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Keeping Communities Safe

Cambridgeshire Multi-Agency Public Protection


Arrangements Annual Report 2005/06
KEEPING COMMUNITIES SAFE 2005/06
Contents

Page

Foreword 2

Introduction 3

Key Achievements 4

Case Histories 6

How the MAPPA operate locally 8

Who’s who in MAPPA 9

Helping victims of Crime 15

Understanding the Statistics 16

Statistical Information 17

Strategic Management Board 18

Lay Advisors 19

Annex A National Overview and 5 Year Review 20

Annex B Cambridgeshire MAPPA Business Plan 2006/7 29

KEEPING COMMUNITIES SAFE 2005/06 1


Foreword

Making our communities safer and reducing re-offending is our highest priority and one of our biggest challenges.
That is why the work undertaken through these multi-agency public protection arrangements (MAPPA) is so
important. The supervision and management of sexual and violent offenders who pose the highest risk of serious
harm, whether in the community or in custody, is complex and challenging; and is an aspect of public service where
the public rightly expects all reasonable action to be taken.
Although we have made significant progress in the last five years with the development of MAPPA across England
and Wales, the review this year of a number of tragic incidents where people have been murdered or seriously injured
reminded us of the importance of reviewing performance, improving practice and learning lessons. It is vital that
these tasks are undertaken by the probation, police and prison services, as well as by those other agencies that
contribute to the assessment and management of offenders. The publication of MAPPA Business Plans by each Area
in this year’s annual reports offers a helpful and necessary programme of local development and review and must
lead to enhanced practice. It will be essential that this progress is transparent and shared with local communities.
In addition to this, however, it is important that no opportunity is missed to consider other measures that will further
enhance public safety. That is why we are undertaking the Child Sex Offender Review, to look at how a particular
group of offenders, who provoke anxiety for many, are best managed in the community. The review is consulting a
wide range of practitioners and key stakeholders including the MAPPA lay advisers, and will report around the end of
the year.
Finally, in commending this report to you, I want to take the opportunity to thank all those involved locally in working
with sexual and violent offenders, or in ensuring that these arrangements are fit for purpose. Where MAPPA is
working well it is based on maintaining high professional standards and effective multi-agency collaboration in the
delivery of robust risk management plans. While it is not possible to eliminate risk entirely, where all reasonable
action is taken the risk of further serious harm can be reduced to a minimum and fewer victims will be exposed to
repeat offending.

Gerry Sutcliffe MP
Parliamentary Under Secretary of State
for Criminal Justice and Offender Management

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Introduction

Julie Spence John Hughes Danny McAllister

Public safety is our top priority – and the close inter-agency co-operation at the centre of the Multi-Agency Public
Protection Arrangements (MAPPA) –has greatly increased our ability to reduce re-offending by violent and sexual
offenders.
The MAPPA process identifies and assesses those who pose a risk of harm and finds ways to manage them
effectively by sharing all relevant information and agreeing what action or restrictions to put in place.
This report shows clearly that Cambridgeshire has successfully managed over 500 serious sexual or violent
offenders. But we cannot be complacent - when dealing with such volatile people it is impossible to guarantee such
offences will not take place in the future. The constant scrutiny and vigilance of the MAPPA process is our best
chance of protecting the public from the risk posed by such offenders.

Julie Spence Chief Constable, Cambridgeshire Constabulary


John Hughes Chief Officer, National Probation Service Cambridgeshire
Danny McAllister Eastern Area Manager, Prison Service

KEEPING COMMUNITIES SAFE 2005/06 3


Key achievements

During the last 12 months there has been a consolidation of the Multi Agency Public Protection
Arrangements in Cambridgeshire. These Arrangements, first established by the Criminal
Justice and Court Services Act 2000, were amended by the Criminal Justice Act of 2003,
which contained a provision to 'impose a duty to co-operate' on various agencies.

During 2005/6 a new Memorandum of Understanding The “Responsible Authority” for the MAPPA is the Police,
has been signed by all relevant local agencies. The Probation and Prison Services. In 2005/6 new terms of
memorandum replaces earlier protocols and has reference have been agreed by the Cambridgeshire
clarified our understanding of the “duty to co-operate” Responsible Authority to clarify this shared statutory
by outlining each party's responsibilities and duties duty. Those terms of reference state that:
towards the other. The memorandum includes the
Within the Cambridgeshire MAPP Arrangements:
agreement that agencies will:
• the MAPP manager and the MAPP co-ordinator roles
• Share information to prevent serious harm to a
are jointly funded by Police and Probation.
third person
• a member of the 'Responsible Authority' chairs the
• Have representation at a senior level at the MAPPA
Strategic Management Board on a rotational basis.
Strategic Management Board
• the 'Responsible Authority' is responsible for the
• Attend MAPPA meetings as required and engage
recruitment of Lay Advisors and providing
actively with the process
induction.
• Identify a named manager within each partner
• the 'Responsible Authority' is responsible for
agency to oversee the operation of the MAPPA
developing a communication strategy with the
arrangements
public that can provide reassurance to the
• Co-operate in the implementation of action plans community.
for the management of individuals who have been
• the 'Responsible Authority' is responsible for
registered under the MAPPA
identifying standards and best practice and
• Keep information secure monitoring compliance.
• Take part in an annual audit of this memorandum • the 'Responsible Authority' is responsible for
in order to ensure it remains fully effective negotiating with the 'duty to co-operate' agencies a
contribution towards the infrastructure.
• Be fair to fellow partners when dealing with the
media The work of the MAPPA in Cambridgeshire has also
been guided by the publication of the first research into
• Work to the principle that all personal data remains
the MAPPA (Strengthening Multi Agency Public
the property of the disclosing agency
Protection Arrangements – Kemshall, Mackenzie, Wood,
• Contribute resources, as negotiated, to support the Bailey and Yates. Home Office. 2005). One of the areas
operational management of the MAPPA of good practice highlighted in that research was the
• Commit appropriate resources for the benefit of positive links with the Area Child Protection
implementation of MAPPA action plans Committees (now superseded by the Local Safeguarding
Children Boards). In Cambridgeshire this year the
• Provide advice where there may be no direct MAPPP Manager has given presentations to both the
involvement but the agencies' expertise may assist, Cambridgeshire and Peterborough Boards, has been a
e.g.: in advising about how specific services can member of a subcommittee and has attended strategy
be accessed.

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meetings in relation to managing the risks posed by a found at Appendix Two of this report. The Statistics
group of adults in a particular location. Several that quantify the work carried out over the year can also
members of the Strategic Management Board of the be found in a later section (page 17) and demonstrate
MAPPA are also members of the Local Safeguarding the continuing achievements of the local arrangements
Children Boards and ensure that items of interest that are well supported by the agencies concerned.
discussed at the latter are also tabled at the SMB.
The Strategic Management Board of the MAPPA in
Towards the end of 2005/6, work commenced on the Cambridgeshire has been strengthened this year by the
first “Business Plan” for Cambridgeshire MAPPA which following agencies or organisations joining us – Job
will set the agenda for discussions at the Responsible Centre Plus, Serco Monitoring, HMP Peterborough – and
Authority Meetings and the Strategic Management by the input from the first of our Lay Advisors.
Board for the year ahead. That Business Plan can be

KEEPING COMMUNITIES SAFE 2005/06 5


Case histories

To illustrate the day to day work of the MAPPA here are two examples of people that have been
successfully managed on release into the community.
In some cases repeat offending is very likely and the surveillance and supervision is planned accordingly. This first
case history updates a report that was featured in the last two Annual Reports, and illustrates how the work of the
MAPPA sometimes involves on-going monitoring over a number of years.

PERSON A Action
He was given a two year sentence and monitored
Background throughout his sentence. The prison shared information
about his continuing refusal to discuss the problem,
Last year we reported how A became obsessed with a
and his patterns of behaviour such as pacing up and
girl who did not want a relationship with him. Over
down his cell. A Probation Officer visited A and he
time his behaviour became more and more
indicated an increased willingness to co-operate on his
threatening until he was charged with harassment
release. His agreed licence conditions included living
and a Restraining Order was issued. Breach of the
in Approved Premises, avoiding specified exclusion
order led to a prison sentence but he refused to
zones. and his victim was given protection. His case
cooperate with licence conditions and again tracked
was discussed regularly at MAPPA level two meetings.
her down. He broke into the home where she was
A managed to comply for a couple of weeks but a
temporarily living. A was sent back to custody, and
failure to return to the hostel at curfew time lead to an
was referred to the MAPPA at Level Two. A plan was
immediate recall. He was seen near his victim’s home
put in place for his subsequent release that involved
and the Cambridgeshire Police helicopter used its night
a major protection package for his victim, and
vision camera to locate him - and he was arrested.
included work to engage with him, and help A to see
how damaging his actions were. Once again he
ignored licence conditions on release, and after a
Outcome
general alert in the relevant area, he was arrested To update this story we can now add that the further
and charged with a further breach of the Restraining charge of breach of Restraining Order brought a
Order. remand into custody and further reports. He was again
seen by the Consultant Psychiatrist and THIS time he
Assessment at last acknowledged that he had a significant
problem and agreed to cooperate with treatment. The
A Psychiatric Report was requested and the
court made a Hospital Order and he is now receiving
Consultant Psychiatrist asked for a remand into a
mental health inpatient treatment in a closely
secure medical unit to observe him and do a full
monitored unit. He will remain in the hospital until he
assessment.
is considered safe to release and will be released on
The professional view was that A did not have a conditions that mean his compliance will continue to
mental illness, and he could be helped if he would be monitored. When he is ready for release he will be
agree to cooperate. referred back to the MAPPA to ensure that other
Although A took the first steps towards discussion of agencies are actively involved in his ongoing support
his problems, he would not agree to further work. He and to ensure that the victim – who has been updated
thought that prison would be an easier alternative in throughout this sequence of events – is fully aware of
relation to continuing to live where he wanted. the situation.

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Most cases do not need to be referred to a Level Three MAPP even when they pose considerable risk issues. Even
serious sex offenders can be dealt with successfully at the Local Risk Management Meetings where work involving
Social Services can also be significant.

PERSON B would not co-operate with her social worker. An


allegation (admitted) that he had looked after the
two younger children for a couple of hours lead to an
Background emergency recall to prison. Police applied for a Sex
B has offences of Indecent Assault against his step- Offences Prevention Order (SOPO) which has a range
daughters for which he served a significant sentence of conditions designed to prevent him living or
of imprisonment. On release he was on licence and working with children or from establishing
was monitored by police as a Registered Sex relationships with women who have children.
Offender, living outside Cambridgeshire.
Outcome
Assessment After serving a further part of his sentence in custody
He moved nearer to the family home which brought he was released to Approved Premises so that he
him back into Cambridgeshire and assessments could be under an enhanced level of monitoring.
showed a rise in risk levels as monitoring revealed Social Services have taken care proceedings to
him to be in touch with his ex partner, who wanted to protect the children as Mr B’s partner continues to
resume the relationship. Although he was not allowed pursue her relationship with him. None of the
to return to the family home and the victims of the children are currently at home and work has
offences had left home or were in care, there were continued through the MAPPA to ensure their
younger children still at home. protection. In recent weeks he has been recalled to
prison once again - this time for failing to notify his
Action Probation Officer that he had taken up voluntary work
in a charity shop – he was also in breach of his SOPO
Social Services were invited to attend the level two
by this activity and will be charged. A further
MAPPA meetings being held on a regular basis. From
sentence of imprisonment is likely, and monitoring
contact with Social Services it became clear that his
will continue.
partner was not fully protective of her children and

KEEPING COMMUNITIES SAFE 2005/06 7


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 Level Three meetings for the “critical few” are called on
two agencies, as is the position of two part time an occasional basis when cases arise. In 2005/6 only
MAPP Coordinators. The latter supports the MAPP four offenders were managed for a time at this level.
Manager in producing high quality minutes and risk This is in line with Home Office advice that only the
management plans. “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 tier system that
concentrate on offenders living in the local community, or ensures that the most dangerous offenders receive the
about to be released from prison. These meetings are called greatest degree of scrutiny and oversight.
Local Risk Management Meetings and are at “Level Two”.

The three tiers


Level One Level Two Level Three
Offenders at this level are those The management of offenders in The ‘critical few’ level three
assessed as posing a low or this category is handled at Local offenders are assessed as being
medium risk of re-offending. They Risk Management Meetings at high or very high risk of
are likely to be managed by one where the active involvement of causing serious harm and are
agency without actively or more than one agency is required managed by a range of agencies
significantly involving other in managing the risk. The level of sitting on the Multi Agency Public
agencies. risk is more complex than Level Protection Panel. This small
One, but does not require the group presents risks that can
intensive supervision of the only be managed by a plan that
Multi-Agency Public Protection requires close cooperation at
Panel (MAPPP). senior level or where the case is
exceptional because of media
scrutiny and/or public interest in
the management of the case.

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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 process also enables the report writer to determine


an offender’s suitability to attend the Sex Offender
Responsible Authority Member,
Treatment Programme.
Detective Supt John Raine
• Supervision and management of offenders placed
The Cambridgeshire Constabulary contributes to the
on community orders, including action to ‘breach’,
MAPPA through:
or in other words, to return an offender to court or
• Investigating crimes that come to light through the prison who has failed to comply.
information sharing activities of the MAPPA and
• Delivery of Specialist Accredited Programmes to
taking appropriate action.
address offending behaviour, including the
• Having dedicated Sex and Dangerous Offender nationally recognised “Thames Valley” Sex Offender
Intelligence Officers on each of the three Divisions Treatment Programme.
who focus on public protection and the
• Work with prisoners before their release, and the
management of high risk offenders.
supervision and management of offenders on
• Using a nationally agreed Risk Assessment Tool licence living in the community, including taking
(Risk Matrix 2000) to prioritise Registered Sex necessary action to recall individuals back to prison.
Offenders and visit them according to agreed policy.
• Provision of accommodation in National Probation
• Having a dedicated officer holding the Constabulary Service Approved Premises for offenders who need
responsibility for the National Register of Violent an enhanced level of supervision.
and Sex Offenders (VISOR) and locating this officer
with the MAPP Manager to ensure prompt and PRISON SERVICE
effective information sharing.
Responsible Authority Member, Martin Lomas, Governor.
• Jointly chairing the Strategic Management Board, and
The Prison Service, alongside Police and Probation, is
jointly funding the post of the MAPP Manager and the
now part of the Responsible Authority. While offenders
MAPP Coordinators with the Probation Service.
are serving their custodial sentences, the Prison Service
also works with them to address the causes of their
NATIONAL PROBATION SERVICE,
offending behaviour; and undertakes further
CAMBRIDGESHIRE
programmes of work to assist their successful
Responsible Authority Member, resettlement back into the community.
Matthew Ryder, Assistant Chief Officer
A number of measures have been put in place across
The National Probation Service, Cambridgeshire, makes the prison estate to ensure that this will be effective
a wide ranging contribution to the work of the MAPPA. and has resulted in:
This includes the:
• Prompt identification of MAPPA offenders so that
• Initial assessment of offenders who come before the their details can be used in sentence planning
courts for offences of sex or violence. Probation staff arrangements, including interventions to manage
use a standard assessment tool, the Offender and reduce risk
Assessment System (OASys). This assessment

KEEPING COMMUNITIES SAFE 2005/06 9


Matthew Ryder, Head of Fran Foreman, Offender Manager, Carol Ashford, MAPP Manager.
Offender Management for the for the Cambridgeshire Probation Manages and oversees the whole
Cambridgeshire Probation Service. Carries out the day to day MAPPA process throughout
Service. Chairs all MAPP management of an offender under Cambridgeshire. She provides
meetings for high level sex or discussion. She maintains the administrative and organisational
violent offenders. case file, sets and enforces support for meetings and ensures
licence conditions. that agreed actions are carried
out promptly.

A TYPICAL MA
10 KEEPING COMMUNITIES SAFE 2005/06
Steve Selves, Detective Chief Lucy Coleman, Manager of the
Inspector for Cambridgeshire Approved Premises in Peterborough
Constabulary. One of several senior where offenders can be supervised
police officers who may be involved in and accommodated. At this meeting
MAPPP meetings in relation to high she was responsible for the offender
risk offenders. under discussion’s licence
arrangements and curfew
enforcement.

PPP MEETING...
KEEPING COMMUNITIES SAFE 2005/06 11
Who’s who in the MAPPA continued

• Regular monitoring of the behaviour of those Child Protection


assessed as presenting the highest risk, and
Child Protection is a lead responsibility for the Councils.
sharing information with Police and Probation
Their responsibilities are undertaken in partnership with
colleagues
the agencies that make up the Cambridgeshire and
• All relevant risk management information being Peterborough Local Safeguarding Children Boards
provided to multi agency meetings which help plan (which have now superseded the Area Child Protection
an offender’s release Committees). These responsibilities include: -
• At least three months notification to Police and • Undertaking enquiries with the Police into
Probation of the expected release dates of those allegations of abuse of children
offenders who have been referred to the Multi-
• Organising multi-agency child protection
Agency Public Protection Panel (MAPPP), and at
conferences
least six weeks notification of those being managed
at Level Two risk meetings • Providing key workers for all children who have a
Child Protection Plan
• No changes to release dates or arrangements being
made without prior consultation with Police and • Safeguarding and promoting the welfare of children
Probation in need
The Governor of HMP Whitemoor, Martin Lomas, is the • Ensuring with Local Safeguarding Children Board
Responsible Authority Member for the Prison Service in partners that the procedures for safeguarding the
Cambridgeshire – he too is jointly responsible for the welfare of children are up to date and effective
chairing of the Strategic Management Board. • Promoting “Keeping Children Safe” work in all child
The Director of HMP Peterborough – a private prison – care settings e.g. schools, pre-school settings, after
has now joined the Strategic Management Board. school clubs.
A number of other agencies are under the “Duty to • Ensuring safe recruitment practices are
Cooperate” established in the Criminal Justice Act 2003 implemented across the councils and promoted in
and have signed the new Memorandum of Understanding: all childcare settings.
There is close collaboration between Children’s and
Cambridgeshire County Council and Education Services and ever closer working links with
Peterborough City Council the MAPPA. The recently published government advice
“Working Together to Safeguard Children” 2006
CHILDREN’S SERVICES emphasises the role of the MAPPA and other processes
for managing individuals who pose a risk of harm to
The Cambridgeshire MAPPA has links to Cambridgeshire children, including those where there are allegations
County Council and Peterborough City Council. Both but no convictions.
councils are committed to creating safer communities
by working in partnership with statutory agencies. Protection of Vulnerable Adults from Abuse
Children’s Services in both authorities carry out serious
case reviews in accordance with the provisions laid Cambridgeshire County Council Adult Support Services
down in Working Together (DoH 1999) and the Greater Peterborough Primary Care Partnership
have the lead role in ensuring that statutory agencies
Children’s Services in both areas also provide a work in partnership to protect vulnerable adults from
comprehensive Children’s Protection Training abuse.
Programme for practitioners whose work involves the
safeguarding of children’s welfare.

12 KEEPING COMMUNITIES SAFE 2005/06


The Cambridgeshire and Peterborough Vulnerable Adult Primary Care Trusts for
Protection Committees bring together representatives Huntingdonshire, Greater
from the statutory, voluntary and private sectors
Peterborough, East Cambridgeshire &
responsible for working with and providing services for
adults. The responsibilities of the committees include:
Fenland, Cambridge City & South
Cambs District. Cambridgeshire &
• To develop, implement and monitor local policies, Peterborough Mental Health
guidance and procedures for inter-agency work.
Partnership NHS Trust.
• To improve ways of working in the light of national Kneesworth Hospital (Private Sector)
and local experience and research.
• To improve the quality of adult protection work HEALTH SERVICES
through further development of training The involvement of health care professionals is highly
opportunities and programmes. beneficial in the work of the MAPPA. The
• To ensure agreement and understanding across Cambridgeshire & Peterborough Mental Health
agencies about operational definitions and Partnership NHS Trust signed up to the original protocol
thresholds for intervention. and signed the new Memorandum of Understanding.

• To audit and evaluate how well local services work A local Community Psychiatric Nurse (CPN) or
together to protect vulnerable adults from abuse. Psychiatric Social Worker now attends the Local Risk
Management Meetings (LRMM) in each of the Police
areas. The involvement of the CPN is proving invaluable
Peterborough Youth Offending Service in ensuring there are good practical arrangements for
Cambridgeshire Youth Offending Service newly released prisoners to receive their prescriptions for
medication, or helping with quick access to psychiatric
YOUTH OFFENDING SERVICES assessment. Work on a multi-agency basis is also
These services operate in Peterborough and targeting the sizeable group of offenders who exhibit
Cambridgeshire and have the primary aim of preventing worrying, and sometimes dangerous behaviour, who “fall
youth offending amongst 10 – 17 year olds. The Youth between” the criminal justice and the mental health
Offending Services are statutory partnerships led by the system.
local authorities and involve a multi-agency approach, Primary Care Trusts (PCTs) are also signatories to the
which includes the Police, Health, Probation and new Memorandum of Understanding. MAPPA ensures
voluntary sector services. Programmes of supervision information is sent to GPs as necessary to inform them
and support are developed and delivered to offenders in of particular risks associated with their patients. There
the community and in youth offender institutes. The is very good communication between the local GP
youth offending services lead in developing strategies practice and those responsible for offenders in
with other agencies such as schools and children’s Approved Premises provision.
social care to prevent younger children getting involved
Kneesworth Hospital is an important facility that
in crime. Only a few young offenders will come to the
although run by the Private Sector has patients with a
attention of the risk management arrangements, but
wide range of disorders whose stay is funded by the
those that do, will have difficult and complex needs.
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.

KEEPING COMMUNITIES SAFE 2005/06 13


Who’s who in the MAPPA continued

Peterborough City Council Housing Department Serco Monitoring Services and Jobcentre Plus
Cambridge City Council Housing Department
A number of voluntary agencies have also signed the
East Cambridgeshire District Council Housing
memorandum of confidentiality and work closely with
Department
other MAPPA partners on a case by case basis:
South Cambridgeshire District Council Housing
Department Bridgegate
Fenland District Council Housing Department Turning Point
Huntingdon District Council Housing Department Drinksense
Hereward Housing Association Ltd Cambridge Cyrenians
Luminus Group
Muir Housing Bridgegate
Nene Housing Society Bridgegate provides advice, information and counselling to
Axiom Housing Society drug users, concerned others and professionals. They have
Warden Housing Association specialist projects for young people and Drug Using
Cross Keys Association Granta Housing Association Parents. Bridgegate also manages the Communities
STATUTORY AND VOLUNTARY HOUSING against Drugs Project that works closely with the Police
and communities.
One of the most difficult and challenging issues
surrounding public protection is the provision of They also work closely within the Child Protection system and
accommodation for released prisoners. The number of with many statutory and non-statutory partners. They provide
statutory and voluntary housing agencies that have services to the Probation Service, Peterborough Youth
signed up to the MAPPA Memorandum of Understanding Offending Team and Cambridgeshire Youth Offending Services.
illustrates the importance of finding suitable
accommodation. Many serious offenders are initially Turning Point
released to National Probation Service Approved Turning Point is a leading national charity that helps the
Premises. These places are limited and in high demand. socially excluded build more independent lives. The
Offenders cannot stay in Approved Premises indefinitely, organisation provides locally tailored services helping
and will eventually move on to further suitable housing people recover from the effects of substance misuse and
at the appropriate time. provides care and support for individuals with mental
A great deal of work is undertaken to place offenders as health problems or learning disabilities. There are projects
sensitively and safely as possible in local in Cambridge and in Huntingdon, and since 1998 a
accommodation. Housing agencies rely on an service has been provided for the whole of Southern
individual’s risk assessment report and other Cambridgeshire. Both projects work closely with and
information to help them make informed and alongside statutory agencies, assisting them in the
responsible decisions. discharge of their responsibilities under the Mental Health
Act and the NHS and Community Care Act. They also have
Supporting People legislation has created opportunities a history of liaison with the Probation Service, working
to provide accommodation support through workers that with offenders who have mental health problems.
will keep in regular touch with offenders in community
provision. These workers provide another way of Bridgegate and Turning Point have both signed up to the
monitoring offenders’ activities and helping them lead Memorandum of Understanding. The two agencies have
responsible lives. agreed to work on a case by case basis with the MAPPA.
Drinksense and Cambridge Cyrenians have become
Other Duty to Cooperate Agencies who are represented involved at an individual case level by providing support
on the Strategic Management Board are for individuals that contributes to risk management plans.

14 KEEPING COMMUNITIES SAFE 2005/06


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
victims is to: attached to the offender's release, which are
• Provide victims with general information about relevant to contact with the victim or his family, and
criminal justice and custodial processes. any other information.
• Consult victims about whether they wish to provide The decision to engage with the Probation Service and,
information relevant to the consideration of any at what stage, is made by the victim.
requirements or licence conditions placed upon the One of the most important tasks involving the MAPPA is
offender on his or her release from custody. to ensure that past victims are not put at risk again
• Consult with victims about whether they wish to be when an offender is released. Victim issues are featured
informed about those licence conditions. as part of every risk management plan.
• Transmit any such information put forward by This case history shows how the agencies worked
victims to the authority considering the offender's together across county boundaries to reduce the risks to
conditions of release. a victim posed by Offender C who was nearing the end
of a 30 month sentence for arson and criminal damage.

consider accommodating and supervising C in this


PERSON C area to reduce the risks to his victim. He was referred
into the MAPPA arrangements and a joint MAPPA
Background discussion was held to agree a Risk Management Plan.
C lived with his female partner in another county, in her He was accommodated in Approved Premises in
home. He had offences dating back to 1972 which Cambridgeshire with significant licence conditions to
included nine against the person, and there were protect the victim, who was in frequent contact with
previous allegations of domestic violence with other Victim Contact staff in her home area. Police shared
partners. The relationship deteriorated and, whilst his information between forces and his car details were
partner was out of the house, he deliberately engineered placed on the ANPR system to monitor any attempts to
a chip pan fire and damaged the property. They return to the home area. The victim sold her house and
subsequently got back together but when she later moved has moved away and work was done with C to address
out of her house he decided to carry out “maintenance his offending behaviour.
work” without her approval and comprehensively
“trashed” the property, destroying the floorboards and Outcome
staircase and spraying offensive graffiti on the walls – In the course of the work done with C it was revealed
when arrested he had two air rifles and a can of petrol. that some of his anger management issues stemmed
Assessment from abuse as a child by his teacher. He has now
C received a prison sentence for the offences against moved out of the hostel and is being closely
his partner. He would not admit the offences and was supervised in the community. He has not attempted to
assessed as posing a serious ongoing risk of harm to find his ex partner and has acknowledged the need to
her because of his obsessional and revenge address some of his personal demons if he is not to
orientated behaviour. put subsequent partners at risk. He is being
Action supported in considering making a formal complaint
Cambridgeshire Probation Service was asked to to police about his abuser – who is still alive.

KEEPING COMMUNITIES SAFE 2005/06 15


Statistics - what do they show about the
work of the MAPPA in Cambridgeshire?
The three 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 Sixteen of these orders were applied for and sixteen full
Registered Sex Offenders in Cambridgeshire, who all orders obtained - double the number in the previous
come under the MAPPA, stands at 387 as opposed to year.
last year’s total of 353. The number of those (excluding
In last year 27 offenders out of the 117 managed
Registered Sex Offenders) who had a 12 month plus
through the MAPPA were recalled – just over 23% - and
sentence for a sexual or violent offence, and who were
only one person was charged with a serious sexual or
released into the community, was 289 – a considerable
violent offence (his case was dropped at Crown Court).
increase on the previous year (192) and may reflect the
Our aim is to manage risk as actively as possible, and
trend for heavier sentences being given to violent
to remove offenders from the community when justified
offenders or increased detection rates. There were 26
to prevent the commission of further offences. Overall
“other offenders” identified by the agencies as having a
the work of the MAPPA can be shown to have made an
conviction for an offence that indicated they were
important contribution to “Keeping Communities Safe”.
capable of causing serious harm, and referred to the
Level Two Meetings. In total there were 702 offenders
(as opposed to 558 in the previous year) who came
under the totality of the MAPPA of whom a relatively
small number - 117 - 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 only four Level Three cases.
The statistics show that 14 Registered Sex Offenders
were prosecuted 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 May 1st 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.

16 KEEPING COMMUNITIES SAFE 2005/06


Statistical information

1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)


i) The number of RSOs living in the Cambridgeshire Area on 31st March 2006. 387
By Division (Basic Command Unit)
Northern 153, Central 123, Southern 111
a) The number of RSOs per 100'000 head of population 53
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 14
iii) Sexual Offences Prevention Orders (SOPOs) applied for 16
Interim SOPOs granted 7
Full SOPOs imposed by the courts in the Area between 1st April 2005 and 31st March 2006 16
iv) The number of Notification Orders applied for, interim Notification Orders granted and full Notification
Orders imposed by the courts in the Area between 1st April 2005 and 31st March 2006 0
v) The number of Foreign Travel Orders applied for and imposed by the courts in the Area between 1st April 2005 and
31st March 2006 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 289
3. Category 3 MAPPA offenders: Other Offenders (OthO)
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. 26
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 1 60
Violent and Other Sex Offenders 3 41
Other Offenders 0 12
(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
0 27
(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.

KEEPING COMMUNITIES SAFE 2005/06 17


Strategic Management Board

The Strategic Management Board of the MAPPA meets on a with respect to legislative and wider criminal justice
quarterly basis. The meeting is jointly chaired by Matthew changes;
Ryder, Assistant Chief Officer, Superintendent John Raine
e) Identify and plan how to meet common training and
for Cambridgeshire Constabulary and Martin Lomas,
developmental needs of those working in the MAPPA.
Governor HMP Whitemoor. The function of the Board is to:
Membership of the Strategic Management Board includes
a) Monitor (on at least a quarterly basis) and evaluate the
Senior Managers from Health, Mental Health Services,
operation of the MAPPA, particularly that of the MAPPPs;
Housing, Adult Social Care Services, Children’s Services,
b) Establish connections with other public protection Job Centre Plus, Electronic Monitoring Services and Youth
arrangements such as Local Safeguarding Offending Services as well as Police, Probation and the
Children’s Boards, local Crime and Disorder Prison Service. We also have representatives from
Partnerships and local Criminal Justice Boards that Education and from Victim Support and several of the
support the operational work of the MAPPA; voluntary agencies and have an active Lay Advisor.
c) Prepare and publish the Annual Report and promote A member of the Strategic Management Board, who
the work of MAPPA in the area; represents the Cambridgeshire NHS Mental Health Trust
was asked to provide his view of MAPPA from his
d) Plan the longer term development of the MAPPA in
position on the Board. He writes
the light of regular reviews of the Arrangements and

“Every agency has to deal with service users with agencies, ensuring sound communication and clear
complex personal histories who present with challenging delineation of each partners` responsibilities. This has been
and often threatening behaviour. Many of these the most significant achievement of the local MAPPA
individuals have either a history of offending behaviour arrangements. We now have effective coordination at the
or have the potential to commit often serious offences. front edge of service delivery.
The risk can vary by degree from those with lower risk
The Strategic Management Board has played an essential
behaviour such as verbal abuse to those who present a
role in ensuring the full engagement and commitment of
serious risk or threat such as serious physical or sexual
each partner in delivering the MAPPA objectives. I have
assault.
found being a member of the Board has brought distinct
Individual agencies` capacities to manage the risks benefits. Each member has taken responsibility for ensuring
posed are often limited by both the skills they possess their organisation is fully briefed about the MAPPA process,
and the legal framework within which they must is clear about their responsibilities and acts as a conduit for
practice. In the past each agency often struggled to two way communication. Clear additional benefits have also
manage the most difficult cases and despite engaging emerged such as an increased understanding of each
with other partner agencies there was no overall other’s responsibilities and the personal rapport which has
framework to coordinate the management of the case developed between Board members over the past few years.
and ensure that effective communication occurred
There are challenges ahead not least that the number of
between each partner. There have been a number of
individuals subjected to the process will grow. The
national inquiries following major incidents which have
challenge will be intensified by the potential intense
highlighted these weaknesses.
media spotlight should an untoward incident occur. I
Since the advent of MAPPA in Cambridgeshire a robust believe the strong relationships which the Board has
process has been established to coordinate the management fostered will help us to face these challenges. I also
of serious offenders by bringing together a wealth of believe the Cambridgeshire MAPPA process is a potential
interagency skills to assist in minimising the risks posed. model of good practice not just for other counties but for
The most crucial part has been the coordination of all the other fields where interagency coordination is required ".

18 KEEPING COMMUNITIES SAFE 2005/06


Lay advisors

The first of two Lay Advisors we have recruited to the direction into the Voluntary and Community Sector,
MAPPA is Dr Caroline Bolton-Smith. Caroline worked for where she has been working for the Community Fund
20 years as a research scientist/Lecturer/Senior branch of the Big Lottery Fund as a Grants Officer,
Lecturer (Universities of Southampton, Nottingham, based in Cambridge but working throughout the Eastern
Dundee, and MRC-HNR in Cambridge) in the nutritional Region. She has experience and interest in working at
biochemistry and public health arena, where she the strategic level: This being one of the reasons she
focused on the role of interactions between nutrition volunteered for the Lay Advisor role, and is now looking
and lifestyle on the inequalities of health, plus work on to continue her career in the VCS at a more strategic
obesity and most recently a focus on the role of level. She is also very environmentally aware and over
micronutrients in ageing (bone health, cognitive the years has participated in many conservation/wildlife
function). She recently made a change in career volunteer projects.

I think it would be fair to say that my role of Lay only very recently (Sept 06) been successful and
Advisor over the first year has been three things: I’ve not had the opportunity to meet them yet.
• a source of great interest, as I gradually The second National Training Weekend (Jan 2006)
understand better how all the organisations was again very informative, focusing on issues
involved in MAPPA work together, around violent and domestic abuse. It also
highlighted the value of having two Lay Advisors for
• a source of admiration for the genuine hard work
the sharing and discussion of local issues. I
and diligence put into the arrangements by staff
attended the Regional MAPPA Conference in March,
of the responsible authorities, and the numerous
which allowed some comparison between the work in
agencies with ‘a Duty to Cooperate’ to make the
Cambridgeshire and the Eastern Region’s other five
public protection arrangements work so
counties.
effectively in Cambridgeshire. This is in the face
of limited resources and lack of prioritisation To say that it has been an eventful year for the Home
from the top down. The success achieved Office concerning Public Protection Arrangements
appears to result from diligence and would clearly be an understatement: I am happy that
prioritisation from the bottom-up, on the part of our arrangements are amongst the best, although
the police and probation officers, whereas improvements are always sought and possible. The
establishing Key Performance Indicators at all new requirement for a Business Plan, which I have
levels of the MAPPA, may help the work get the been able to make some contribution to, should
priority that is clearly required if the existing provide a positive framework for local improvements,
procedures are to achieve maximum public particularly around consistency and audit.
protection; and thirdly,
I have had some input to the presentation of this
• a source of frustration, in that access to local Annual Report to improve its accessibility to the non-
training, and real integration into the MAPPA to specialist reader. [If you are a non-specialist, please
the extent where I can fulfil my role effectively, tell me how interesting and easy to understand, you
has been very slow. Some of this delay is due to found the Annual Report, particularly the summary
changing staff in the Police and Probation and tables of information. My contact details are
services, leaving me a little in limbo, for a senior given below].
contact person, and also partly due to the fact
Dr. Caroline Bolton-Smith.
that recruitment for a second Lay Advisor has

If you want to contact Dr Bolton-Smith to express your views about MAPPA please write to her
C/o National Probation Service, Cambridgeshire, 1 Brooklands Ave, Cambridge, CB2 2BB

KEEPING COMMUNITIES SAFE 2005/06 19


Annex A:
MAPPA – THE FIRST FIVE YEARS : A NATIONAL OVERVIEW OF THE
MULTI-AGENCY PUBLIC PROTECTION ARRANGEMENTS 2001 - 2006

Introduction
It is now just over 5 years since the implementation of the Criminal Justice and Courts’ Services Act 2000 that led to
the formation of the Multi-Agency Public Protection Arrangements, commonly known as MAPPA. As the national
strategic body overseeing the implementation and development of these arrangements it is important for us to
review the progress made, to identify the challenges ahead and set out the national plans for improvement. It is
also an opportunity for the first time to provide a national commentary on the MAPPA annual statistics and to
explain what they are telling us about the growth and complexity of these arrangements.
Much has been achieved in terms of enhancing public safety in the last 5 years and the arrangements are rightly
described as world leading. Yet we are acutely conscious that a number of serious case reviews and other reports
published this year indicate there is still much to do to ensure that the arrangements are fit for purpose and apply
consistently across England and Wales. Unless those operating these arrangements ensure that all reasonable
action is taken to reduce the harm caused by sexual and violent offenders they will have failed. While we recognise
that it is never possible to eliminate risk entirely the public are entitled to expect the authorities to do their job
properly. Making our communities safer and reducing re-offending is our highest priority and one of the greatest
challenges facing the agencies and staff involved.
Over the last year all agencies responsible for establishing, maintaining or contributing to these public protection
arrangements have been extremely busy: the probation service, the prison service, the police service who form the
Responsible Authority in each area, plus the range of agencies who have a duty to co-operate in these arrangements
and include health, housing, education, social services, youth offending teams, Jobcentre Plus, and electronic
monitoring services.
In addition to the agencies, each area has this year benefited from the input of lay advisers. These are people
recruited locally but appointed by the Secretary of State to offer key support to the strategic management of the
MAPPA process. Their role is essentially to ask often fundamental questions of senior practitioners and bring a
community perspective to a process that could otherwise lose sight of its main function: to protect members of the
public from serious harm. Together, all of those inputting to MAPPA have ensured that more high risk sexual and
violent offenders have been identified and proactively managed this year than ever before.

The National MAPPA Statistics


As the scale and complexity of MAPPA has increased so the analysis of the annual report statistics has become more
important in understanding local and national developments in these arrangements. The national analysis offered
below, based upon reports from the areas, highlights a number of important trends, particularly in respect of the
volume of referrals for multi-agency management at Level 2 and Level 3 (MAPPP), and the outcomes of that
management. The individual area MAPPA annual reports are published elsewhere on this web-page and should be
consulted for detailed local commentary.

MAPPA Offenders
The number of offenders in the community that come within the remit of MAPPA increased this year, as anticipated,
although the rate of that increase has slowed from last year (13% to 7%) - see Table 1. A number of factors may
have contributed to this slow down. Firstly, the increase of registered sex offenders (RSOs) is much less than in
previous years at just over 3%; secondly, fewer offenders than expected have been referred into MAPPA under

20 KEEPING COMMUNITIES SAFE 2005/06


Category 3. (These are those offenders who are neither registered sex offenders nor currently supervised by the
probation service/ youth offending team but do have a history of physical or sexual violence and are considered by
the Responsible Authority to pose a current risk of serious harm to the public.) The reasons for these variations
from expectation are unclear but the RSO variation may in part be due to a number of areas last year (2004/5)
incorporating offenders who were still in prison and to refinements areas have continued to make to referral
procedures and the management of risk thresholds. Registered Sex Offenders continue to form by far the largest
category – see Chart 1.Registered Sex Offenders

Table.1 Total number of MAPPA Offenders in the Community by Category (% Change)

Category 2002/03 2003/04 2004/05 2005/06

1. Registered Sex 21513 24572 28994 29973


Offenders (RSO) 14.22% 18% 3.38%

2. Violent Offenders and 29594 12754* 12662 14317


other sex offenders -56.9% -0.72% 13.07%

3. Other offenders 1802 2166 2936 3363


20.2% 35.55% 14.54%

Totals 52909 39492 44592 47653


-25.36% 12.91% 6.86%

* In 2003/4 the criteria for Violent offenders (Category 2) changed to exclude those offenders held in custody.

Chart. 1 Total number of MAPPA Offenders in the Community 2005/6

KEEPING COMMUNITIES SAFE 2005/06 21


Annex A: MAPPA – the First Five Years continued

Registered Sex Offenders


For the first time this year the MAPPA annual reports include a breakdown of the total RSO population for the basic
policing units within each area (see individual area reports). This, together with the density of RSOs per 100,000 of
the population, which ranges from 36/100,000 to 81/100,000 across the 42 Areas of England and Wales, illustrates
the variable distribution of RSOs within the community. There are no obvious or simple explanations for the
distribution of RSOs, which in any case is barely significant statistically.

MAPPA management levels


It is important to remember that the majority of offenders within MAPPA do not pose a significant risk of serious
harm to the public and can therefore be properly managed through the normal supervision arrangements provided by
the probation service, youth offending teams and by police sex offender registration. This is described as level 1
management and accounts for about 71% of the MAPPA population. However, for offenders whose risk of serious
harm is high or complex and requires active management by more than one agency, referral to Level 2 or Level 3
(MAPPP) meetings is vital. A case will generally only qualify for level 3 management where the intervention of senior
agency representatives is required to effect the risk management plan with the authority to release or prioritise
exceptional resources. Chart 2 shows the breakdown of management levels this year.

Chart 2 MAPPA Offenders by Management Level

This is the second year in which both Level 2 and Level 3 (MAPPP) data has been available and Tables 2 and 3
illustrate the number of offenders now subject to collaborative/ multi-agency risk management (29% of the MAPPA
total). For each of these 13,783 offenders agencies will be required to meet on a number of occasions and to
progress actions that reduce the likelihood of re-offending. The tables also provide a fuller picture of the
commitment and resources being provided by the Responsible Authority and other partner agencies within MAPPA.
The Level 3 MAPPP, the highest level of risk management, continues to focus on the most complex offenders,
sometimes referred to as the ‘critical few’, and involves senior managers within each area.

22 KEEPING COMMUNITIES SAFE 2005/06


The use of Level 3 MAPPP has been refined over the last 3 years as part of a concerted effort to ensure that
resources are focused where they can be most effective in enhancing public protection. This year they have been
employed in under 3% of the total MAPPA caseload. At the same time, Level 2 risk management meetings, which are
locally based, have increased in number (12,505) and become the engine room for MAPPA. Whilst there is an
element of focus on level 3, all Areas have recognized the necessity of ensuring adequate management and
administrative support for Level 2; and this is reflected in Business Plans.

Table 2. Breakdown of Level 2 and Level 3 MAPPA Offenders for 2005/6

Category of Offender Level 2 Level 3 Total per Category


(% of MAPPA Total) (% of MAPPA total) (% of MAPPA Total)

1. Registered Sex 6014 580 6594


Offenders (RSO) 12.62% 1.22% 13.84%

2. Violent Offenders and 4280 506 4786


other sex offenders 8.98% 1.06% 10.04%

3. Other offenders 2211 192 2403


4.64% 0.4% 5.04%

Total per Level 12505 1278 13783


26.24% 2.68% 28.92%

Table 3. Offenders referred to Levels 2 and 3 - Comparison with last year (% Change)

Level 2 Level 3

Category of MAPPA Offender 2004/05 2005/06 2004/05 2005/06


1. Registered Sex 5381 6014 626 580
Offenders (RSO) 11.76% -7.35%
2. Violent Offenders and 3615 4280 547 506
other sex offenders 18.39% -7.49%
3. Other offenders 2292 2211 305 192
-3.53% -37.05%
Total: 11288 12505 1478 1278
10.78% -13.53%

Interventions and Outcomes


Information about the scale and categories of offender is complemented by information on direct interventions and
outcomes for this MAPPA managed group (ie those under Levels 2 and 3). These measures deal with breaches of
licence and court order, with sex offender registration requirements and related court orders, and with further
offending – see tables 4 and 5.
The headline figure is, no doubt, that reflecting the number of offenders who, while managed at levels 2 or 3, are
charged with a serious sexual or violent offence. Compared with 2004/5, this year saw a reduction in the number of

KEEPING COMMUNITIES SAFE 2005/06 23


Annex A: MAPPA – the First Five Years continued

serious further offences in this population from 79 (0.6%) to 61 (0.44%) cases this year. And the biggest impact was
where you would want and expect it – with the more intensively managed Level 3 cases. On the face of it the figures
are encouraging but they should be treated with caution for 2 reasons. Firstly, we have only collected the data for 2
years; secondly, with such small numbers any change can trigger a wholly disproportionate, misleading percentage
variation. What is apparent, however, is that the figure is low and whilst any serious re-offending is a matter of great
concern, such a low serious re-offending rate for this particular group of offenders is to be welcomed and supports
the view that MAPPA is making a real contribution to the management of dangerousness in communities.
The data relating to breach of licence and court orders is positive as this reflects an increase in action taken in level 2
and 3 cases prior to them having opportunity to commit serious further harm; ie to recall offenders to prison. A
similarly encouraging picture emerges from a reading of the data on various sex offender provisions – see table 5.
Action taken to enforce the sex offender registration requirements through caution and conviction increased by 30%
from last year and affected 1295 offenders, 4.3% of the total registered in the community. There was also considerable
use made of the range of new civil orders available under the Sex Offences Act 2003(sexual offences prevention orders,
notification orders, foreign travel orders). In total 973 orders have been granted this year an increase of 446.

Table 4. Outcome measures: Level 2 and Level 3 activity for 2005/6 (% Change)

Level 2 Level 3 Total of Level 2 & 3


Category of MAPPA Offender 2004/05 2005/06 2004/05 2005/06 2004/05 2005/06
1. Breach of License 1084 1321 222 219 1306 1540
21.86% -1.35% 17.92%
2. Breach of Orders 55 82 18 22 73 104
49.09% 22.22% 42.47%
3. Charged with SFO 47 50 32 11 79 61
6.38% -65.63% -22.78%

Table 5. Outcome measures: RSO arrests and Sex Offences Act Civil Orders 2004/5 and 2005/6 (% Change)

Sex Offences Act Orders Number of Offenders (04/05) Number of Offenders (05/06)

1. Registered sex offenders 993 1295


(RSO’s) charged/cautioned 30.41%

RSO Enforcement Number of Offenders (04/05) Number of Offenders (05/06)

2. Sexual offences prevention 503 933


orders (SOPOs) granted 85.49%
4. Foreign Travel Orders 1 1
(FTOs) granted 0%
Total Number of Orders 526 973
84.98%

24 KEEPING COMMUNITIES SAFE 2005/06


A Year of Challenges
The raw data provided in the national statistics is helpful but necessarily quantitative. In order to get a better feel
for the quality of MAPPA business it is necessary to work with other forms of analysis and, during the course of this
year, a number of inspection reports and a small number of management reviews of specific cases have been
published which have both detailed shortcomings in practice and highlighted many positive developments in public
protection practice.
It is essential that the product of these, and future, reviews and reports shape the development of MAPPA through
central guidance and local practice and it is instructive to set out the lessons learned this year.

Strengthening Multi-Agency Public Protection Arrangements (Published in October 2005 and


available on www.homeoffice.gov.uk/rds/pubsintro1.html)
This research was undertaken by De Montfort University and found evidence of greater effectiveness and efficiency
across MAPPA teams in England and Wales, compared to an earlier review of public protection arrangements, which
had been conducted before the MAPPA legislation was introduced in 2001. It found that areas were meeting the
MAPPA Guidance specification to a large extent.
It also found that the arrangements had been strengthened by the inclusion of the Prison Service within the
Responsible Authority and by the designation of a number of duty-to-co-operate agencies ( a consequence of the
Criminal Justice Act 2003). The MAPPA process facilitated effective contributions by agencies so that representatives
could make operational decisions and develop risk management plans.
The report made a number of recommendations for policy and practice development which are being taken
forward through the revision of the MAPPA Guidance and the MAPPA business planning process.

Managing Sex Offenders in the Community (A joint thematic inspection by Her Majesty’s
Inspectorates of Probation and Police published in November 2005 and available on
http://inspectorates.homeoffice.gov.uk/hmiprobation )
This inspection found that there was greater focus by police and probation on improving the assessment and
management of high risk sex offenders which offered the prospect of improved performance. However it noted a
number of deficiencies in relation to MAPPA case management records; police home visits for registered sex
offenders and training for both police and probation staff on assessment and management of risk of harm.
These deficiencies have been addressed through the National Offender Management Service Risk of Harm
Improvement strategy and the development and imminent publication of the Police Public Protection Manual.

An Independent Review of a Serious Further Offence case: Damien Hanson and Elliot White
published in February 2006 and available on http://inspectorates.homeoffice.gov.uk/hmiprobation )
This was a report by Her Majesty’s Chief Inspector of Probation into the murder of John Monckton and attempted
murder of his wife Homeyra in November 2004 by two men under the supervision of the London Probation Area. The
report identified overall failures and some specific deficiencies in the way the two cases were managed.
Although neither offender was referred to MAPPA Damien Hanson, who was assessed as presenting a high risk of
serious harm, should have been. Importantly the report has established a number of principles against which future
case management within MAPPA and the National Probation Service will be judged. Key amongst these is that the

KEEPING COMMUNITIES SAFE 2005/06 25


Annex A: MAPPA – the First Five Years continued

public is entitled to expect that the authorities will do their job properly i.e. to take all reasonable action to keep risk
to a minimum.
In response to this report, an action plan was issued to the National Probation Services to ensure delivery of
effective implementation of the report’s five ‘key’ recommendations and 31 practice recommendations.

An Independent Review of a Serious Further Offence case: Anthony Rice published in May 2006 and
available on http://inspectorates.homeoffice.gov.uk/hmiprobation )
This report was completed following the murder of Naomi Bryant in August 2005. The independent review was
requested by the Responsible Authority for MAPPA in Hampshire who were concerned by a number of issues that had
contributed to the risk management failure.
The report details principal findings and recommendations for a range of agencies within and outside MAPPA. Each
of which is being taken forward. Importantly it revealed the failure to manage the offender’s risk of harm to the
public was not due to any single act of negligence or deficiency. Rather it was a cumulative failure of processes and
actions throughout his sentence supervision, both in prison and in the community. This is an essential point to grasp
and reinforces the importance of having an integrated offender management system from start to end of sentence
with clear and consistent practice between the three core MAPPA agencies, prisons, probation and police.
The key recommendation for MAPPA was about maintaining a better balance between human rights of offenders
and protecting the public, and using existing MAPPA guidance properly. Work is already underway to revise and
strengthen national guidance and improve MAPPA’s foundations by way of the national and Area MAPPA business
plans.

Joint Police/Probation/Prisons Thematic Inspection Report: Putting Risk of Harm Into Context –
published in September 2006 and available on
http://inspectorates.homeoffice.gov.uk/hmiprobation
This report found that much had been achieved, including that planned interventions were generally effective in
containing offending behaviour. There were also many areas for improvement and the report makes
recommendations for the more consistent use of MAPPA and sharing of MAPPA good practice, improved risk of harm
assessments and sentence planning and greater victim awareness.
It is important to note that the fieldwork to support the inspection concluded in the autumn of 2005, prior to the
launch of the Risk of Harm Improvement Action plan and other actions referred to in this overview. Nevertheless, the
report has been welcomed and will be considered in further detail by the National Offender Management Service
(NOMS) Risk of Harm Improvement Board as well as the Responsible Authority National Steering Group (RANSG).

Actions to develop MAPPA


Effecting change to these public protection arrangements requires concerted action from a range of agencies and
key stakeholders. MAPPA is not an agency but a set of national arrangements that requires each contributor to
ensure that their own agency’s practice is fit for purpose and that the manner of their collaboration is effective in
assessing and managing the risk posed by sexual and violent offenders.

26 KEEPING COMMUNITIES SAFE 2005/06


It is important to note that MAPPA has benefited significantly this year from the work undertaken by individual
agencies; work that has a direct bearing on how dangerous offenders are assessed and managed. This includes the
OASys Quality Assurance Programme implemented from July 2005; implementation of the offender management
model from April 2006; the launch of the NOMS Risk of harm Guidance and Training resource pack June 2006; and
the planned roll-out of the Police Public Protection Manual.
MAPPA will increasingly benefit from the expansion of ViSOR (the Violent and Sex Offenders Register). ViSOR is an integral
part of plans to strengthen public protection through improved risk assessment and management and will provide
electronic support for MAPPA allowing efficient data sharing between Police, Probation and Prisons. The police have been
using ViSOR since April 2005 and the system will be implemented into the prison and the probation service during 2006/7.
For the first time the Responsible Authorities will be working together on the same I.T system to Reduce Re-offending.

The National MAPPA Business Plan


As the national coordinating body for the Responsible Authority, the RANSG, is tasked with exercising oversight of
MAPPA and ensuring its continued development. To help meet these aims the RANSG published, in November 2005,
a three year National MAPPA Business Plan 2005-8. The plan identifies four broad areas of MAPPA where significant
and consistent improvement is necessary. These include the following;

MAPPA Development Strategy


• Achieve dedicated MAPPA coordination and administration capacity in all areas during 2006/7 (underway)
• Develop RANSG to include national representation of Duty to cooperate agencies (achieved)
• Revise and publish MAPPA Guidance (by April 2007 – see existing Guidance at:
http://www.probation.homeoffice.gov.uk/output/page30.asp)

Monitoring and Evaluation


• Areas to implement a MAPPA Business Plan for 2006/7 (achieved – see area annual reports)
• Development of multi-agency public protection performance indicators (underway)
• Improve the recording and collation of data (underway)
• Develop guidance for a serious case review process (planned for consultation later this year)

Communication and Strategic Partnerships


• The publication of the MAPPA Annual report (achieved)
• Development of the annual report to improve public understanding and engagement (ongoing)
• National MAPPA conference (achieved – November 2005)
• Develop a national communication strategy (issued in June, but Child Sex Offender Review may add further impetus)

Training
• Delivery of lay adviser national training (delivered but also developing so far)
• National coordinators conference (delivered – May 2006)
• Collate core training material (underway)
• Areas to implement a training strategy for new practitioners, new members of the strategic management board
and for coordinators and administrators (underway)

KEEPING COMMUNITIES SAFE 2005/06 27


Annex A: MAPPA – the First Five Years continued

Areas have been asked to produce annual reports on this model and local business plans are attached to area
annual reports for the first time. Future reports will record the progress that has been achieved.

Conclusion
The introduction of MAPPA enables agencies to work more closely than ever before to exchange information and
manage offenders collaboratively, ensuring that potentially dangerous offenders are being properly risk assessed
and robustly managed in the community.
Effective management of high-risk offenders, as a discipline, is still relatively in its infancy. There is continuous
development and the standards and good practice of tomorrow are likely to be different from today’s, achieved
through experience and research. The challenge therefore is not only to match current practice with what we know,
but also to respond rapidly to new learning.
The Inspectorate helpfully suggests that what they are describing can be better understood as the identification of
stages on a journey rather than a destination reached. Since their introduction in 2001, the 42 MAPPAs covering
England and Wales have travelled a great distance in a short time to establish the new arrangements. The vital
public protection work of MAPPA is undertaken by skilled and committed staff and everyone engaged in the
arrangements acknowledges the need for constant vigilance and improvement. The journey is not easy, but
communities are safer because, as this report demonstrates, the Responsible Authorities are travelling together in
the right direction.

John Scott
Head of the Public Protection and Licensed Release Unit
National Offender Management Service
Terence Grange
Chief Constable of Dyfed Powys Police and ACPO Public Protection Lead
Tony Robson
Her Majesty’s Prison Service
On behalf of the Responsible Authority National Steering Group

28 KEEPING COMMUNITIES SAFE 2005/06


Annex B:
MULTI-AGENCY PUBLIC PROTECTION ARRANGEMENTS – CAMBRIDGESHIRE
BUSINESS PLAN 2006-2007

1. MAPPA Development Strategy


STRATEGIC AIM DELIVERY PLAN MILESTONES RESOURCE OUTCOME PROGRESS

A. Review existing MAPPA i) Initial discussion with May 2006 RA members (police and By April 2007 to have
Coordinator and Administrator Responsible Authority to probation re any funding confirmed appropriate
capacity in Cambridgeshire agree process e.g. needs issues) resources are allocated to the
during 2006/7 analysis. task
(also see 1.C and 2A(ii)) ii) Present to SMB July 2006 HR staff – both agencies

B. To develop participation i) Identify/confirm key Review/confirm stakeholder • Duty to co-operate Improved ownership of
with key stakeholders stakeholders and confirm links at SMB July 06 members MAPPA
working links • LCJB/ACPC/LSCP CDRPs Increased active participation
to the SMB Finalise October 06 DV Group Other Partners by Duty to Co-operate
partners in SMB meetings

ii) Restate ‘duty to co-operate’ Discuss at SMB July 06 Ditto Ditto


and invite agencies to
participate

iii) Monitor Attendance at Review at each SMB during RA/SMB Membership Minutes of meeting Improved attendance rates
SMB and RA. Gain 2006/7 with appropriate Attendance record from key stakeholder partners
commitment from Duty to follow up action by SMB if no at quarterly SMB and RA
Co-operate agencies to attend attendance. meetings
regularly, including use of
substitute representative Improved ownership of
MAPPA

iv) to ensure that suitable and Review suitability of South Agency reps Improved attendance rates at
accessible venues for SMB Cambs venue at April 06 SMB.
are identified and used during meeting. Further research as Use of suitable venue for SMB
2006/7 needed Meetings

C. To develop action plan Devise Action Plan to improve October 06 SMB Probation Service plan to Complying with HMI
reflecting recommendations management of high risk improve timeliness and quality recommendations
and advice from i)HMIP offenders As agreed schedule of Oasys assessments on
inspection on sex offenders high risk of harm offenders. Introduce Oversight via SMB
and public protection ii) De i) Review progress report from December 2006
Montfort Research Report Probation and Police RA March 2007 Police plan to meet
iii)HMIC on MAPPA (expected members. organisational requirements
July 06) and iv)NCPE Practice re monitoring of sex
Advice ii) Police and Probation RA offenders, centrally managed
members to produce action with officers intrusively
plan and agree schedule for supervised.
providing SMB with progress
reports on implementation
during 06/07

D. Implementation of revised RA and SMB to consider To be reviewed at each SMB MAPPA Manager – full time Compliance with new
MAPPA arrangements, taking further guidance when (April, July, October,January) MAPPA Co-ordinators. guidelines
into account HMIP/De received and advise SMB when guidance on revised (6days fte)
Montfort recommendations re resourcing issues MAPPA arrangements is
received from NPD/PPU Further resource needs to be
reviewed by police and
probation

KEEPING COMMUNITIES SAFE 2005/06 29


Business plan continued

2. Monitoring & Evaluation


STRATEGIC AIM DELIVERY PLAN MILESTONES RESOURCE OUTCOME PROGRESS

A. Introduce robust i) Develop PI’s/Standards/ Agree at SMB July 06 MAPPA Manager and MAPPA Demonstrate enhanced
performance monitoring Monitoring to include Co-ordinators monitoring activity
arrangements to provide Quarterly reporting to SMB Probation/Police Media
confidence to stakeholders • No’s at Level 2/3 established from October 06 Managers Improved performance across
that protection arrangements meetings key areas during 2006/7
are good/effective • Attendance Analysis Quarterly reporting to SMB VISOR
• Diversity Profile Police Central point of contact Review completed by April
• No’s of MAPPA Serious Published 10/ 06 2007
Further Offences SMB subgroup
• Sex Offender Orders Subgroup membership to be
• Annual Report agreed at July SMB

ii) Review mechanism for


evaluation of impact of
discussions at level 2 and 3
meetings e.g. on public
protection

B. Use of Police/VISOR e.g. by Agreement by CPA about Plan in place by end of 06/07 CPA Heads of Offender VISOR in use by agreed staff
Probation training and roll-out year – awaiting regional roll Management and Information and integration of VISOR into
arrangements for use of out November 07? and Performance mainstream probation and
VISOR by Probation staff police practice

C. Review of Gatekeeping Discuss at RA meeting Quarterly checks re RA members/volunteers from Appropriate use of resources.
system for referrals Agree review process and gatekeeping /threshold levels. SMB? Appropriate management of
(Appeals/Process/Rejections) propose to SMB Process agreed by October risk.
06. Work completed by end of
06/07 year

D. Increase links to Serious Formal review of links with October 2006 RA members Improved information sharing
Case Reviews Serious Case Reviews with Serious Case Reviews

E. Establish new Serious Police and Probation to agree Protocol agreed by July 2006 Police and Probation Senior Increased co-operation and
Further Offences Protocol new protocol for co-operation Reviewed by RA or SMB by Management information sharing between
re serious case reviews January 2007 MAPPA Manager police and probation re SFO
incidents

3. Communications & Partnership Strategy


STRATEGIC AIM DELIVERY PLAN MILESTONES RESOURCE OUTCOME PROGRESS

A. To improve accessibility i) Initial discussions with


and overall quality of Annual Colour/Printing/layout/Distribu Probation Media Manager
Report tion – learn from other areas March 2006

ii) Use Probation PR Person Lay Advisor to contribute to MAPPA Manager, Improved Annual Plan.
(John McAngus) layout and content discussion Probation Media Advisor,
iii) Improve Planning Process May 06 Lay Advisor, Evidence of increased
iv) Increase Lay Adviser Police Press Office community engagement in
Participation in Production of By October 06 publication of Annual Report
Annual report Consultation with Chief e.g. attendance at launch by
v) Discuss Potential for Officers SMB Duty to Co-operate
Launch Event/Publishing partners
Annual Report

B. Develop Communication i) Identify Opportunities to Consultation meeting with RA members – Presentation of Annual Report
Strategy Work with Media and/or key Police/Probation Media to CDRP’s, LSCBs and Local
partner forums – CDRPs, Relations staff Media staff in key agencies DV groups
LSCB, DV groups
July 06

30 KEEPING COMMUNITIES SAFE 2005/06


4. Training/Workforce Development
STRATEGIC AIM DELIVERY PLAN MILESTONES RESOURCE OUTCOME PROGRESS

A. Training Schedule for Lay Schedule put in place to Review effectiveness of Probation Training Manager. Lay managers have received
Advisors in Cambridgeshire to support understanding and training programme for Lay Police training dept. training to support the
be developed and actioned encourage shared learning Advisors in October and again Public Protection Unit. development of their role and
between two Advisors, in March 2007 Lay Advisor. enhance understanding of
incorporating national MAPPA
arrangements/provision.

B. To ensure attendance at MAPPA Manager supported to Appraisal Probation and police funding Best practice developed
National/Regional attend relevant conferences- May 2006 as appropriate
Conferences and Training Training plan incorporated into Follow up review of Training
Events, e.g. Co-ordinator appraisal plan on bi- monthly basis in
2006/7
MAPPA Co-ordinators have
individual training plan In place – reviewed annually MAPPA Manager. Individual staff and
by MAPPA Manager Probation training resources organisational needs are met.
Admin 1 – August 06
Admin 2 - March 07

C. To use core training i) Receive collated As notified MAPPA Manager. Improved SMB training
material to support MAPPA material/national training pack Training staff of RA and Duty opportunities.
SMB training and support from National Workgroup. to Cooperate partners.
training to new practitioners
ii) Discuss with SMB MAPPA Manager and police Improved presentations for
members to clarify their colleague new practitioners
requirements

iii) Modify existing


presentations to new
practitioners

KEEPING COMMUNITIES SAFE 2005/06 31


32 KEEPING COMMUNITIES SAFE 2005/06
KEEPING COMMUNITIES SAFE 2005/06 33
Contacts

Cambridgeshire
Multi Agency Public Protection Arrangements
National Probation Service, Cambridgeshire

Matthew Ryder Probation Headquarters


Assistant Chief 1 Brooklands Ave
Officer Cambridge
CB2 8BB
01223 712345

Carol Ashford 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
Huntingdon
PE29 6NP
0845 4564564

Prison Service
Martin Lomas HMP Whitemoor
Governor Longhill Road
March
Cambs
PE15 OPR
01354 602350