10 year extended supervision order for three counts of indecent assault on children under 14, six counts of gross indecency on children under 14 and three offences to be taken into consideration. Previous convictions including five counts of indecent assault and gross indecency, four on a child under the age of 14 resulted in Probation Orders and a four year prison sentence.
Assessment
An expert assessed the offender as being high risk of reoffending and a high risk of harming children with a target group identified as young boys between eight and ten years old. The case was referred to Cambridgeshire MAPPA via two other areas. A MAPPA Risk Management Plan was put in place to cater for the needs of the community and the offender and he was registered as a Level 3 case:
Action
In terms of protecting the public: Regular contact with victim liaison in the area the offences took place to inform victims of offender’s arrangements in terms of sharing information: Information gathered from other area MAPPAs including other Approved Premises accommodation to inform discussion. Details about the offender’s progress on the Relapse Prevention Programme and medication.
Outcome
Approved Premises accommodation was secured for the offender with appropriate conditions. Police informing offender that to attend a relative’s wedding would constitute a breach of his SOPO
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Police and Probation visits revealed the offender’s contradictory behaviour and evidence of buying things to prevent boredom. This was of particular importance because of the link identified between the offender’s boredom and his propensity to re-offend. Approved Premises staff provided information of missing curfews and inappropriate associations.
Action
In terms of protecting the public: Domestic Violence Officer visited family and as a result the Sanctuary Project (solid doors in house and emergency alarm and telephone fitted) was put in place at the family home Exclusion zone and non-contact conditions were secured Police briefing prior to release Social Services carried out an assessment and CAFCASS (Children and Family Court Advisory Services) became involved. In terms of sharing the information: Security Information reports shared by the prison provided information about firearms and potential drug trafficking Regular probation reports provided an up-to-date account of compliance with approved premises conditions and information received about attempts to contact his family through third parties Probation and prison visits provided further information about drug misuse and positive drug tests Information shared by approved premises staff led to offender being recalled for threatening a fellow resident.
Outcome
Despite being registered as a Level 3 offender, the offender was additionally discussed at Level 2 meetings for a considerable time to track movements and the offender’s state of mind. Approved Premises accommodation was secured including curfew conditions Licence conditions were extended to prevent the offender using a computer and WAP mobile Police Subject Profile created by intelligence analysts to inform the need for surveillance Police surveillance used on more than one occasion to track offender’s movements at weekends MAPPA Level 3 meetings continue to discuss and manage the offender.
PERSON D
Background
A 48 year old male with convictions dating back over 30 years for burglaries, thefts, actual bodily harm, possession of offensive weapon, criminal damage, driving offences and threatening behaviour. He was referred to the MAPP Manager in 2006 ahead of his release after serving three years for possession of a firearm with intent to cause fear of violence. His victim was his ex-wife and they have four children.
Outcome
Accommodation was discussed in detail which led to Approved Premises accommodation being secured with licence conditions attached Regular Police and Probation visits managed the offender’s movements Drug misuse was identified and monitored Prior to the threat made to a fellow resident, no other offences had been committed Following the recall, the offender was released and is staying with a relative until appropriate housing can be secured. MAPPA meetings continue to discuss and manage the offender.
Assessment
The offender has a history of drug misuse and this was heavily linked to offences committed. A MAPPA Risk Management Plan was put in place to cater for needs of the community and the offender. He was assessed as needing management at Level Two Protecting the Public 2006/07
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STATISTICS – what do they show about the work of the MAPPA in Cambridgeshire?
The four case examples in this report give a snapshot of how offenders are monitored through the MAPPA. They show how practical and focused the work has to be, and how quickly actions are taken. The number of offenders dealt with is predicted to rise year on year, in line with the overall growth of the number of registered sex offenders. Many sex offenders are registered for life so there will be a cumulative effect to the total. The following section of the report gives a detailed breakdown between cases managed at Level Two (the Local Risk Management Meeting) and Level Three (the Multi Agency Public Protection Panel).
This year the figures show that the number of Registered Sex Offenders living in Cambridgeshire, who all come under the MAPPA, stands at 407 as opposed to last year’s total of 387. In addition to Registered Sex Offenders we report on the number of other offenders who had a 12 month plus sentence for a sexual or violent offence, and who were released into the community, and this year the figure was 312 – compared to the previous year (289) after a significant jump in this category the previous year. There were 31 “other offenders” identified by the agencies as having a conviction for an offence that indicated they were capable of causing serious harm, and referred to the Level Two Meetings. In total there were 750 offenders (as opposed to 702 in the previous year) who came under the totality of the MAPPA of whom 164 (up from 117 last year) - were considered to pose a significant risk of harm that merited referral to the formal procedures for discussion and risk management. Nearly all of these offenders were dealt with at Level Two. There were again only four Level Three cases. It is difficult to be certain why there has been a significant increase in cases managed at level two – it is the violent cases that have seen the biggest percentage increase and this is possibly connected to the greater priority that is now being given to Domestic Violence Cases. The statistics show that 18 Registered Sex Offenders were convicted for breach of their requirement to register. They also demonstrate that recall is used to remove offenders from the community for behaviour that has breached their licence conditions – such as non compliance with a hostel curfew. On 1st May 2004 Sex Offender Prevention Orders (SOPOs) were introduced which replaced the previous Sex Offender Orders. These can be used to set specific conditions to prohibit behaviours that in the past have lead to offending. Twenty three of these orders were applied for and twenty full orders obtained – again an increase on the previous year. Police can also now apply for Risk of Sexual Harm Orders (a civil order that aims to restrict the behaviour of those involved in grooming children for sexual activity) and the first attempt was made to obtain one in Cambridgeshire this year – unfortunately the application could not be progressed after legal advice. In the last year 30 offenders out of the 164 managed through level two or three of MAPPA were recalled – and only one person was charged with a serious sexual or violent offence (his case has not yet come to trial and the outcome is uncertain). Our aim is to manage risk as actively as possible, and to remove offenders from the community when justified to prevent the commission of further offences. Overall the work of the MAPPA continues to make a very important contribution to “Keeping Communities Safe”.
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Statistical information
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i) The number of RSOs living in the Cambridgeshire Area on 31st March 2007. By Division (Basic Command Unit) Northern 172, Central 122, Southern 113 a) The number of RSOs per 100'000 head of population The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2005 and 31st March 2006 The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in your Area between 1st April 2005 and 31st March 2006 The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in your Area between 1st April 2005 and 31st March 2006 The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2006 and 31st March 2007 407
56 18 23 3 20 1 0 0 0 0
ii) iii)
iv)
v)
2. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS) vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in your Area between 1st April 2005 and 31st March 2006 302
3. Category 3 MAPPA offenders: Other Offenders vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1st April 2005 and 31st March 2006. 16
4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management) (viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (1)- RSOs, (2)- V&O and (3)- OthO above) have been managed through the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2005 and 31st March 2006. Level 3 Registered Sex Offenders 2 Violent and Other Sex Offenders 2 Other Offenders 0 (ix) (a) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2005 and 31st March 2006 how many, whilst managed at that level: Were returned to custody for a breach of licence? Level 3 1 (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? Were charged with a serious sexual or violent offence? Level 3 0 Level 3 0 Level 2 29 Level 2 4 Level 2 1
Level 2 75 69 16
(c)
For these purposes a serious sexual and violent offence is one of the following (i.e. the same offences as used to trigger reporting in the National Probation Service as a ‘serious further offence’): a Murder; b Attempted murder; c Arson (where there is an intent to endanger life); d Manslaughter; e Rape; f Kidnap/abduction or attempted kidnap/abduction. g Any other very serious violent or very serious sexual offence, armed robbery (defined as robbery involving a firearm), assault with a deadly weapon or hostage taking. h Any other violent or sexual offence where the offender/ offence is likely to attract significant media interest or which raises wider issues of national interest.
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Helping victims of crime
The Criminal Justice and Court Services Act 2000, which set up the MAPPA, also consolidated earlier developments concerning victims of crime. The Probation Service offers face-to-face contact with a member of the Service to the victims of all those sentenced to 12 months or more for crimes of sex or violence.
The purpose of the Probation Service's work with victims is to: • Provide victims with general information about criminal justice and custodial processes. Consult victims about whether they wish to provide information relevant to the consideration of any requirements or licence conditions placed upon the offender on his or her release from custody. Consult with victims about whether they wish to be informed about those licence conditions. Transmit any such information put forward by victims to the authority considering the offender's conditions of release. • Inform the victim of any conditions or requirements attached to the offender's release, which are relevant to contact with the victim or their family, and any other information.
•
The decision to engage with the Probation Service and, at what stage, is made by the victim. One of the most important tasks involving the MAPPA is to ensure that past victims are not put at risk again when an offender is released. Victim issues are featured as part of every risk management plan.
•
•
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Strategic Management Board (SMB)
The Strategic Management Board of the MAPPA meets on a quarterly basis. The meeting is attended by the Responsible Authority Members and Duty to Cooperate Members, and others, and is chaired by the Assistant Chief Constable for Cambridgeshire Constabulary, Mark Hopkins. The function of the Board is to: a) Monitor (on at least a quarterly basis) and evaluate the operation of the MAPPA, particularly that of the MAPPPs; b) Establish connections with other public protection arrangements such as Area Child Protection Committees, local Crime and Disorder Partnerships and local Criminal Justice Boards that support the operation work at the MAPPA; c) Prepare and publish the Annual Report and promote the work of MAPPA in the area; A member of the Strategic Management Board, Nigel Finney who represents Luminus, a significant Housing Provider, was asked to provide his view of MAPPA from his position on the Board. He writes: “The processes within MAPPA are, by their very nature, complex and rely heavily on close cooperation between a variety of agencies. Within this the ability to source secure, sustainable and affordable housing for a particular offender can be significant to the success of the MAPPA arrangements. It is for this reason that I initially volunteered as a representative of Registered Social Landlords within Cambridgeshire to sit on the Strategic Management Board. During the past few years I have seen the MAPPA processes within Cambridgeshire develop and mature under the leadership of the Strategic Management Board. It has been gratifying to see the emphasis placed on risk management as well as the willingness to cooperate between a variety of agencies within the County under the MAPPA banner. Those of us working in the social housing sector within Cambridgeshire should derive a significant degree of comfort when dealing with offenders through the MAPPA process since they will have assurance that risks have been properly identified and managed and that the transition into accommodation within the community will be managed carefully. It is for this reason that I hope my colleagues within the housing sector continue to fully engage with the MAPPA process and play their part in the successful management of offenders.”
d) Plan the longer term development of the MAPPA in the light of regular reviews of the arrangements and with respect to legislative and wider criminal justice changes; e) Identify and plan how to meet common training and developmental needs of those working in the MAPPA.
Membership of the Strategic Management Board includes Senior Managers from Health, Mental Health Services, Housing, Adult Social Care Services, Children’s Services, Job Centre Plus, Electronic Monitoring Services and Youth Offending Services as well as Police, Probation and the Prison Service. We also have representatives from Education and from Victim Support and several of the voluntary agencies and now have two Lay Advisors.
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Lay Advisors
During 2006/7 the Strategic Management Board agreed a formal position on the Role of the Lay Advisor in Cambridgeshire which builds on the Guidance issued by the Home Office but sets out what a person fulfilling this role for MAPPA can expect in practice.
Lay Advisor Role
Under the Criminal Justice Act 2003, it is made clear that Lay Advisors are to be appointed to assist in the MAPPA review functions and not the operational decision-making. It is important that Lay Advisors are able to operate as fully fledged members of the local Strategic Management Board (SMB). Lay Advisors are not expected to become ‘experts’, rather they should be helped to become familiar with the workings of MAPPA and given appropriate reading to get up to speed with local MAPPA working structures and policies. Lay Advisors would be expected to take on the role of ‘Critical Friend’ on the SMB, e.g. acting as an informed observer and asking questions that professionals closely involved in MAPPA might not think to ask. They can bring their own perspective as a member of the local community, but there is no requirement on them to act as a representative of the community in the way that an elected councillor might do. Responsibility for the selection of Lay Advisors rests with the local MAPP Responsible Authority (RA), advised and supported by the Public Protection Unit in the National Offender Management Service (NOMS). The RA is required to nominate the individual Lay Advisors it wishes to appoint by notifying the Public Protection Unit within NOMS Headquarters in London of new appointments. Appointments as Lay Advisors are ratified by the Secretary of State, who will write to both the individuals concerned and the local RA to confirm such appointments. The appointment is normally for four years. The Cambridgeshire RA should ensure that a suitable induction is given to all newly appointed Lay Advisors once their appointment is confirmed. This will include visits to key MAPPA personnel within Probation and Police and other relevant ‘Duty to Co-operate’ Partners as required. As a minimum, the induction should include:• Initial meeting with MAPP Manager giving an introduction to the scheme and to agree outline of induction
•
Opportunity to shadow one of the Police Officers working with MAPPA, e.g. Police Sex Offender Worker Visit to the Cambridgeshire Probation Service Public Protection Team Visit to a Cambridgeshire prison establishment, by arrangement with the Governor at HMP Whitemoor Meeting with MAPP RA representatives Visit to Local Authority-based Youth Offending Service
•
•
• •
Visits to other relevant strategic partner services will be arranged as and when necessary and/or desirable, following an induction review meeting with the local MAPP Manager after six months in post. Soon after appointment, and within three months of taking up their role, the Lay Advisors would also have a meeting with the Cambridgeshire Probation Area Training Officer to review any training and/or support needs. Training needs should be reviewed every 12 months through this contact. Other ways of supporting the Lay Advisors would include:• bi-annual meetings with the Probation Lead Officer for MAPPA attendance by Lay Advisors at one RA meeting per year provision of relevant reading material, e.g. Inspection Reports, Criminal Justice guides, Research findings opportunity to attend relevant training for Lay Advisors
• •
•
In Cambridgeshire, it is recognised that the Lay Advisor has a particular role in helping to review and monitor the effectiveness of MAPPA functions and processes. With this in mind, it is entirely appropriate for Lay Advisors to attend a certain number of Level 2 and Level 3 MAPPA Case Reviews in order both to improve their understanding about local working structures and to assist with the evaluation of these structures. As a rule, there would be an agreement to attend up to eight Level 2 and/or Level 3 case reviews per year. Attendance at such meetings would be agreed in advance with the MAPP Manager, on the understanding that it would not be appropriate for the Lay Advisor to play an active part
18
in the case discussion. However, there would be the opportunity to attend a ‘wash-up’ or review meeting with the local MAPP Manager after the case review to flag up any observations and/or concerns. Lay Advisors would be invited to submit observations to the RA via the MAPP Manager, usually in written form. Other contributions that Lay Advisors can offer would include:• assisting the MAPP Manager and RA with quality assurance of MAPP case reviews, including participation in the local quality management sub-group of the SMB; contributions to the Local MAPPA Annual Report; helping with the analysis of MAPPA data.”
the role of micronutrients in ageing (bone health, cognitive function). She recently made a change in career direction into the Voluntary and Community Sector, where she worked for the Community Fund branch of the Big Lottery Fund as a Grants Officer, before becoming the Chief Executive Officer for the charity Care Network. She has experience and interest in working at the strategic level, this being one of the reasons she volunteered for the Lay Advisor role. She is also very environmentally aware and over the years has participated in many conservation/wildlife volunteer projects. Nusrat Choudhary has recently been appointed as a second Lay Advisor – this is what she has to say about her background and experience. “I have been working at Gladstone Children Service (GCC) for almost 6 years, I work with children and their families that are from a disadvantaged area and are facing difficulties in life. I am part time self employed and have my own Counselling Practice and also work on a free lance base for agencies such as Family Care and Relate, the relationship people.
• •
The first of two Lay Advisors we recruited to the MAPPA is Dr Caroline Bolton-Smith. Caroline worked for 20 years as a research scientist/Lecturer/Senior Lecturer (Universities of Southampton, Nottingham, Dundee, and MRC-HNR in Cambridge) in the nutritional biochemistry and public health arena, where she focused on the role of interactions between nutrition and lifestyle on the inequalities of health, plus work on obesity and most recently a focus on
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Lay advisors continued
I work and carry out assessment and observe parents/carers who have had their children removed from their care and are in foster care or possibly up for permanent adoption. My role is to support parents/carers in this situation and facilitate them in parenting and also to work and reflect on past learnt behaviour in order to best decide the future of the child and make recommendations provided through reports to the local authorities. Part of my role involves me working with partner agencies and working closely with parents/carers to identify and set up services that will target hard to reach families. I have good experience of community work I have fully grasped a good knowledge of the Criminal Justice system and experience of working with clients and identifying their needs as I have counselled inmates in a prison setting and have mentored young people from the local Youth Offending Service. I have always been passionate in working to support people and therefore this opportunity encouraged me to apply for the role as a Lay Advisor. I feel that I have the confidence to express my views in a professional capacity and in recognising that I am at an advantage in being able to share my experience of working with people from different backgrounds and settings and I can recognise what issues are raised from a victim and perpetrator’s side, and how this affects communities. I believe that my experience will make a positive contribution and I will have an impact on the effectiveness of the services. Throughout my role I have been skilled to look at things from both angles and have balanced views on finding ways that work to the best to benefit the organisation’s and the service user’s targets and goals. Nusrat has summed up her experience of being a Lay Advisor so far: “As a newly appointed Lay Advisor I attended the National Lay Advisor Conference in Leeds, where I got the opportunity to meet Caroline Bolton-Smith the existing Lay Advisor for Cambridgeshire for the first time, and also met many others as well as Strategic Management Board Members.
This weekend gave me an overview and highlighted to me what views were, on a national level, from Lay Advisors but at the same time gave me a clear picture in questioning what exactly my role is and what have been the struggles. I was then given the opportunity to start my induction and I got the opportunity to attend on-going relevant training and attend level 2 and 3 meetings. I have been shadowing staff at Probation in the support services and have been given information, and a useful website, to further my knowledge. I have sat in the Peterborough Magistrate is Court as an observer to learn more about court policies and procedures and am due to visit the local Prison and the Police support services soon and have attended one Strategic Management Board meeting. Its only fair to say that so far, it has been great, in what I have been involved in and have been supported and guided throughout my role.” If you want to contact Caroline Bolton-Smith or Nusrat Choudhary to express your views about MAPPA please write to either at: C/o National Probation Service, Cambridgeshire 1 Brooklands Ave Cambridge CB2 8BB
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Annex A:
MULTI-AGENCY PUBLIC PROTECTION ARRANGEMENTS – CAMBRIDGESHIRE BUSINESS PLAN 2006-2007
1. MAPPA Development Strategy
STRATEGIC AIM
A. Review existing MAPPA Coordinator and Administrator capacity in Cambridgeshire during 2006/7 (also see 1.C and 2A(ii) ) B. To develop participation with key stakeholders
DELIVERY PLAN
i) Initial discussion with Responsible Authority to agree process e.g. needs analysis. ii) Present to SMB i) Identify/confirm key stakeholders and confirm working links to the SMB ii) Restate ‘duty to co-operate’ and invite agencies to participate iii) Monitor Attendance at SMB and RA. Gain commitment from Duty to Co-operate agencies to attend regularly, including use of substitute representative
OUTCOME
By April 2007 to have confirmed appropriate resources are allocated to the task
PROGRESS
Following police analysis – agreement that further full time admin post required. Additional funding agreed for part-time post – needs analysis framework to be agreed for 2007/8 cycle. Representative system agreed for both City/District Council Housing Departments and Registered Social Landlords. Memorandum of Understanding reviewed at Strategic Management Board – to be updated after Further Guidance issued in 2007
Improved ownership of MAPPA Increased active participation by Duty to Cooperate partners in SMB meetings Ditto
Improved attendance rates from key Monitoring attendance at SMB. stakeholder partners at quarterly SMB and RA - attendance chart presented to members. meetings This has led to revised membership on a representative basis for Housing partners Improved ownership of MAPPA as above. Achieved – meetings for 2007 to be held at Cambourne. Venue felt to be more than satisfactory by SMB members. i) Detailed Probation Plan to improve timeliness and quality of Oasys is in place and significant improvements have been achieved, especially with High Risk of Harm cases (97% of 5 day ISPs completed on time). ii) Police have restructured to ensure central management and supervision of staff. iii) Police have agreed local Key Performance Indicators and are monitoring on a monthly basis iv) Quality Assurance subgroup has been set up and work schedule agreed for 07/08. Draft Guidance from PPU received March 2007 and comments made – initial work on implications has commenced by MAPP Manager.
iv) to ensure that suitable and accessible Improved attendance rates at SMB. venues for SMB are identified and used during Use of suitable venue for SMB Meetings 2006/7 C. To develop action plan reflecting recommendations and advice from i)HMIP inspection on sex offenders and public protection ii) De Montfort Research Report iii)HMIC on MAPPA (expected July 06) and iv)NCPE Practice Advice Devise Action Plan to improve management of Complying with HMI recommendations high risk offenders Introduce Oversight via SMB i) Review progress report from Probation and Police RA members. ii) Police and Probation RA members to produce action plan and agree schedule for providing SMB with progress reports on implementation during 06/07 Introduce Oversight via SMB
D. Implementation of revised MAPPA arrangements, taking into account HMIP/De Montfort recommendations
RA and SMB to consider further guidance Compliance with new guidelines when received and advise SMB re resourcing issues
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Annex A: MAPPA – Cambs MAPPA Business Plan 2006/7 continued
2. Monitoring & Evaluation
STRATEGIC AIM DELIVERY PLAN OUTCOME
Demonstrate enhanced monitoring activity Improved performance across key areas during 2006/7
PROGRESS
i) Excel Spreadsheet developed to assist diversity monitoring. Annual Report published with required stats including SFO’s and SOO’s. Framework for collating agency attendance obtained but cannot be implemented without further admin resource. ii) Subgroup now set up and has agreed framework for quarterly monitoring in first instance. iii) Quality Assuarance Team review of police practice re MAPPA has taken place – report in draft. Next year’s Business Plan will be addressing necessary further improvements based on findings. Instructions re pilot roll out to Probation received and under discussion in that agency.
A. Introduce robust performance monitoring i) Develop PI’s/Standards/ arrangements to provide confidence to Monitoring to include stakeholders that protection arrangements are good/effective • No’s at Level 2/3 meetings • Attendance Analysis • Diversity Profile • No’s of MAPPA Serious Further Offences • Sex Offender Orders • Annual Report
ii) Review mechanism for evaluation of impact Review completed by April 2007 of discussions at level 2 and 3 meetings e.g. on public protection
B. Use of Police/ViSOR e.g. by Probation
Agreement by CPA about training and roll-out arrangements for use of VISOR by Probation staff Discuss at RA meeting Agree review process and propose to SMB Formal review of links with Serious Case Reviews Police and Probation to agree new protocol for co-operation re serious case reviews
ViSOR in use by agreed staff and integration of ViSOR into mainstream probation and police practice Appropriate use of resources. Appropriate management of risk. Improved information sharing with Serious Case Reviews Increased co-operation and information sharing between Police and Probation re SFO incidents
C. Review of Gatekeeping system for referrals (Appeals/Process/Rejections) D. Increase links to Serious Case Reviews
Sub-group now in place to address this issue.
National consultation to take place this autumn – not yet notified. Under discussion between RA members. Agreement expected by June 2007.
E. Establish new Serious Further Offences Protocol
3. Communications & Partnership Strategy
STRATEGIC AIM
A. To improve accessibility and overall quality of Annual Report
DELIVERY PLAN
i) Colour/Printing/layout/Distribution – learn from other areas ii) Use Probation PR iii) Improve Planning Process iv) Increase Lay Adviser Participation in Production of Annual report v) Discuss Potential for Launch Event/Publishing Annual Report
OUTCOME
Achieved Improved Annual Report. Achieved
PROGRESS
Evidence of increased community engagement Achieved – Lay Advisor has been involved in in publication of Annual Report e.g. Annual Report preparation.. attendance at launch by SMB Duty to Cooperate partners Major launch not favoured after further discussion at SMB. Presentation of Annual Report to CDRP’s, LSCBs and Local DV groups MAPP Manager gave press interviews on publication of Annual report. Report circulated. Media and Communications Strategy has been agreed.
B. Develop Communication Strategy
i) Identify Opportunities to Work with Media and/or key partner forums – CDRPs, LSCB, DV groups
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Annex A: MAPPA – Cambs MAPPA Business Plan 2006/7 continued
4. Training/Workforce Development
STRATEGIC AIM DELIVERY PLAN OUTCOME PROGRESS
Second Lay Advisor has been appoitned and training schedule agreed and commenced. List of agreed tasks for Lay Advisor role agreed by SMB. Appraisal conducted. MAPP Manager has attended National Parole Conference (joint funded) Admin 1 post appraised and training plan in place and actioned. Admin 2 has had training as appropriate this year Collated materials now due March 07. Police have developed presentational material that has been circulated to SMB members for use. Improved presentations for new practitioners MAPP Manager (with police help) continues to deliver low key training to staff groups on request.
A. Training Schedule for Lay Advisors in Schedule put in place to support Lay managers have received training to Cambridgeshire to be developed and actioned understanding and encourage shared learning support the development of their role and between two Advisors, incorporating national enhance understanding of MAPPA arrangements/provision. B. To ensure attendance at National/Regional Conferences and Training Events MAPP Manager supported to attend relevant conferencesTraining plan incorporated into appraisal MAPPA Co-ordinators have individual training plan Best practice developed
Individual staff and organisational needs are met.
C. To use core training material to support MAPPA SMB training and support training to new practitioners
i) Receive collated material/national training pack from National Workgroup. ii) Discuss with SMB members to clarify their requirements iii) Modify existing presentations to new practitioners
Improved SMB training opportunities.
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Annex B:
MULTI-AGENCY PUBLIC PROTECTION ARRANGEMENTS – CAMBRIDGESHIRE BUSINESS PLAN 2007-2008
1. MAPPA Development Strategy
STRATEGIC AIM
A. Review existing MAPPA Coordinator and Administrator capacity in Cambridgeshire during 2007/08 (also see 1.C and 2A(ii) )
DELIVERY PLAN
i) Responsible Authority to ensure that needs analysis framework is put in place. ii) RA to present needs analysis framework to SMB, with recommendations to ensure that capacity levels keep up with demand. June 2007
MILESTONES
OUTCOME
To demonstrate by April 2008 that an appropriate level of administration resources are in place to deliver core tasks.
September 2007
B. To continue to develop active participation i) Identify/confirm key stakeholders and in MAPPA with key stakeholders and partners. confirm working links to the SMB
July 2007 Review of Memorandum of Understanding no later than December 2007. October 2007
Improved ownership of MAPPA. Increased active participation by ‘Duty to Co-operate’ partners in SMB meetings
ii) Restate ‘Duty to Co-operate’ and invite agencies to participate iii) Monitor Attendance at SMB and RA. Gain commitment from 'Duty to Co-operate' agencies to attend regularly, including use of substitute representative Review at each SMB during 2007/08 with
Discuss at SMB July 07 appropriate follow up action by SMB if no attendance.
Ditto Improved attendance rates from key stakeholder partners at quarterly SMB and RA meetings Improved ownership of MAPPA Improved attendance rates at SMB. Use of suitable venue for SMB Meetings
iv) to ensure that suitable and accessible Review suitability of South Cambs venue venues for SMB are identified and used during before December 2007. Further research as 2007/08 needed C. To continue work on developing and implementing Action Plan to ensure key recommendations are implemented in respect of the following: i) HMIP inspection on sex offenders and public protection ii) De Montfort Research Report iii) HMIC on MAPPA iv) NCPE Practice Advice Agree Action Plan to improve management of high risk offenders i) Review progress report from Probation, Police and Prison RA members. ii) Police and Probation RA members to produce action plan and agree schedule for providing SMB with progress reports on implementation during 07/08 RA and SMB to agree on action plan to take account of new guidance. October 07 SMB As agreed schedule December 2007 March 2008 RA and SMB to take initial view concerning implementation of guidance no later than April 2007. RA to produce implementation plan to incorporate new guidance and present to SMB for approval. To be confirmed
Complying with HMI recommendations Introduce oversight via SMB
D. Implementation of revised MAPPA arrangements, taking into account HMIP/De Montfort recommendations
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2. Monitoring & Evaluation
STRATEGIC AIM DELIVERY PLAN MILESTONES OUTCOME
Demonstrate enhanced monitoring activity Confirm at July 2007 SMB Quarterly reporting to SMB during 2007/08. Due for publication October 2007 Improved performance across key areas during 2007/08.
A. Introduce robust performance monitoring Continue to monitor the following during arrangements to provide confidence to 2007/08: stakeholders that protection arrangements are good and effective. • Numbers attending Level 2/3 meetings • Attendance Analysis • Diversity Profile • Number of MAPPA Serious Further Offences • Sex Offender Orders Annual Report
ii) Review mechanism for evaluation of impact Quality Subgroup to agree programme of of discussions at Level 2 and 3 meetings e.g. evaluation for 2007/08. on public protection, in particular taking into account key findings from police-led Quality Assurance Team evaluation of MAPPA. By June 2007 iii) Quality and Effectiveness Sub Group to By January 2008 provide evaluation report on Level 2 and Level 3 meetings to SMB. iv) Take note of high profile SFO Review of MAPPA case by London MAPPA and implement necessary practice changes. B. Use of Police/ViSoR e.g. by Probation Local plan to support roll out of ViSOR to be confirmed. Discuss at RA meeting Agree review process and propose to SMB Formal review of links with Serious Case Reviews Police and Probation to agree new protocol for co-operation re serious case reviews By August 2007
Review completed by April 2007
September 2008
ViSOR in use by agreed staff and integration of ViSOR into mainstream Probation and police practice Appropriate use of resources. Appropriate management of risk. Improved information sharing with Serious Case Reviews Increased co-operation and information sharing between Police and Probation re SFO incidents.
C. Review of Gatekeeping system for referrals (Appeals/Process/Rejections) D. Increase links to Serious Case Reviews under LSCB framework. E. Establish new Serious Further Offences (SFO) Protocol
To follow milestones for MAPPA Sub Group (see point A. above) October 2007 Protocol agreed by July 2007 Reviewed by RA or SMB by January 2008
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Annex B: MAPPA – Cambs MAPPA Business Plan 2007/8 continued
3. Communications & Partnership Strategy
STRATEGIC AIM
A. To improve accessibility and overall quality of Annual Report
DELIVERY PLAN
To produce accessible and high quality MAPPA Annual Report.
MILESTONES
Annual Report Sub Group Working Party to meet in April 2007 to pull together outline of Annual Report Publication of Annual Report in October 2007.
OUTCOME
Improved Annual Report
B. Develop Communication Strategy
i) Identify opportunities to work with Media and/or key partner forums ii) To plan for SMB Development Day to coincide with publication of Annual Report to improve communication strategy and overall working of that body iii) SMB to confirm that each participating agency has a MAPP lead member of staff to publicise MAPPA wtihin their own agency and agree PR activity for the year, e.g.
use of ‘Protecting Jayne’ DVD. Consultation meeting with Police/Probation Media Relations staff July 07 By November 2007 By July 2007
Presentation of Annual Report
Action plan for improved working.
Continuing PR activity within relevant agencies.
4. Training/Workforce Development
STRATEGIC AIM DELIVERY PLAN MILESTONES OUTCOME
A. Training Schedule for Lay Advisors in Schedule put in place to support Review effectiveness of training programme Lay managers have received training to Cambridgeshire to be developed and actioned understanding and encourage shared learning for Lay Advisors in October 2007 and again in support the development of their role and between two Advisors, incorporating national March 2008 enhance understanding of MAPPA arrangements/provision. B. To ensure attendance at National/Regional Conferences and Training Events MAPP Manager supported to attend relevant conferencesTraining plan incorporated into appraisal MAPPA Co-ordinators have individual training plan To be subject to quarterly reviews during 2007/08 In place – reviewed annually by MAPP Manager Admin 1 – August 07 Admin 2 - March 08 April 2007 Best practice developed
Individual staff and organisational needs are met.
C. To use core training material to support MAPPA SMB training and support training to new practitioners
i) Receive collated material/national training pack from National Workgroup. ii) Discuss with SMB members to clarify their requirements iii) Modify existing presentations to new practitioners
Improved presentations for new practitioners
Arrangements to be confirmed, but there will be one Annual Review during 2007/08. To be confirmed.
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FAQ
Q A Q A Q A Q A
What does MAPPA stand for? Multi Agency Public Protection Arrangements. What does MAPPA do? Brings together those agencies who can contribute to managing high risk offenders in the community. Is this just about sex offenders? No we also deal with very violent offenders in the same way.
Q A
Why doesn’t the public have the right to know if there is a paedophile living in their street? This is a contentious issue. At the moment the government believes that full public disclosure would lead to such offenders going “underground” so that we would lose the ability to know where they are and monitor them. MAPPA looks at every case and would disclose someone’s convictions to another agency, an organisation or to an individual or family if we believed they were in imminent danger. Can you be sure that none of the people you manage through this system will ever reoffend or hurt someone? No. It is not possible entirely to remove the potential for offenders to commit a serious further offence and this year we have had one person who did so. Whilst any serious further offending is a tragedy for a person, a family and a community, this years’ figures suggest that the MAPPA is generally succeeding in managing those offenders who pose the greatest threat to society. Any case of serious further offending is rigorously reviewed by the agencies involved to establish the relevant learning points.
Q
Why don’t you just keep these people locked up? Some serious offenders are now given “indeterminate public protection sentences” and they will only be released if the risks they pose are considered to have been greatly reduced. Other offenders are given fixed sentences by the courts and HAVE to be released by law – at that point it is our job to have a robust plan in place to manage the risks they present. What does it mean when a person is “under supervision” in the community. Serious offenders on supervision to the Probation Service will usually have to comply with both general and specific licence conditions (such as to stay away from a certain person or geographic area or perhaps being banned from using a computer or mobile phone to access the internet.) These licence conditions are enforced by a recall to prison if someone does not keep to the rules they have been set.
A
Q A
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Acronyms
AP: Automatic Number Plate Recognition CAFCASS: Children and Family Court Advisory Services CDRP: Crime & Disorder Reduction Partnership CPA: Cambridgeshire Probation Area CPN: Community Psychiatric Nurse DoH: Department of Health DV: Domestic Violence HMIC: Her Majesty’s Inspectorate of Constabulary HMiP: Her Majesty’s inspectorate Probation HR: Human Resources LCJB: Local Criminal Justice Board LRMM: Local Risk Management Meeting LSCB: Local Safeguarding Children Board MAPPA: Multi-Agency Public Protection Arrangements MARAC: Multi-Agency Risk Assessment Conferencing OASys: Offender Assessment System MAPPA: Multi-Agency Public Protection Arrangements PI: See Annex A – Performance Indicator PPU: Public Protection Unit RA: Responsible Authority RSO: Registered Sex Offender SFOs: Serious Further Offences SMB: Strategic Management Board SOOs: Sex Offender Orders SOPO: Sex Offender Prevention Order V & OS: Violent offender and Other Sexual offenders ViSOR: Violent Offender and Sex Offender Register YOS: Youth Offending Service
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Contacts
Cambridgeshire
Multi Agency Public Protection Arrangements National Probation Service, Cambridgeshire
Matthew Ryder Assistant Chief Officer
Probation Headquarters 1 Brooklands Ave Cambridge CB2 8BB 01223 712345 Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564
Andy Jarvis Multi Agency Public Protection Manager
Cambridgeshire Constabulary
John Raine Detective Superintendent
Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564 Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564
Mark Hopkins Assistant Chief Constable
Prison Service
Steve Rodford Governor
HMP Whitemoor Longhill Road March Cambs PE15 OPR 01354 602350

Protecting the Public

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