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Protecting the Public

Cambridgeshire Multi-Agency Public Protection
Arrangements (MAPPA) Annual Report 2006/07
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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

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

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.

Do let us know if you have found this report helpful.

Dr Caroline Bolton-Smith

Nusrat Choudhary
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Foreword 2

Introduction 3

Key Achievements 4

How the MAPPA operate locally 6

Who’s who in MAPPA 7

Case Histories 11

Statistical Information 14-15

Helping victims of Crime 16

Strategic Management Board 17

Lay Advisors 18-20

Annex A Cambridgeshire MAPPA Business Plan 2006/7 21-23

Annex B Cambridgeshire MAPPA Business Plan 2007/8 24-26

Frequently Asked Questions 27

Acronyms 28

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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

Maria Eagle MP

Parliamentary Under Secretary of State

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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 Chief Constable, Cambridgeshire Constabulary

John Hughes Chief Officer, National Probation Service Cambridgeshire
Adrian Smith 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 the formulation of the risk management plan to
formed a new Public Protection Team in September 2006. This determine how well the public are protected.
brought the specialist police officers and support staff who
The cases identified and reviewed are spotlighted in the
have the remit to manage sex offenders and violent people
next section of this report and demonstrate the extent to
under a central management structure headed up by
which MAPPA has developed in Cambridgeshire. The report
Superintendent John Raine, in line with best practice advice. A
concludes that:
newly created Sergeant’s post is now operational to ensure a
high level of monitoring and support for the staff engaged in “In terms of MAPPA the inspection team discovered a
this difficult area of work. The Team works within a wider unit commendable structure led by a very experienced MAPP
that also includes officers concerned with the investigation of Manager. Meetings revealed a commitment by all agencies
child abuse, domestic violence and internet sex offending and involved to the effective sharing of information through
will lead to a more co-ordinated approach. good levels of attendance at meetings. The MAPPA national
guidance is closely adhered to throughout the MAPPA
The MAPP Manager supported and cooperated with an in-depth
processes employed by the force, so much so that the
inspection, carried out by the Cambridgeshire Constabulary
inspection team did not feel the need to attend other force
Quality Assurance Team, into local police responsibilities under
MAPPA meetings.”
MAPPA. The Objectives of this piece of work were agreed to be:
1. To ascertain the views of partners as to the role and The Probation Service in Cambridgeshire has continued to
effectiveness of the Police in MAPPA. work in very active partnership with Police and cooperated
fully with the Police Quality Inspection Process. It has itself
2. To assess the benefits of the performance management been subject to a Home Office Inspection in relation to
framework introduced for the Public Protection Offender Management and the recently published report
Department. noted that “the Cambridgeshire MAPPA were organised
appropriately and the Probation Area was participating
3. To benchmark cases to ensure working practices adhere
well.” It noted that MAPPA cases were allocated to a
to national guidance and gauge good practice.
specialist team of Probation Officers who are experienced in
The methodology included working with high risk offenders. The establishment of this
team, following a major reorganisation, is a key
1. Research into MAPPA guidance and other relevant local
achievement this year for the Probation Service in relation
and national policies and procedures including other
to delivering its responsibilities under the MAPPA.
force working practices with a view to identifying good
practice. This year has also seen much closer liaison between HMP
Peterborough and MAPPA, with regular exchange of
2. Inviting MAPPA partners’ views via questionnaires and
information on MAPPA offenders between the MAPP Manager
conducting follow-up interviews and attending relevant
and the Senior Probation Officer located in the Prison. The
MAPPA meetings.
latter has also attended several meetings in relation to the
3. Identifying a representative sample of MAPPA Level 3 most serious offenders and there has been a development
cases (the most serious) and conducting a paper review programme for relevant staff in the Prison to attend MAPPA
of the process from the identification of them as Level 3 meetings as observers, to increase their commitment to the
offenders, through to MAPPA Level 3 meetings and the identification and exchange of information critical to public
formulation of the risk management plan. protection cases.

4. Identifying a representative sample of MAPPA Level 2 This year has seen the first time that MAPPA has been
cases and conducting a paper review of the process and underpinned by a Business Plan and the final report for

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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 The new courts at Huntingdon

particularly focused on the protection of the victims of

domestic violence – and of any children within the family – MARAC may be quicker to respond but short term in focus,
but because of the obvious overlap with MAPPA offenders its membership includes those most likely to meet the
who have committed violent crimes, a protocol was needed immediate needs of the victim and it may have stronger
to clarify which system should be utilised for which links with the line management of Children's Social Care.
offenders. It is important that professionals come together
It is necessary to avoid duplication and confusion and to
to plan a coordinated approach to risk management but to
work in the most effective way to protect victims.”
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.

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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 Level Three meetings for the “critical few” are called on an
agencies, as is the position of two MAPPA Coordinators. The occasional basis when cases arise. In 2006/7 only four
latter support the MAPP Manager by producing high quality offenders were managed for a time at this level. This is in line
minutes and risk management plans. with Home Office advice that only the “critical few” should be
referred to the Level Three Multi Agency Public Protection Panel.
Formal meetings are held regularly in each of the Police
Divisions. The Manager chairs the meetings where members In practice, therefore, MAPPA is a three level system that
concentrate on offenders living in the local community, or about ensures that the most dangerous offenders receive the greatest
to be released from prison. These meetings are called Local Risk degree of scrutiny and oversight.
Management Meetings and are at “Level Two”.

The three levels 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
Level One: Offenders at this level are those assessed as
restraining orders. An Approved Premises release with
posing a low or medium risk of re-offending. They are likely
licence conditions, including exclusion zones is needed and
to be managed by one agency without actively or
close liaison between Probation and domestic violence
significantly involving other agencies.
Police Officers will be required to ensure the safety of his
A typical Level One case would be a man charged with a victim.
small number of cases of downloading child pornography on
Level Three: The ‘critical few’ level three offenders are
the internet. Living alone and with a stable work history he
assessed as being at high or very high risk of causing
is given a three year Community Order with a condition of
serious harm and are managed by a range of agencies
attendance on a Sex Offender Treatment Programme.
sitting on the Multi Agency Public Protection Panel. This
Or: A young man who serves an 18 month prison sentence small group presents risks that can only be managed by a
for an offence of affray. He has alcohol abuse issues and as plan that requires close cooperation at senior level or where
part of his licence to the Probation Service he will have the case is exceptional because of media scrutiny and/or
conditions to attend a “Think First” programme and for public interest in the management of the case.
sessions with the Drug and Alcohol Team.
A typical Level Three case would have an extensive history of
Level Two: The management of offenders in this category sexual assaults on children with predatory activity and a
is handled at Local Risk Management Meetings where the range of grooming methods. They have a mental health
active involvement of more than one agency is required in diagnosis of depression and anxiety and need medication
managing the risk. The level of risk is more complex than and monitoring to ensure their mental health remains
Level One, but does not require the intensive supervision of stable. They have through sex offender treatment
the Multi-Agency Public Protection Panel (MAPPP). programmes but continue to exhibit distorted thinking and
“poor me” attitudes. They will be initially resident in
A typical Level Two case would be a man charged with a Approved Premises and very difficult to move safely into
number of indecent assaults against his grandchildren. His independent accommodation.
conviction reveals a history of earlier allegations and splits
between family members. He denies the offences and wants Or: Diagnosed with a psychopathic personality disorder this
to return home to the family – the involvement of Social typical Level Three Offender has committed many violent
Services alongside Probation (who will supervise the offences and is an immediate risk to the public and to staff.
licence) and Police (who have responsibility for him as a He is heavily involved in drug supply and acquisitive crime.
Registered Sex Offender) is essential. He has no conscience and is unpredictable.

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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.

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. • Supervision and management of offenders placed on
community orders, including action to ‘breach’, or in
• Having a dedicated officer holding the Constabulary other words, to return an offender to court or prison who
responsibility for the National Register of Violent and Sex has failed to comply.
Offenders (ViSOR) and locating this officer with the
MAPPP Manager to ensure prompt and effective • Delivery of Specialist Accredited Programmes to address
information sharing. offending behaviour, including the nationally recognised
“Thames Valley” Sex Offender Treatment Programme.
• By the Assistant Chief Constable chairing the Strategic
Management Board, and jointly funding the post of the • Work with prisoners before their release, and the
MAPPP Manager and the MAPPA Coordinators with the supervision and management of offenders on licence
Probation Service. living in the community, including taking necessary
action to recall individuals back to prison.

NATIONAL PROBATION SERVICE, • Provision of accommodation in National Probation

CAMBRIDGESHIRE Service Approved Premises for offenders who need an
enhanced level of supervision.
Responsible Authority Member,
Matthew Ryder, Assistant Chief Officer
The National Probation Service, Cambridgeshire, makes a
Responsible Authority Member,
wide ranging contribution to the work of the MAPPA. This
Steve Rodford, Governor, HMP Whitemoor.
includes the:
• Initial assessment of offenders who come before the The Prison Service, alongside Police and Probation, is also
courts for offences of sex or violence. Probation staff use part of the Responsible Authority. While offenders are serving
a standard assessment tool, the Offender Assessment their custodial sentences, the Prison Service also works with
System (OASys). This assessment process also enables them to address the causes of their offending behaviour; and
the report writer to determine an offender’s suitability to undertakes further programmes of work to assist their
attend a Sex Offender Treatment Programme. 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 CHILD PROTECTION

ensure that this will be effective and has resulted in:
Child Protection is a lead responsibility for the Councils. Their
• Prompt identification of MAPPA offenders so that their responsibilities are undertaken in partnership with the agencies
details can be used in sentence planning that make up the Cambridgeshire and Peterborough Local
arrangements, including interventions to manage and Safeguarding Children Boards. These responsibilities include: -
reduce risk
• Undertaking enquiries with the Police into allegations of
• Regular monitoring of the behaviour of those assessed abuse of children
as presenting the highest risk, and sharing information
• Organising multi-agency child protection conferences
with Police and Probation colleagues
• Providing key workers for all children who have a Child
• All relevant risk management information being
Protection Plan
provided to multi agency meetings which help plan an
offender’s release • Safeguarding and promoting the welfare of children
in need
• At least three months notification to Police and Probation
of the expected release dates of those offenders who have • Ensuring with Local Safeguarding Children Board
been referred to the Multi-Agency Public Protection Panel partners that the procedures for safeguarding the
(MAPP Level 3), and at least six weeks notification of welfare of children are up to date and effective
those being managed at Level Two risk meetings
• Promoting “Keeping Children Safe” work in all child care
• No changes to release dates or arrangements being made settings e.g. schools, pre-school settings, after school
without prior consultation with Police and Probation clubs

The Director of HMP Peterborough – a private prison – has • Ensuring safe recruitment practices are implemented
now joined the Strategic Management Board. across the councils and promoted in all childcare
A number of other agencies are under the “Duty to Cooperate”
established in the Criminal Justice Act 2003 and have signed There is close collaboration between Childrens’ and Education
a Memorandum of Understanding: Services and ever closer working links with the MAPPA. The
Government advice “Working Together to Safeguard Children”
CAMBRIDGESHIRE COUNTY COUNCIL 2006 emphasises the role of the MAPPA and other processes
AND PETERBOROUGH CITY COUNCIL for managing individuals who pose a risk of harm to children,
including those where there are allegations but no convictions.
The Cambridgeshire MAPPA has links to the Cambridgeshire PROTECTION OF VULNERABLE ADULTS
County Council and Peterborough City Council. Both councils FROM ABUSE
are committed to creating safer communities by working in
Cambridgeshire County Council Adult Support Services and
partnership with statutory authorities. Children’s Services in
the Greater Peterborough Primary Care Partnership have the
both authorities carry out serious case reviews in
lead role in ensuring that statutory agencies work in
accordance with the provisions laid down in Working
partnership to protect vulnerable adults from abuse.
Together (DCSF 2006)
The Cambridgeshire and Peterborough Vulnerable Adult
Children’s Services in both areas also provide a
Protection Committees bring together representatives from
comprehensive Children’s Protection Training Programme for
the statutory, voluntary and private sectors responsible for
practitioners whose work involves the safeguarding of
working with and providing services for adults. The
children’s welfare.
responsibilities of the committees include:

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• To develop, implement and monitor local policies, prescriptions for medication, or helping with quick access to
guidance and procedures for inter-agency work. psychiatric assessment. Work on a multi-agency basis is
also targeting the sizeable group of offenders who exhibit
• To improve ways of working in the light of national and
worrying, and sometimes dangerous behaviour, who “fall
local experience and research.
between” the criminal justice and the mental health system.
• To improve the quality of adult protection work through
Primary Care Trusts (PCTs) are also signatories to the
further development of training opportunities and
Memorandum of Understanding. MAPPA ensures information
is sent to GPs as necessary to inform them of particular risks
• To ensure agreement and understanding across agencies associated with their patients. There is very good
about operational definitions and thresholds for intervention. communication between the local GP practice and those
responsible for offenders in Approved Premises provision.
• To audit and evaluate how well local services work
together to protect vulnerable adults from abuse. 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
YOUTH OFFENDING SERVICES or Funding Authorities. There is a ward specialising in the
These services operate in Peterborough and Cambridgeshire treatment of people with Personality Disorders. Good liaison
and have the primary aim of preventing youth offending between the hospital and community agencies is vital to
amongst 10 – 17 year olds. The Youth Offending Services are monitor offenders treated and subsequently discharged.
statutory partnerships led by the local authorities and involve a
multi-agency approach, which includes the Police, Health, Primary Care Trusts for Huntingdonshire, Greater
Probation and voluntary sector services. Programmes of Peterborough, East Cambridgeshire & Fenland,
supervision and support are developed and delivered to Cambridge City & South Cambs District.
offenders in the community and in young offender institutes. Cambridgeshire & Peterborough Mental Health
The youth offending services lead in developing strategies with Partnership NHS Trust.
other agencies such as schools and children’s social care to
Kneesworth Hospital (Private Sector)
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 STATUTORY AND VOLUNTARY HOUSING
difficult and complex needs. One of the most difficult and challenging issues surrounding
public protection is the provision of accommodation for
Peterborough Youth Offending Service released prisoners. The number of statutory and voluntary
housing agencies that have signed up to the MAPPA
Cambridgeshire Youth Offending Service
Memorandum of Understanding illustrates the importance of
HEALTH SERVICES finding suitable accommodation. Many serious offenders are
initially released to National Probation Service Approved
The involvement of health care professionals is highly
Premises. These places are limited and in high demand.
beneficial in the work of the MAPPA. The Cambridgeshire &
Offenders cannot stay in Approved Premises indefinitely, and
Peterborough Mental Health Partnership NHS Trust signed up
will eventually move on to further suitable housing at the
to the original protocol and signed the Memorandum of
appropriate time.
A great deal of work is undertaken to place offenders as
A local Community Psychiatric Nurse (CPN) or Psychiatric
sensitively and safely as possible in local accommodation.
Social Worker attends the Local Risk Management Meetings
Housing agencies rely on an individual’s risk assessment
(LRMM) in each of the Police areas. The involvement of the
report and other information to help them make informed and
CPN is invaluable in ensuring there are good practical
responsible decisions.
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 They also work closely within the Child Protection system and
provide accommodation support through workers that will with many statutory and non-statutory partners. They provide
keep in regular touch with offenders in community provision. services to the Probation Service, Peterborough Youth Offending
These workers provide another way of monitoring offenders’ Service and Cambridgeshire Youth Offending Service.
activities and helping them lead responsible lives.

Peterborough City Council Housing Department Turning Point

Cambridge City Council Housing Department Turning Point is a leading national charity that helps the
socially excluded build more independent lives. The
East Cambridgeshire District Council Housing
Department organisation provides locally tailored services helping people
recover from the effects of substance misuse and provides
South Cambridgeshire District Council Housing care and support for individuals with mental health problems
or learning disabilities. There are projects in Cambridge and
Fenland District Council Housing Department in Huntingdon, and since 1998 a service has been provided
Huntingdon District Council Housing Department for the whole of Southern Cambridgeshire. Both projects work
closely with and alongside statutory agencies, assisting them
Hereward Housing Association Ltd
in the discharge of their responsibilities under the Mental
Luminus Group Health Act and the NHS and Community Care Act. They also
Muir Housing have a history of liaison with the Probation Service, working
with offenders who have mental health problems.
Nene Housing Society
Axiom Housing Society Bridgegate and Turning Point have both
Warden Housing Association signed up to the original protocol. The two
Cross Keys Association agencies have agreed to work on a case by
Granta Housing Association case basis with the MAPPA.


WHO ARE REPRESENTED ON THE STRATEGIC Drinksense and Cambridge Cyrenians have become involved
MANAGEMENT BOARD ARE at an individual case level by providing support for
individuals that contributes to risk management plans.
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 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 Information secured from prison interdepartmental

management team meetings aided release plans and
fuelled appropriate accommodation discussions
Police analysts gathered information about visitors
A 28 year old man with over 60 convictions for burglary,
and correspondence and telephone calls made
theft, possession of drugs, breach of licence and
and received.
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 Outcome
offender was sent to prison five times for convictions Approved Premises accommodation was secured with
and breaches and MAPPA continued to hold meetings appropriate licence conditions
and share information throughout, elevating the man
from a Level 2 to Level 3 MAPPA offender. 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.
The offender was rated in 2002 as a high risk to Police MAPP Level 3 meetings continue to discuss and manage
Officers and to witnesses, particularly his ex-partner and the offender.
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
Action Background
In terms of protecting the public: A 36 year old man convicted for meeting a girl under 16
Police visits were made to ex-partner and offender’s family following sexual grooming following a five year
to investigate threats and provide information on release registration on the Sex Offender Register. Offender was
dates and plans sentenced in 2005 for 18mths in prison and had a Sex
Offender Prevention Order (SOPO) for 11 years with 5
Jackpot alarm (emergency call out system) fitted at conditions all relating to any female under the age of 16.
ex-partner’s house. Injunction obtained by the ex-partner He was referred to MAPPA in 2006 by Probation, one
and licence conditions secured month ahead of his release date.
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. The referral form refers to an increase in risk from
medium to high after a discussion with the MAPP
In terms of sharing information:
Manager. A review of the RM 2000 (static assessment
Information received from Police visits to relatives about tool) and subsequent discussion between the inspection
drug use and access to firearms led to arrests for breaches team and an offender manager revealed that the

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Case histories continued

assessment had been incorrectly calculated and should Details of car linked to ANPR (Automatic Number Plate
in fact have been a high risk assessment. A MAPPA Risk Recognition) system to track movements
Management Plan was put in place to cater for the needs
Police and Probation visits revealed that the offender had
of the community and the offender and he was registered
bought a people carrier and had picked up his partner’s
as a Level 2 case:
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
In terms of protecting the public:
manage the offender.
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 PERSON C

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 A 48 year old man convicted in 2002 for 5 years with a 10
Protection Conference taking place which was attended year extended supervision order for three counts of indecent
by Police and Probation. assault on children under 14, six counts of gross indecency
on children under 14 and three offences to be taken into
Information disclosed to offender’s family of offences consideration. Previous convictions including five counts of
indecent assault and gross indecency, four on a child under
Police investigated reports about threats made by the
the age of 14 resulted in Probation Orders and a four year
offender towards his family.
prison sentence.
In terms of sharing information:
Social Services updating MAPPA about their involvement Assessment
with the children An expert assessed the offender as being high risk of re-
offending and a high risk of harming children with a target
Approved Premises staff informing the meetings of the
group identified as young boys between eight and ten years
offender regularly pushing the boundaries including
old. The case was referred to Cambridgeshire MAPPA via two
missing one-to-one meetings with his key worker and
other areas. A MAPPA Risk Management Plan was put in
accruing rent arrears
place to cater for the needs of the community and the
Regular Police and Probation reports provided an up-to- offender and he was registered as a Level 3 case:
date 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 In terms of protecting the public:
Offender Treatment Programme. Regular contact with victim liaison in the area the offences
took place to inform victims of offender’s arrangements in
Outcome terms of sharing information:

Approved Premises accommodation was secured for the Information gathered from other area MAPPAs including other
offender with appropriate conditions. Approved Premises accommodation to inform discussion.

Police informing offender that to attend a relative’s Details about the offender’s progress on the Relapse
wedding would constitute a breach of his SOPO Prevention Programme and medication.

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Police and Probation visits revealed the offender’s

contradictory behaviour and evidence of buying things to Action
prevent boredom. This was of particular importance In terms of protecting the public:
because of the link identified between the offender’s
boredom and his propensity to re-offend. Domestic Violence Officer visited family and as a
result the Sanctuary Project (solid doors in house and
Approved Premises staff provided information of missing emergency alarm and telephone fitted) was put in
curfews and inappropriate associations. place at the family home

Exclusion zone and non-contact conditions were secured

Police briefing prior to release
Despite being registered as a Level 3 offender, the offender
was additionally discussed at Level 2 meetings for a Social Services carried out an assessment and CAFCASS
considerable time to track movements and the offender’s (Children and Family Court Advisory Services) became
state of mind. involved.
Approved Premises accommodation was secured including In terms of sharing the information:
curfew conditions
Security Information reports shared by the prison provided
Licence conditions were extended to prevent the offender information about firearms and potential drug trafficking
using a computer and WAP mobile
Regular probation reports provided an up-to-date
Police Subject Profile created by intelligence analysts to account of compliance with approved premises
inform the need for surveillance conditions and information received about attempts to
contact his family through third parties
Police surveillance used on more than one occasion to track
offender’s movements at weekends Probation and prison visits provided further information
about drug misuse and positive drug tests
MAPPA Level 3 meetings continue to discuss and manage
the offender. Information shared by approved premises staff led to
offender being recalled for threatening a fellow resident.

PERSON D Outcome
Accommodation was discussed in detail which led to
Background Approved Premises accommodation being secured with
A 48 year old male with convictions dating back over licence conditions attached
30 years for burglaries, thefts, actual bodily harm, Regular Police and Probation visits managed the
possession of offensive weapon, criminal damage, offender’s movements
driving offences and threatening behaviour. He was
referred to the MAPP Manager in 2006 ahead of his Drug misuse was identified and monitored
release after serving three years for possession of a
Prior to the threat made to a fellow resident, no other
firearm with intent to cause fear of violence. His victim
offences had been committed
was his ex-wife and they have four children.
Following the recall, the offender was released and is
Assessment staying with a relative until appropriate housing can be
secured. MAPPA meetings continue to discuss and
The offender has a history of drug misuse and this was manage the offender.
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

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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 Police can also now apply for Risk of Sexual Harm Orders (a
Sex Offenders living in Cambridgeshire, who all come under civil order that aims to restrict the behaviour of those
the MAPPA, stands at 407 as opposed to last year’s total of involved in grooming children for sexual activity) and the
387. In addition to Registered Sex Offenders we report on first attempt was made to obtain one in Cambridgeshire
the number of other offenders who had a 12 month plus this year – unfortunately the application could not be
sentence for a sexual or violent offence, and who were progressed after legal advice.
released into the community, and this year the figure was
In the last year 30 offenders out of the 164 managed
312 – compared to the previous year (289) after a
through level two or three of MAPPA were recalled – and
significant jump in this category the previous year. There
only one person was charged with a serious sexual or violent
were 31 “other offenders” identified by the agencies as
offence (his case has not yet come to trial and the outcome
having a conviction for an offence that indicated they were
is uncertain). Our aim is to manage risk as actively as
capable of causing serious harm, and referred to the Level
possible, and to remove offenders from the community when
Two Meetings. In total there were 750 offenders (as opposed
justified to prevent the commission of further offences.
to 702 in the previous year) who came under the totality of
Overall the work of the MAPPA continues to make a very
the MAPPA of whom 164 (up from 117 last year) - were
important contribution to “Keeping Communities Safe”.
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.

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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. 407
By Division (Basic Command Unit)
Northern 172, Central 122, Southern 113
a) The number of RSOs per 100'000 head of population 56
ii) 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 18
iii) The number of
(a) Sexual Offences Prevention Orders (SOPOs) applied for 23
(b) interim SOPOs granted and 3
(c) full SOPOs imposed by the courts in your Area between 1st April 2005 and 31st March 2006 20
iv) The number of
(a) Notification Orders applied for 1
(b) interim Notification Orders granted and 0
(c) full Notification Orders imposed by the courts in your Area between 1st April 2005 and 31st March 2006 0
v) The number of Foreign Travel Orders
(a) applied for and 0
(b) imposed by the courts in your Area between 1st April 2006 and 31st March 2007 0
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 Level 2
Registered Sex Offenders 2 75
Violent and Other Sex Offenders 2 69
Other Offenders 0 16
(ix) 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:
(a) Were returned to custody for a breach of licence? Level 3 Level 2
1 29
(b) Were returned to custody for a breach of a restraining order or
sexual offences prevention order? Level 3 Level 2
0 4
(c) Were charged with a serious sexual or violent offence? Level 3 Level 2
0 1
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 • Inform the victim of any conditions or requirements attached
victims is to: to the offender's release, which are relevant to contact with
the victim or their family, and any other information.
• Provide victims with general information about criminal
justice and custodial processes. The decision to engage with the Probation Service and, at
what stage, is made by the victim.
• Consult victims about whether they wish to provide
information relevant to the consideration of any One of the most important tasks involving the MAPPA is to
requirements or licence conditions placed upon the ensure that past victims are not put at risk again when an
offender on his or her release from custody. offender is released. Victim issues are featured as part of
every risk management plan.
• 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.

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Strategic Management Board (SMB)

The Strategic Management Board of the MAPPA meets on a A member of the Strategic Management Board,
quarterly basis. The meeting is attended by the Responsible Nigel Finney who represents Luminus, a significant Housing
Authority Members and Duty to Cooperate Members, and Provider, was asked to provide his view of MAPPA from his
others, and is chaired by the Assistant Chief Constable for position on the Board. He writes:
Cambridgeshire Constabulary, Mark Hopkins. The function of
“The processes within MAPPA are, by their very nature,
the Board is to:
complex and rely heavily on close cooperation between a
a) Monitor (on at least a quarterly basis) and evaluate the variety of agencies. Within this the ability to source secure,
operation of the MAPPA, particularly that of the sustainable and affordable housing for a particular offender
MAPPPs; can be significant to the success of the MAPPA
arrangements. It is for this reason that I initially
b) Establish connections with other public protection
volunteered as a representative of Registered Social
arrangements such as Area Child Protection
Landlords within Cambridgeshire to sit on the Strategic
Committees, local Crime and Disorder Partnerships and
Management Board.
local Criminal Justice Boards that support the
operation work at the MAPPA; During the past few years I have seen the MAPPA processes
within Cambridgeshire develop and mature under the
c) Prepare and publish the Annual Report and promote the
leadership of the Strategic Management Board. It has been
work of MAPPA in the area;
gratifying to see the emphasis placed on risk management
d) Plan the longer term development of the MAPPA in as well as the willingness to cooperate between a variety of
the light of regular reviews of the arrangements and agencies within the County under the MAPPA banner.
with respect to legislative and wider criminal
Those of us working in the social housing sector within
justice changes;
Cambridgeshire should derive a significant degree of
e) Identify and plan how to meet common training and comfort when dealing with offenders through the MAPPA
developmental needs of those working in the MAPPA. process since they will have assurance that risks have been
properly identified and managed and that the transition into
Membership of the Strategic Management Board includes
accommodation within the community will be managed
Senior Managers from Health, Mental Health Services,
carefully. It is for this reason that I hope my colleagues
Housing, Adult Social Care Services, Children’s Services, Job
within the housing sector continue to fully engage with the
Centre Plus, Electronic Monitoring Services and Youth
MAPPA process and play their part in the successful
Offending Services as well as Police, Probation and the
management of offenders.”
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 • Opportunity to shadow one of the Police Officers working
with MAPPA, e.g. Police Sex Offender Worker
Under the Criminal Justice Act 2003, it is made clear that Lay
Advisors are to be appointed to assist in the MAPPA review • Visit to the Cambridgeshire Probation Service Public
functions and not the operational decision-making. It is Protection Team
important that Lay Advisors are able to operate as fully
• Visit to a Cambridgeshire prison establishment, by
fledged members of the local Strategic Management
arrangement with the Governor at HMP Whitemoor
Board (SMB).
• Meeting with MAPP RA representatives
Lay Advisors are not expected to become ‘experts’, rather
they should be helped to become familiar with the workings • Visit to Local Authority-based Youth Offending Service
of MAPPA and given appropriate reading to get up to speed
Visits to other relevant strategic partner services will be
with local MAPPA working structures and policies.
arranged as and when necessary and/or desirable, following
Lay Advisors would be expected to take on the role of an induction review meeting with the local MAPP Manager
‘Critical Friend’ on the SMB, e.g. acting as an informed after six months in post.
observer and asking questions that professionals closely
Soon after appointment, and within three months of taking
involved in MAPPA might not think to ask. They can bring
up their role, the Lay Advisors would also have a meeting
their own perspective as a member of the local community,
with the Cambridgeshire Probation Area Training Officer to
but there is no requirement on them to act as a
review any training and/or support needs. Training needs
representative of the community in the way that an elected
should be reviewed every 12 months through this contact.
councillor might do.
Other ways of supporting the Lay Advisors would include:-
Responsibility for the selection of Lay Advisors rests with • bi-annual meetings with the Probation Lead Officer
the local MAPP Responsible Authority (RA), advised and for MAPPA
supported by the Public Protection Unit in the National
Offender Management Service (NOMS). The RA is required • attendance by Lay Advisors at one RA meeting per year
to nominate the individual Lay Advisors it wishes to • provision of relevant reading material, e.g. Inspection
appoint by notifying the Public Protection Unit within Reports, Criminal Justice guides, Research findings
NOMS Headquarters in London of new appointments.
Appointments as Lay Advisors are ratified by the Secretary • opportunity to attend relevant training for Lay Advisors
of State, who will write to both the individuals concerned
In Cambridgeshire, it is recognised that the Lay Advisor has a
and the local RA to confirm such appointments.
particular role in helping to review and monitor the
The appointment is normally for four years.
effectiveness of MAPPA functions and processes. With this in
The Cambridgeshire RA should ensure that a suitable mind, it is entirely appropriate for Lay Advisors to attend a
induction is given to all newly appointed Lay Advisors once certain number of Level 2 and Level 3 MAPPA Case Reviews in
their appointment is confirmed. This will include visits to order both to improve their understanding about local
key MAPPA personnel within Probation and Police and other working structures and to assist with the evaluation of these
relevant ‘Duty to Co-operate’ Partners as required. As a structures. As a rule, there would be an agreement to attend
minimum, the induction should include:- up to eight Level 2 and/or Level 3 case reviews per year.

• Initial meeting with MAPP Manager giving an Attendance at such meetings would be agreed in advance
introduction to the scheme and to agree outline of with the MAPP Manager, on the understanding that it would
induction not be appropriate for the Lay Advisor to play an active part

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in the case discussion. However, there would be the the role of micronutrients in ageing (bone health, cognitive
opportunity to attend a ‘wash-up’ or review meeting with the function). She recently made a change in career direction
local MAPP Manager after the case review to flag up any into the Voluntary and Community Sector, where she worked
observations and/or concerns. Lay Advisors would be invited for the Community Fund branch of the Big Lottery Fund as
to submit observations to the RA via the MAPP Manager, a Grants Officer, before becoming the Chief Executive
usually in written form. Officer for the charity Care Network. She has experience
and interest in working at the strategic level, this being
Other contributions that Lay Advisors can offer would include:-
one of the reasons she volunteered for the Lay Advisor role.
• assisting the MAPP Manager and RA with quality She is also very environmentally aware and over the years
assurance of MAPP case reviews, including participation has participated in many conservation/wildlife
in the local quality management sub-group of the SMB; volunteer projects.

• contributions to the Local MAPPA Annual Report; Nusrat Choudhary has recently been appointed as a second
Lay Advisor – this is what she has to say about her
• helping with the analysis of MAPPA data.”
background and experience.
The first of two Lay Advisors we recruited to the MAPPA is
“I have been working at Gladstone Children Service (GCC)
Dr Caroline Bolton-Smith. Caroline worked for 20 years as
for almost 6 years, I work with children and their families
a research scientist/Lecturer/Senior Lecturer (Universities
that are from a disadvantaged area and are facing
of Southampton, Nottingham, Dundee, and MRC-HNR in
difficulties in life.
Cambridge) in the nutritional biochemistry and public
health arena, where she focused on the role of interactions I am part time self employed and have my own Counselling
between nutrition and lifestyle on the inequalities of Practice and also work on a free lance base for agencies such
health, plus work on obesity and most recently a focus on as Family Care and Relate, the relationship people.

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Lay advisors continued

I work and carry out assessment and observe parents/carers This weekend gave me an overview and highlighted to me
who have had their children removed from their care and what views were, on a national level, from Lay Advisors but at
are in foster care or possibly up for permanent adoption. My the same time gave me a clear picture in questioning what
role is to support parents/carers in this situation and exactly my role is and what have been the struggles.
facilitate them in parenting and also to work and reflect on
I was then given the opportunity to start my induction and I
past learnt behaviour in order to best decide the future of
got the opportunity to attend on-going relevant training and
the child and make recommendations provided through
attend level 2 and 3 meetings. I have been shadowing staff
reports to the local authorities. Part of my role involves me
at Probation in the support services and have been given
working with partner agencies and working closely with
information, and a useful website, to further my knowledge.
parents/carers to identify and set up services that will
I have sat in the Peterborough Magistrate is Court as an
target hard to reach families.
observer to learn more about court policies and procedures
I have good experience of community work I have fully grasped and am due to visit the local Prison and the Police support
a good knowledge of the Criminal Justice system and services soon and have attended one Strategic Management
experience of working with clients and identifying their needs Board meeting.
as I have counselled inmates in a prison setting and have
Its only fair to say that so far, it has been great, in what I
mentored young people from the local Youth Offending Service.
have been involved in and have been supported and guided
I have always been passionate in working to support people throughout my role.”
and therefore this opportunity encouraged me to apply for the
If you want to contact Caroline Bolton-Smith or Nusrat
role as a Lay Advisor. I feel that I have the confidence to
Choudhary to express your views about MAPPA please write
express my views in a professional capacity and in
to either at:
recognising that I am at an advantage in being able to share
my experience of working with people from different C/o National Probation Service, Cambridgeshire
backgrounds and settings and I can recognise what issues
are raised from a victim and perpetrator’s side, and how this 1 Brooklands Ave
affects communities. Cambridge
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.

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Annex A:

1. MAPPA Development Strategy


A. Review existing MAPPA Coordinator and i) Initial discussion with Responsible Authority By April 2007 to have confirmed appropriate Following police analysis – agreement that
Administrator capacity in Cambridgeshire to agree process e.g. needs analysis. resources are allocated to the task further full time admin post required.
during 2006/7 Additional funding agreed for part-time post –
(also see 1.C and 2A(ii) ) ii) Present to SMB needs analysis framework to be agreed for
2007/8 cycle.

B. To develop participation with key i) Identify/confirm key stakeholders and Improved ownership of MAPPA Representative system agreed for both
stakeholders confirm working links to the SMB Increased active participation by Duty to Co- City/District Council Housing Departments and
operate partners in SMB meetings Registered Social Landlords.

ii) Restate ‘duty to co-operate’ and invite Ditto Memorandum of Understanding reviewed at
agencies to participate Strategic Management Board – to be updated
after Further Guidance issued in 2007

iii) Monitor Attendance at SMB and RA. Gain Improved attendance rates from key Monitoring attendance at SMB.
commitment from Duty to Co-operate stakeholder partners at quarterly SMB and RA - attendance chart presented to members.
agencies to attend regularly, including use of meetings This has led to revised membership on a
substitute representative representative basis for Housing partners
Improved ownership of MAPPA as above.

iv) to ensure that suitable and accessible Improved attendance rates at SMB. Achieved – meetings for 2007 to be held at
venues for SMB are identified and used during Use of suitable venue for SMB Meetings Cambourne. Venue felt to be more than
2006/7 satisfactory by SMB members.

C. To develop action plan reflecting Devise Action Plan to improve management of Complying with HMI recommendations i) Detailed Probation Plan to improve
recommendations and advice from i)HMIP high risk offenders Introduce Oversight via SMB timeliness and quality of Oasys is in place and
inspection on sex offenders and public significant improvements have been achieved,
protection ii) De Montfort Research Report i) Review progress report from Probation and Introduce especially with High Risk of Harm cases (97%
iii)HMIC on MAPPA (expected July 06) and Police RA members. Oversight via SMB of 5 day ISPs completed on time).
iv)NCPE Practice Advice ii) Police have restructured to ensure central
ii) Police and Probation RA members to management and supervision of staff.
produce action plan and agree schedule for iii) Police have agreed local Key Performance
providing SMB with progress reports on Indicators and are monitoring on a monthly
implementation during 06/07 basis
iv) Quality Assurance subgroup has been set
up and work schedule agreed for 07/08.

D. Implementation of revised MAPPA RA and SMB to consider further guidance Compliance with new guidelines Draft Guidance from PPU received March
arrangements, taking into account HMIP/De when received and advise SMB re resourcing 2007 and comments made – initial work on
Montfort recommendations issues implications has commenced by MAPP

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Annex A: MAPPA – Cambs MAPPA Business Plan 2006/7 continued

2. Monitoring & Evaluation


A. Introduce robust performance monitoring i) Develop PI’s/Standards/ Demonstrate enhanced monitoring activity i) Excel Spreadsheet developed to assist
arrangements to provide confidence to Monitoring to include diversity monitoring.
stakeholders that protection arrangements are
good/effective • No’s at Level 2/3 meetings Improved performance across key areas Annual Report published with required stats
• Attendance Analysis during 2006/7 including SFO’s and SOO’s.
• Diversity Profile Framework for collating agency attendance
• No’s of MAPPA Serious obtained but cannot be implemented without
Further Offences further admin resource.
• Sex Offender Orders
• Annual Report ii) Subgroup now set up and has agreed
framework for quarterly monitoring in first
ii) Review mechanism for evaluation of impact Review completed by April 2007 instance.
of discussions at level 2 and 3 meetings e.g.
on public protection 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.

B. Use of Police/ViSOR e.g. by Probation Agreement by CPA about training and ViSOR in use by agreed staff and integration Instructions re pilot roll out to Probation
roll-out arrangements for use of VISOR by of ViSOR into mainstream probation and received and under discussion in that agency.
Probation staff police practice

C. Review of Gatekeeping system for referrals Discuss at RA meeting Appropriate use of resources. Sub-group now in place to address this issue.
(Appeals/Process/Rejections) Agree review process and propose to SMB Appropriate management of risk.

D. Increase links to Serious Case Reviews Formal review of links with Serious Improved information sharing with Serious National consultation to take place this
Case Reviews Case Reviews autumn – not yet notified.

E. Establish new Serious Further Police and Probation to agree new protocol Increased co-operation and information Under discussion between RA members.
Offences Protocol for co-operation re serious case reviews sharing between Police and Probation re SFO Agreement expected by June 2007.

3. Communications & Partnership Strategy


A. To improve accessibility and overall quality i) Colour/Printing/layout/Distribution – learn Achieved

of Annual Report from other areas

ii) Use Probation PR Improved Annual Report. Achieved

iii) Improve Planning Process
iv) Increase Lay Adviser Participation in Evidence of increased community engagement Achieved – Lay Advisor has been involved in
Production of Annual report in publication of Annual Report e.g. Annual Report preparation..
attendance at launch by SMB Duty to Co-
v) Discuss Potential for Launch operate partners Major launch not favoured after further
Event/Publishing Annual Report discussion at SMB.

B. Develop Communication Strategy i) Identify Opportunities to Work with Media Presentation of Annual Report to CDRP’s, MAPP Manager gave press interviews on
and/or key partner forums – CDRPs, LSCB, LSCBs and Local DV groups publication of Annual report. Report
DV groups circulated.

Media and Communications Strategy has

been agreed.

22 Protecting the Public 2006/07

MAPPA Report 2006_07 2.qxd:Mappa report 06 10/10/07 15:32 Page 23

Annex A: MAPPA – Cambs MAPPA Business Plan 2006/7 continued

4. Training/Workforce Development

A. Training Schedule for Lay Advisors in Schedule put in place to support Lay managers have received training to Second Lay Advisor has been appoitned and
Cambridgeshire to be developed and actioned understanding and encourage shared learning support the development of their role and training schedule agreed and commenced.
between two Advisors, incorporating national enhance understanding of MAPPA
arrangements/provision. List of agreed tasks for Lay Advisor role
agreed by SMB.

B. To ensure attendance at National/Regional MAPP Manager supported to attend Best practice developed Appraisal conducted. MAPP Manager has
Conferences and Training Events relevant conferences- attended National Parole Conference (joint
Training plan incorporated into appraisal funded)

MAPPA Co-ordinators have individual training Individual staff and organisational needs Admin 1 post appraised and training plan in
plan are met. place and actioned.
Admin 2 has had training as appropriate
this year

C. To use core training material to support i) Receive collated material/national training Improved SMB training opportunities. Collated materials now due March 07.
MAPPA SMB training and support training to pack from National Workgroup.
new practitioners Police have developed presentational material
ii) Discuss with SMB members to clarify their that has been circulated to SMB members
requirements for use.

iii) Modify existing presentations to new Improved presentations for new practitioners MAPP Manager (with police help) continues to
practitioners deliver low key training to staff groups on

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MAPPA Report 2006_07 2.qxd:Mappa report 06 10/10/07 15:32 Page 24

Annex B:

1. MAPPA Development Strategy


A. Review existing MAPPA Coordinator and i) Responsible Authority to ensure that needs June 2007 To demonstrate by April 2008 that an
Administrator capacity in Cambridgeshire analysis framework is put in place. appropriate level of administration resources
during 2007/08 are in place to deliver core tasks.
(also see 1.C and 2A(ii) ) ii) RA to present needs analysis framework to September 2007
SMB, with recommendations to ensure that
capacity levels keep up with demand.

B. To continue to develop active participation i) Identify/confirm key stakeholders and July 2007 Improved ownership of MAPPA. Increased
in MAPPA with key stakeholders and partners. confirm working links to the SMB Review of Memorandum of Understanding no active participation by ‘Duty to Co-operate’
later than December 2007. partners in SMB meetings

October 2007

ii) Restate ‘Duty to Co-operate’ and invite Discuss at SMB July 07 Ditto
agencies to participate

iii) Monitor Attendance at SMB and RA. Gain appropriate follow up action by SMB if no Improved attendance rates from key
commitment from 'Duty to Co-operate' attendance. stakeholder partners at quarterly SMB and RA
agencies to attend regularly, including use of meetings
substitute representative
Review at each SMB during 2007/08 with Improved ownership of MAPPA

iv) to ensure that suitable and accessible Review suitability of South Cambs venue Improved attendance rates at SMB.
venues for SMB are identified and used during before December 2007. Further research as Use of suitable venue for SMB Meetings
2007/08 needed

C. To continue work on developing and Agree Action Plan to improve management of Complying with HMI recommendations
implementing Action Plan to ensure key high risk
recommendations are implemented in respect offenders
of the following: Introduce oversight via SMB
i) HMIP inspection on sex offenders and i) Review progress report from Probation, October 07 SMB
public protection Police and Prison RA members.
ii) De Montfort Research
Report ii) Police and Probation RA members to As agreed schedule
iii) HMIC on MAPPA produce action plan and agree schedule for
iv) NCPE Practice Advice providing SMB with progress reports on December 2007
implementation during 07/08 March 2008

D. Implementation of revised MAPPA RA and SMB to agree on action plan to take RA and SMB to take initial view concerning
arrangements, taking into account HMIP/De account of new guidance. implementation of guidance no later than April
Montfort recommendations 2007.

RA to produce implementation plan to

incorporate new guidance and present to SMB
for approval.

To be confirmed

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MAPPA Report 2006_07 2.qxd:Mappa report 06 10/10/07 15:32 Page 25

2. Monitoring & Evaluation


A. Introduce robust performance monitoring Continue to monitor the following during Demonstrate enhanced monitoring activity
arrangements to provide confidence to 2007/08:
stakeholders that protection arrangements are Improved performance across key areas
good and effective. • Numbers attending Level 2/3 Confirm at July 2007 SMB during 2007/08.
meetings Quarterly reporting to SMB during 2007/08.
• Attendance Analysis
• Diversity Profile Due for publication October 2007
• Number of MAPPA Serious
Further Offences
• Sex Offender Orders Annual Report

ii) Review mechanism for evaluation of impact Quality Subgroup to agree programme of Review completed by April 2007
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 By August 2007

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 September 2008 ViSOR in use by agreed staff and integration
confirmed. of ViSOR into mainstream Probation and police

C. Review of Gatekeeping system for referrals Discuss at RA meeting To follow milestones for MAPPA Sub Group Appropriate use of resources.
(Appeals/Process/Rejections) Agree review process and propose to SMB (see point A. above) Appropriate management of risk.

D. Increase links to Serious Case Reviews Formal review of links with Serious Case October 2007 Improved information sharing with Serious
under LSCB framework. Reviews Case Reviews

E. Establish new Serious Further Offences Police and Probation to agree new protocol Protocol agreed by July 2007 Increased co-operation and information
(SFO) Protocol for co-operation re serious case reviews Reviewed by RA or SMB by sharing between Police and Probation re SFO
January 2008 incidents.

Protecting the Public 2006/07 25

MAPPA Report 2006_07 2.qxd:Mappa report 06 10/10/07 15:32 Page 26

Annex B: MAPPA – Cambs MAPPA Business Plan 2007/8 continued

3. Communications & Partnership Strategy


A. To improve accessibility and overall quality To produce accessible and high quality Annual Report Sub Group Working Party to
of Annual Report MAPPA Annual Report. meet in April 2007 to pull together outline of
Annual Report Improved Annual Report

Publication of Annual Report in October 2007.

B. Develop Communication Strategy i) Identify opportunities to work use of ‘Protecting Jayne’ DVD. Presentation of Annual Report
with Media and/or key partner forums Consultation meeting with Police/Probation
Media Relations staff
ii) To plan for SMB Development Day to
coincide with publication of Annual Report to July 07 Action plan for improved working.
improve communication strategy and overall
working of that body By November 2007

iii) SMB to confirm that each participating By July 2007 Continuing PR activity within relevant
agency has a MAPP lead member of staff to agencies.
publicise MAPPA wtihin their own agency and
agree PR activity for the year, e.g.

4. Training/Workforce Development

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

B. To ensure attendance at National/Regional MAPP Manager supported to attend relevant To be subject to quarterly reviews during Best practice developed
Conferences and Training Events conferences- 2007/08
Training plan incorporated into appraisal

MAPPA Co-ordinators have individual In place – reviewed annually by Individual staff and organisational needs
training plan MAPP Manager are met.
Admin 1 – August 07
Admin 2 - March 08

C. To use core training material to support i) Receive collated material/national training April 2007 Improved presentations for new practitioners
MAPPA SMB training and support training to pack from National Workgroup.
new practitioners
ii) Discuss with SMB members to clarify their

iii) Modify existing presentations to new Arrangements to be confirmed, but there will
practitioners be one Annual Review during 2007/08.

To be confirmed.

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MAPPA Report 2006_07 2.qxd:Mappa report 06 10/10/07 15:32 Page 27


Q What does MAPPA stand for? Q Why doesn’t the public have the right to know if there is
A Multi Agency Public Protection Arrangements.
a paedophile living in their street?
A This is a contentious issue. At the moment the
Q What does MAPPA do? government believes that full public disclosure would
A Brings together those agencies who can contribute to
lead to such offenders going “underground” so that we
would lose the ability to know where they are and
managing high risk offenders in the community.
monitor them. MAPPA looks at every case and would
Q Is this just about sex offenders?
disclose someone’s convictions to another agency, an
organisation or to an individual or family if we believed
A No we also deal with very violent offenders in the they were in imminent danger.
same way.
Q Can you be sure that none of the people you manage
Q Why don’t you just keep these people locked up? through this system will ever reoffend or hurt someone?
A Some serious offenders are now given “indeterminate A No. It is not possible entirely to remove the potential for
public protection sentences” and they will only be offenders to commit a serious further offence and this
released if the risks they pose are considered to have year we have had one person who did so. Whilst any
been greatly reduced. Other offenders are given fixed serious further offending is a tragedy for a person, a
sentences by the courts and HAVE to be released by law family and a community, this years’ figures suggest
– at that point it is our job to have a robust plan in that the MAPPA is generally succeeding in managing
place to manage the risks they present. those offenders who pose the greatest threat to society.
Any case of serious further offending is rigorously
Q What does it mean when a person is “under reviewed by the agencies involved to establish the
supervision” in the community. relevant learning points.
A 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.

Protecting the Public 2006/07 27

MAPPA Report 2006_07 2.qxd:Mappa report 06 10/10/07 15:32 Page 28


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

28 Protecting the Public 2006/07

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Protecting the Public 2006/07 29

MAPPA Report 2006_07 2.qxd:Cover 10/10/07 15:23 Page 1


Multi Agency Public Protection Arrangements

National Probation Service, Cambridgeshire

Matthew Ryder Probation Headquarters

Assistant Chief 1 Brooklands Ave
Officer Cambridge
01223 712345

Andy Jarvis Cambridgeshire Constabulary HQ

Multi Agency Hinchingbrooke Park
Public Protection Huntingdon
Manager PE29 6NP
0845 4564564

Cambridgeshire Constabulary
John Raine Cambridgeshire Constabulary HQ
Detective Superintendent Hinchingbrooke Park
PE29 6NP
0845 4564564

Mark Hopkins Cambridgeshire Constabulary HQ

Assistant Chief Constable Hinchingbrooke Park
PE29 6NP
0845 4564564

Prison Service
Steve Rodford HMP Whitemoor
Governor Longhill Road
01354 602350