Keeping Communities Safe

Cambridgeshire Multi-Agency Public Protection Arrangements Annual Report 2005/06

KEEPING COMMUNITIES SAFE 2005/06

Contents
Page Foreword Introduction Key Achievements Case Histories How the MAPPA operate locally Who’s who in MAPPA Helping victims of Crime Understanding the Statistics Statistical Information Strategic Management Board Lay Advisors Annex A National Overview and 5 Year Review Annex B Cambridgeshire MAPPA Business Plan 2006/7 2 3 4 6 8 9 15 16 17 18 19 20 29

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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 John Hughes Danny McAllister

Chief Constable, Cambridgeshire Constabulary Chief Officer, National Probation Service Cambridgeshire Eastern Area Manager, Prison Service

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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 has been signed by all relevant local agencies. The memorandum replaces earlier protocols and has clarified our understanding of the “duty to co-operate” by outlining each party's responsibilities and duties towards the other. The memorandum includes the agreement that agencies will: • • • • Share information to prevent serious harm to a third person Have representation at a senior level at the MAPPA Strategic Management Board Attend MAPPA meetings as required and engage actively with the process Identify a named manager within each partner agency to oversee the operation of the MAPPA arrangements Co-operate in the implementation of action plans for the management of individuals who have been registered under the MAPPA Keep information secure Take part in an annual audit of this memorandum in order to ensure it remains fully effective Be fair to fellow partners when dealing with the media Work to the principle that all personal data remains the property of the disclosing agency Contribute resources, as negotiated, to support the operational management of the MAPPA Commit appropriate resources for the implementation of MAPPA action plans Provide advice where there may be no direct involvement but the agencies' expertise may assist, e.g.: in advising about how specific services can be accessed. • The “Responsible Authority” for the MAPPA is the Police, Probation and Prison Services. In 2005/6 new terms of reference have been agreed by the Cambridgeshire Responsible Authority to clarify this shared statutory duty. Those terms of reference state that: Within the Cambridgeshire MAPP Arrangements: • • • the MAPP manager and the MAPP co-ordinator roles are jointly funded by Police and Probation. a member of the 'Responsible Authority' chairs the Strategic Management Board on a rotational basis. the 'Responsible Authority' is responsible for the recruitment of Lay Advisors and providing induction. the 'Responsible Authority' is responsible for developing a communication strategy with the public that can provide reassurance to the community. the 'Responsible Authority' is responsible for identifying standards and best practice and monitoring compliance. the 'Responsible Authority' is responsible for negotiating with the 'duty to co-operate' agencies a contribution towards the infrastructure.

• • • • • • •

The work of the MAPPA in Cambridgeshire has also been guided by the publication of the first research into the MAPPA (Strengthening Multi Agency Public Protection Arrangements – Kemshall, Mackenzie, Wood, Bailey and Yates. Home Office. 2005). One of the areas of good practice highlighted in that research was the benefit of positive links with the Area Child Protection Committees (now superseded by the Local Safeguarding Children Boards). In Cambridgeshire this year the MAPPP Manager has given presentations to both the Cambridgeshire and Peterborough Boards, has been a member of a subcommittee and has attended strategy

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meetings in relation to managing the risks posed by a group of adults in a particular location. Several members of the Strategic Management Board of the MAPPA are also members of the Local Safeguarding Children Boards and ensure that items of interest discussed at the latter are also tabled at the SMB. Towards the end of 2005/6, work commenced on the first “Business Plan” for Cambridgeshire MAPPA which will set the agenda for discussions at the Responsible Authority Meetings and the Strategic Management Board for the year ahead. That Business Plan can be

found at Appendix Two of this report. The Statistics that quantify the work carried out over the year can also be found in a later section (page 17) and demonstrate the continuing achievements of the local arrangements that are well supported by the agencies concerned. The Strategic Management Board of the MAPPA in Cambridgeshire has been strengthened this year by the following agencies or organisations joining us – Job Centre Plus, Serco Monitoring, HMP Peterborough – and by the input from the first of our Lay Advisors.

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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
Background
Last year we reported how A became obsessed with a girl who did not want a relationship with him. Over time his behaviour became more and more threatening until he was charged with harassment and a Restraining Order was issued. Breach of the order led to a prison sentence but he refused to cooperate with licence conditions and again tracked her down. He broke into the home where she was temporarily living. A was sent back to custody, and was referred to the MAPPA at Level Two. A plan was put in place for his subsequent release that involved a major protection package for his victim, and 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 general alert in the relevant area, he was arrested and charged with a further breach of the Restraining Order.

Action
He was given a two year sentence and monitored throughout his sentence. The prison shared information about his continuing refusal to discuss the problem, and his patterns of behaviour such as pacing up and down his cell. A Probation Officer visited A and he indicated an increased willingness to co-operate on his release. His agreed licence conditions included living in Approved Premises, avoiding specified exclusion zones. and his victim was given protection. His case was discussed regularly at MAPPA level two meetings. A managed to comply for a couple of weeks but a failure to return to the hostel at curfew time lead to an immediate recall. He was seen near his victim’s home and the Cambridgeshire Police helicopter used its night vision camera to locate him - and he was arrested.

Outcome
To update this story we can now add that the further charge of breach of Restraining Order brought a remand into custody and further reports. He was again seen by the Consultant Psychiatrist and THIS time he at last acknowledged that he had a significant problem and agreed to cooperate with treatment. The court made a Hospital Order and he is now receiving mental health inpatient treatment in a closely monitored unit. He will remain in the hospital until he is considered safe to release and will be released on conditions that mean his compliance will continue to be monitored. When he is ready for release he will be referred back to the MAPPA to ensure that other agencies are actively involved in his ongoing support and to ensure that the victim – who has been updated throughout this sequence of events – is fully aware of the situation.

Assessment
A Psychiatric Report was requested and the Consultant Psychiatrist asked for a remand into a secure medical unit to observe him and do a full assessment. The professional view was that A did not have a mental illness, and he could be helped if he would agree to cooperate. Although A took the first steps towards discussion of his problems, he would not agree to further work. He thought that prison would be an easier alternative in relation to continuing to live where he wanted.

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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
Background
B has offences of Indecent Assault against his stepdaughters for which he served a significant sentence of imprisonment. On release he was on licence and was monitored by police as a Registered Sex Offender, living outside Cambridgeshire.

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 emergency recall to prison. Police applied for a Sex Offences Prevention Order (SOPO) which has a range of conditions designed to prevent him living or working with children or from establishing relationships with women who have children.

Outcome Assessment
He moved nearer to the family home which brought him back into Cambridgeshire and assessments showed a rise in risk levels as monitoring revealed him to be in touch with his ex partner, who wanted to resume the relationship. Although he was not allowed to return to the family home and the victims of the offences had left home or were in care, there were younger children still at home. After serving a further part of his sentence in custody he was released to Approved Premises so that he could be under an enhanced level of monitoring. Social Services have taken care proceedings to protect the children as Mr B’s partner continues to pursue her relationship with him. None of the children are currently at home and work has continued through the MAPPA to ensure their protection. In recent weeks he has been recalled to prison once again - this time for failing to notify his Probation Officer that he had taken up voluntary work in a charity shop – he was also in breach of his SOPO by this activity and will be charged. A further sentence of imprisonment is likely, and monitoring will continue.

Action
Social Services were invited to attend the level two MAPPA meetings being held on a regular basis. From contact with Social Services it became clear that his partner was not fully protective of her children and

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How the MAPPA operates locally
The MAPPA in Cambridgeshire has been developed through the appointment of a MAPP Manager, a Senior Probation Officer, who was seconded to work at Police Headquarters. The location of the MAPP Manager with the Police has been a major success in developing information sharing between Police and Probation.
The post of the MAPP Manager is jointly funded by the two agencies, as is the position of two part time MAPP Coordinators. The latter supports the MAPP Manager in producing high quality minutes and risk management plans. Formal meetings are held regularly in each of the Police Divisions. The Manager chairs the meetings where members concentrate on offenders living in the local community, or about to be released from prison. These meetings are called Local Risk Management Meetings and are at “Level Two”. Level Three meetings for the “critical few” are called on an occasional basis when cases arise. In 2005/6 only four offenders were managed for a time at this level. This is in line with Home Office advice that only the “critical few” should be referred to the Level Three Multi Agency Public Protection Panel. In practice, therefore, MAPPA is a three tier system that ensures that the most dangerous offenders receive the greatest degree of scrutiny and oversight.

The three tiers
Level One
Offenders at this level are those assessed as posing a low or medium risk of re-offending. They are likely to be managed by one agency without actively or significantly involving other agencies.

Level Two
The management of offenders in this category is handled at Local Risk Management Meetings where the active involvement of more than one agency is required in managing the risk. The level of risk is more complex than Level One, but does not require the intensive supervision of the Multi-Agency Public Protection Panel (MAPPP).

Level Three
The ‘critical few’ level three offenders are assessed as being at high or very high risk of causing serious harm and are managed by a range of agencies sitting on the Multi Agency Public Protection Panel. This small group presents risks that can only be managed by a plan that requires close cooperation at senior level or where the case is exceptional because of media scrutiny and/or public interest in the management of the case.

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Who’s who in the MAPPA
Protecting the Public from sexual and violent offenders is best achieved by effective joint working between all the relevant statutory and voluntary bodies. The private sector can also have a role to play. The MAPPA is headed up by the Responsible Authority Members, Cambridgeshire Police, Probation Service and the Prison Service. CAMBRIDGESHIRE POLICE
Responsible Authority Member, Detective Supt John Raine The Cambridgeshire Constabulary contributes to the MAPPA through: • Investigating crimes that come to light through the information sharing activities of the MAPPA and taking appropriate action. Having dedicated Sex and Dangerous Offender Intelligence Officers on each of the three Divisions who focus on public protection and the management of high risk offenders. Using a nationally agreed Risk Assessment Tool (Risk Matrix 2000) to prioritise Registered Sex Offenders and visit them according to agreed policy. Having a dedicated officer holding the Constabulary responsibility for the National Register of Violent and Sex Offenders (VISOR) and locating this officer with the MAPP Manager to ensure prompt and effective information sharing. Jointly chairing the Strategic Management Board, and jointly funding the post of the MAPP Manager and the MAPP Coordinators with the Probation Service. • process also enables the report writer to determine an offender’s suitability to attend the Sex Offender Treatment Programme. Supervision and management of offenders placed on community orders, including action to ‘breach’, or in other words, to return an offender to court or prison who has failed to comply. Delivery of Specialist Accredited Programmes to address offending behaviour, including the nationally recognised “Thames Valley” Sex Offender Treatment Programme. Work with prisoners before their release, and the supervision and management of offenders on licence living in the community, including taking necessary action to recall individuals back to prison. Provision of accommodation in National Probation Service Approved Premises for offenders who need an enhanced level of supervision.

PRISON SERVICE
Responsible Authority Member, Martin Lomas, Governor. The Prison Service, alongside Police and Probation, is now part of the Responsible Authority. While offenders are serving their custodial sentences, the Prison Service also works with them to address the causes of their offending behaviour; and undertakes further programmes of work to assist their successful resettlement back into the community. A number of measures have been put in place across the prison estate to ensure that this will be effective and has resulted in: • Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk

NATIONAL PROBATION SERVICE, CAMBRIDGESHIRE
Responsible Authority Member, Matthew Ryder, Assistant Chief Officer The National Probation Service, Cambridgeshire, makes a wide ranging contribution to the work of the MAPPA. This includes the: • Initial assessment of offenders who come before the courts for offences of sex or violence. Probation staff use a standard assessment tool, the Offender Assessment System (OASys). This assessment

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Matthew Ryder, Head of Offender Management for the Cambridgeshire Probation Service. Chairs all MAPP meetings for high level sex or violent offenders.

Fran Foreman, Offender Manager, for the Cambridgeshire Probation Service. Carries out the day to day management of an offender under discussion. She maintains the case file, sets and enforces licence conditions.

Carol Ashford, MAPP Manager. Manages and oversees the whole MAPPA process throughout Cambridgeshire. She provides administrative and organisational support for meetings and ensures that agreed actions are carried out promptly.

A TYPICAL MA
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Steve Selves, Detective Chief Inspector for Cambridgeshire Constabulary. One of several senior police officers who may be involved in MAPPP meetings in relation to high risk offenders.

Lucy Coleman, Manager of the Approved Premises in Peterborough where offenders can be supervised and accommodated. At this meeting she was responsible for the offender under discussion’s licence arrangements and curfew enforcement.

PPP MEETING...
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Who’s who in the MAPPA continued

Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with Police and Probation colleagues All relevant risk management information being provided to multi agency meetings which help plan an offender’s release At least three months notification to Police and Probation of the expected release dates of those offenders who have been referred to the MultiAgency Public Protection Panel (MAPPP), and at least six weeks notification of those being managed at Level Two risk meetings No changes to release dates or arrangements being made without prior consultation with Police and Probation

Child Protection
Child Protection is a lead responsibility for the Councils. Their responsibilities are undertaken in partnership with the agencies that make up the Cambridgeshire and Peterborough Local Safeguarding Children Boards (which have now superseded the Area Child Protection Committees). These responsibilities include: • • • • • Undertaking enquiries with the Police into allegations of abuse of children Organising multi-agency child protection conferences Providing key workers for all children who have a Child Protection Plan Safeguarding and promoting the welfare of children in need Ensuring with Local Safeguarding Children Board partners that the procedures for safeguarding the welfare of children are up to date and effective Promoting “Keeping Children Safe” work in all child care settings e.g. schools, pre-school settings, after school clubs. Ensuring safe recruitment practices are implemented across the councils and promoted in all childcare settings.

The Governor of HMP Whitemoor, Martin Lomas, is the Responsible Authority Member for the Prison Service in Cambridgeshire – he too is jointly responsible for the chairing of the Strategic Management Board. The Director of HMP Peterborough – a private prison – has now joined the Strategic Management Board. A number of other agencies are under the “Duty to Cooperate” established in the Criminal Justice Act 2003 and have signed the new Memorandum of Understanding:

Cambridgeshire County Council and Peterborough City Council
CHILDREN’S SERVICES
The Cambridgeshire MAPPA has links to Cambridgeshire County Council and Peterborough City Council. Both councils are committed to creating safer communities by working in partnership with statutory agencies. Children’s Services in both authorities carry out serious case reviews in accordance with the provisions laid down in Working Together (DoH 1999) Children’s Services in both areas also provide a comprehensive Children’s Protection Training Programme for practitioners whose work involves the safeguarding of children’s welfare.

There is close collaboration between Children’s and Education Services and ever closer working links with the MAPPA. The recently published government advice “Working Together to Safeguard Children” 2006 emphasises the role of the MAPPA and other processes for managing individuals who pose a risk of harm to children, including those where there are allegations but no convictions.

Protection of Vulnerable Adults from Abuse
Cambridgeshire County Council Adult Support Services and the Greater Peterborough Primary Care Partnership have the lead role in ensuring that statutory agencies work in partnership to protect vulnerable adults from abuse.

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The Cambridgeshire and Peterborough Vulnerable Adult Protection Committees bring together representatives from the statutory, voluntary and private sectors responsible for working with and providing services for adults. The responsibilities of the committees include: • • • To develop, implement and monitor local policies, guidance and procedures for inter-agency work. To improve ways of working in the light of national and local experience and research. To improve the quality of adult protection work through further development of training opportunities and programmes. To ensure agreement and understanding across agencies about operational definitions and thresholds for intervention. To audit and evaluate how well local services work together to protect vulnerable adults from abuse.

Primary Care Trusts for Huntingdonshire, Greater Peterborough, East Cambridgeshire & Fenland, Cambridge City & South Cambs District. Cambridgeshire & Peterborough Mental Health Partnership NHS Trust. Kneesworth Hospital (Private Sector)
HEALTH SERVICES
The involvement of health care professionals is highly beneficial in the work of the MAPPA. The Cambridgeshire & Peterborough Mental Health Partnership NHS Trust signed up to the original protocol and signed the new Memorandum of Understanding. A local Community Psychiatric Nurse (CPN) or 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 in ensuring there are good practical arrangements for newly released prisoners to receive their prescriptions for medication, or helping with quick access to psychiatric assessment. Work on a multi-agency basis is also targeting the sizeable group of offenders who exhibit worrying, and sometimes dangerous behaviour, who “fall between” the criminal justice and the mental health system. Primary Care Trusts (PCTs) are also signatories to the new Memorandum of Understanding. MAPPA ensures information is sent to GPs as necessary to inform them of particular risks associated with their patients. There is very good communication between the local GP practice and those responsible for offenders in Approved Premises provision. Kneesworth Hospital is an important facility that although run by the Private Sector has patients with a wide range of disorders whose stay is funded by the Department of Health or Funding Authorities. There is a ward specialising in the treatment of people with Personality Disorders. Good liaison between the hospital and community agencies is vital to monitor offenders treated and subsequently discharged.

Peterborough Youth Offending Service Cambridgeshire Youth Offending Service
YOUTH OFFENDING SERVICES
These services operate in Peterborough and Cambridgeshire and have the primary aim of preventing youth offending amongst 10 – 17 year olds. The Youth Offending Services are statutory partnerships led by the local authorities and involve a multi-agency approach, which includes the Police, Health, Probation and voluntary sector services. Programmes of supervision and support are developed and delivered to offenders in the community and in youth offender institutes. The youth offending services lead in developing strategies with other agencies such as schools and children’s social care to prevent younger children getting involved in crime. Only a few young offenders will come to the attention of the risk management arrangements, but those that do, will have difficult and complex needs.

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Who’s who in the MAPPA continued

Peterborough City Council Housing Department Cambridge City Council Housing Department East Cambridgeshire District Council Housing Department South Cambridgeshire District Council Housing Department Fenland District Council Housing Department Huntingdon District Council Housing Department Hereward Housing Association Ltd Luminus Group Muir Housing Nene Housing Society Axiom Housing Society Warden Housing Association Cross Keys Association Granta Housing Association

Serco Monitoring Services and Jobcentre Plus
A number of voluntary agencies have also signed the memorandum of confidentiality and work closely with other MAPPA partners on a case by case basis: Bridgegate Turning Point Drinksense Cambridge Cyrenians

Bridgegate
Bridgegate provides advice, information and counselling to drug users, concerned others and professionals. They have specialist projects for young people and Drug Using Parents. Bridgegate also manages the Communities against Drugs Project that works closely with the Police and communities. They also work closely within the Child Protection system and with many statutory and non-statutory partners. They provide services to the Probation Service, Peterborough Youth Offending Team and Cambridgeshire Youth Offending Services.

STATUTORY AND VOLUNTARY HOUSING
One of the most difficult and challenging issues surrounding public protection is the provision of accommodation for released prisoners. The number of statutory and voluntary housing agencies that have signed up to the MAPPA Memorandum of Understanding illustrates the importance of finding suitable accommodation. Many serious offenders are initially released to National Probation Service Approved Premises. These places are limited and in high demand. Offenders cannot stay in Approved Premises indefinitely, and will eventually move on to further suitable housing at the appropriate time. A great deal of work is undertaken to place offenders as sensitively and safely as possible in local accommodation. Housing agencies rely on an individual’s risk assessment report and other information to help them make informed and responsible decisions. Supporting People legislation has created opportunities to provide accommodation support through workers that will keep in regular touch with offenders in community provision. These workers provide another way of monitoring offenders’ activities and helping them lead responsible lives. Other Duty to Cooperate Agencies who are represented on the Strategic Management Board are

Turning Point
Turning Point is a leading national charity that helps the socially excluded build more independent lives. The organisation provides locally tailored services helping people recover from the effects of substance misuse and provides care and support for individuals with mental health problems or learning disabilities. There are projects in Cambridge and in Huntingdon, and since 1998 a service has been provided for the whole of Southern Cambridgeshire. Both projects work closely with and alongside statutory agencies, assisting them in the discharge of their responsibilities under the Mental Health Act and the NHS and Community Care Act. They also have a history of liaison with the Probation Service, working with offenders who have mental health problems. Bridgegate and Turning Point have both signed up to the Memorandum of Understanding. The two agencies have agreed to work on a case by case basis with the MAPPA. Drinksense and Cambridge Cyrenians have become involved at an individual case level by providing support for individuals that contributes to risk management plans.

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Helping victims of crime
The Criminal Justice and Court Services Act 2000, which set up the MAPPA, also consolidated earlier developments concerning victims of crime. The Probation Service offers face-to-face contact with a member of the Service to the victims of all those sentenced to 12 months or more for crimes of sex or violence.
The purpose of the Probation Service's work with victims is to: • • Provide victims with general information about criminal justice and custodial processes. Consult victims about whether they wish to provide information relevant to the consideration of any requirements or licence conditions placed upon the offender on his or her release from custody. Consult with victims about whether they wish to be informed about those licence conditions. Transmit any such information put forward by victims to the authority considering the offender's conditions of release. • Inform the victim of any conditions or requirements attached to the offender's release, which are relevant to contact with the victim or his family, and any other information.

The decision to engage with the Probation Service and, at what stage, is made by the victim. One of the most important tasks involving the MAPPA is to ensure that past victims are not put at risk again when an offender is released. Victim issues are featured as part of every risk management plan. This case history shows how the agencies worked together across county boundaries to reduce the risks to 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 area to reduce the risks to his victim. He was referred into the MAPPA arrangements and a joint MAPPA discussion was held to agree a Risk Management Plan. He was accommodated in Approved Premises in Cambridgeshire with significant licence conditions to protect the victim, who was in frequent contact with Victim Contact staff in her home area. Police shared information between forces and his car details were placed on the ANPR system to monitor any attempts to return to the home area. The victim sold her house and has moved away and work was done with C to address his offending behaviour.

• •

PERSON C
Background
C lived with his female partner in another county, in her home. He had offences dating back to 1972 which included nine against the person, and there were previous allegations of domestic violence with other partners. The relationship deteriorated and, whilst his partner was out of the house, he deliberately engineered a chip pan fire and damaged the property. They subsequently got back together but when she later moved out of her house he decided to carry out “maintenance work” without her approval and comprehensively “trashed” the property, destroying the floorboards and staircase and spraying offensive graffiti on the walls – when arrested he had two air rifles and a can of petrol.

Outcome
In the course of the work done with C it was revealed that some of his anger management issues stemmed from abuse as a child by his teacher. He has now moved out of the hostel and is being closely supervised in the community. He has not attempted to find his ex partner and has acknowledged the need to address some of his personal demons if he is not to put subsequent partners at risk. He is being supported in considering making a formal complaint to police about his abuser – who is still alive.

Assessment
C received a prison sentence for the offences against his partner. He would not admit the offences and was assessed as posing a serious ongoing risk of harm to her because of his obsessional and revenge orientated behaviour.

Action
Cambridgeshire Probation Service was asked to

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

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Statistical information
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i) The number of RSOs living in the Cambridgeshire Area on 31st March 2006. By Division (Basic Command Unit) Northern 153, Central 123, Southern 111 387

2.

3.

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 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 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 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

4.

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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17

Strategic Management Board
The Strategic Management Board of the MAPPA meets on a quarterly basis. The meeting is jointly chaired by Matthew Ryder, Assistant Chief Officer, Superintendent John Raine for Cambridgeshire Constabulary and Martin Lomas, Governor HMP Whitemoor. The function of the Board is to: a) Monitor (on at least a quarterly basis) and evaluate the operation of the MAPPA, particularly that of the MAPPPs; b) Establish connections with other public protection arrangements such as Local Safeguarding Children’s Boards, local Crime and Disorder Partnerships and local Criminal Justice Boards that support the operational work of the MAPPA; c) Prepare and publish the Annual Report and promote the work of MAPPA in the area; d) Plan the longer term development of the MAPPA in the light of regular reviews of the Arrangements and “Every agency has to deal with service users with complex personal histories who present with challenging and often threatening behaviour. Many of these individuals have either a history of offending behaviour or have the potential to commit often serious offences. The risk can vary by degree from those with lower risk behaviour such as verbal abuse to those who present a serious risk or threat such as serious physical or sexual assault. Individual agencies` capacities to manage the risks posed are often limited by both the skills they possess and the legal framework within which they must practice. In the past each agency often struggled to manage the most difficult cases and despite engaging with other partner agencies there was no overall framework to coordinate the management of the case and ensure that effective communication occurred between each partner. There have been a number of national inquiries following major incidents which have highlighted these weaknesses. Since the advent of MAPPA in Cambridgeshire a robust process has been established to coordinate the management of serious offenders by bringing together a wealth of interagency skills to assist in minimising the risks posed. The most crucial part has been the coordination of all the with respect to legislative and wider criminal justice changes; e) Identify and plan how to meet common training and developmental needs of those working in the MAPPA. Membership of the Strategic Management Board includes Senior Managers from Health, Mental Health Services, Housing, Adult Social Care Services, Children’s Services, Job Centre Plus, Electronic Monitoring Services and Youth Offending Services as well as Police, Probation and the Prison Service. We also have representatives from Education and from Victim Support and several of the voluntary agencies and have an active Lay Advisor. A member of the Strategic Management Board, who represents the Cambridgeshire NHS Mental Health Trust was asked to provide his view of MAPPA from his position on the Board. He writes agencies, ensuring sound communication and clear delineation of each partners` responsibilities. This has been the most significant achievement of the local MAPPA arrangements. We now have effective coordination at the front edge of service delivery. The Strategic Management Board has played an essential role in ensuring the full engagement and commitment of each partner in delivering the MAPPA objectives. I have found being a member of the Board has brought distinct benefits. Each member has taken responsibility for ensuring their organisation is fully briefed about the MAPPA process, is clear about their responsibilities and acts as a conduit for two way communication. Clear additional benefits have also emerged such as an increased understanding of each other’s responsibilities and the personal rapport which has developed between Board members over the past few years. There are challenges ahead not least that the number of individuals subjected to the process will grow. The challenge will be intensified by the potential intense media spotlight should an untoward incident occur. I believe the strong relationships which the Board has fostered will help us to face these challenges. I also believe the Cambridgeshire MAPPA process is a potential model of good practice not just for other counties but for other fields where interagency coordination is required ".

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Lay advisors
The first of two Lay Advisors we have recruited to the MAPPA is Dr Caroline Bolton-Smith. Caroline worked for 20 years as a research scientist/Lecturer/Senior Lecturer (Universities of Southampton, Nottingham, Dundee, and MRC-HNR in Cambridge) in the nutritional biochemistry and public health arena, where she focused on the role of interactions between nutrition and lifestyle on the inequalities of health, plus work on obesity and most recently a focus on the role of micronutrients in ageing (bone health, cognitive function). She recently made a change in career I think it would be fair to say that my role of Lay Advisor over the first year has been three things: • a source of great interest, as I gradually understand better how all the organisations involved in MAPPA work together, a source of admiration for the genuine hard work and diligence put into the arrangements by staff of the responsible authorities, and the numerous agencies with ‘a Duty to Cooperate’ to make the public protection arrangements work so effectively in Cambridgeshire. This is in the face of limited resources and lack of prioritisation from the top down. The success achieved appears to result from diligence and prioritisation from the bottom-up, on the part of the police and probation officers, whereas establishing Key Performance Indicators at all levels of the MAPPA, may help the work get the priority that is clearly required if the existing procedures are to achieve maximum public protection; and thirdly, a source of frustration, in that access to local training, and real integration into the MAPPA to the extent where I can fulfil my role effectively, has been very slow. Some of this delay is due to changing staff in the Police and Probation services, leaving me a little in limbo, for a senior contact person, and also partly due to the fact that recruitment for a second Lay Advisor has direction into the Voluntary and Community Sector, where she has been working for the Community Fund branch of the Big Lottery Fund as a Grants Officer, based in Cambridge but working throughout the Eastern Region. She has experience and interest in working at the strategic level: This being one of the reasons she volunteered for the Lay Advisor role, and is now looking to continue her career in the VCS at a more strategic level. She is also very environmentally aware and over the years has participated in many conservation/wildlife volunteer projects. only very recently (Sept 06) been successful and I’ve not had the opportunity to meet them yet. The second National Training Weekend (Jan 2006) was again very informative, focusing on issues around violent and domestic abuse. It also highlighted the value of having two Lay Advisors for the sharing and discussion of local issues. I attended the Regional MAPPA Conference in March, which allowed some comparison between the work in Cambridgeshire and the Eastern Region’s other five counties. To say that it has been an eventful year for the Home Office concerning Public Protection Arrangements would clearly be an understatement: I am happy that our arrangements are amongst the best, although improvements are always sought and possible. The new requirement for a Business Plan, which I have been able to make some contribution to, should provide a positive framework for local improvements, particularly around consistency and audit. I have had some input to the presentation of this Annual Report to improve its accessibility to the nonspecialist reader. [If you are a non-specialist, please tell me how interesting and easy to understand, you found the Annual Report, particularly the summary and tables of information. My contact details are given below]. Dr. Caroline Bolton-Smith.

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

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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
1. Registered Sex Offenders (RSO) 2. Violent Offenders and other sex offenders 3. Other offenders

2002/03
21513

2003/04
24572 14.22% 12754* -56.9% 2166 20.2% 39492 -25.36%

2004/05
28994 18% 12662 -0.72% 2936 35.55% 44592 12.91%

2005/06
29973 3.38% 14317 13.07% 3363 14.54% 47653 6.86%

29594

1802

Totals

52909

* 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.

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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 (% of MAPPA Total) 6014 12.62% 4280 8.98% 2211 4.64% 12505 26.24% Level 3 (% of MAPPA total) 580 1.22% 506 1.06% 192 0.4% 1278 2.68% Total per Category (% of MAPPA Total) 6594 13.84% 4786 10.04% 2403 5.04% 13783 28.92%

1. Registered Sex Offenders (RSO) 2. Violent Offenders and other sex offenders 3. Other offenders

Total per Level

Table 3. Offenders referred to Levels 2 and 3 - Comparison with last year (% Change)
Level 2 Category of MAPPA Offender 1. Registered Sex Offenders (RSO) 2. Violent Offenders and other sex offenders 3. Other offenders Total: 2004/05 5381 3615 2292 11288 2005/06 6014 11.76% 4280 18.39% 2211 -3.53% 12505 10.78% 2004/05 626 547 305 1478 Level 3 2005/06 580 -7.35% 506 -7.49% 192 -37.05% 1278 -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
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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 Category of MAPPA Offender 1. Breach of License 2. Breach of Orders 3. Charged with SFO 2004/05 1084 55 47 2005/06 1321 21.86% 82 49.09% 50 6.38% 2004/05 222 18 32 Level 3 2005/06 219 -1.35% 22 22.22% 11 -65.63% Total of Level 2 & 3 2004/05 1306 73 79 2005/06 1540 17.92% 104 42.47% 61 -22.78%

Table 5. Outcome measures: RSO arrests and Sex Offences Act Civil Orders 2004/5 and 2005/6 (% Change)
Sex Offences Act Orders 1. Registered sex offenders (RSO’s) charged/cautioned Number of Offenders (04/05) 993 Number of Offenders (05/06) 1295 30.41%

RSO Enforcement 2. Sexual offences prevention orders (SOPOs) granted 4. Foreign Travel Orders (FTOs) granted Total Number of Orders

Number of Offenders (04/05) 503 1 526

Number of Offenders (05/06) 933 85.49% 1 0% 973 84.98%

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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
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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.

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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)
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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

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Annex B:
MULTI-AGENCY PUBLIC PROTECTION ARRANGEMENTS – CAMBRIDGESHIRE BUSINESS PLAN 2006-2007
1. MAPPA Development Strategy
STRATEGIC AIM
A. Review existing MAPPA Coordinator and Administrator capacity in Cambridgeshire during 2006/7 (also see 1.C and 2A(ii)) B. To develop participation with key stakeholders

DELIVERY PLAN
i) Initial discussion with Responsible Authority to agree process e.g. needs analysis. ii) Present to SMB i) Identify/confirm key stakeholders and confirm working links to the SMB

MILESTONES
May 2006

RESOURCE
RA members (police and probation re any funding issues) HR staff – both agencies • Duty to co-operate members • LCJB/ACPC/LSCP CDRPs DV Group Other Partners

OUTCOME
By April 2007 to have confirmed appropriate resources are allocated to the task

PROGRESS

July 2006 Review/confirm stakeholder links at SMB July 06 Finalise October 06

Improved ownership of MAPPA Increased active participation by Duty to Co-operate partners in SMB meetings Ditto Ditto

ii) Restate ‘duty to co-operate’ and invite agencies to participate iii) Monitor Attendance at SMB and RA. Gain commitment from Duty to Co-operate agencies to attend regularly, including use of substitute representative

Discuss at SMB July 06

Review at each SMB during RA/SMB Membership 2006/7 with appropriate follow up action by SMB if no attendance.

Minutes of meeting Attendance record

Improved attendance rates from key stakeholder partners at quarterly SMB and RA meetings Improved ownership of MAPPA

iv) to ensure that suitable and accessible venues for SMB are identified and used during 2006/7 C. To develop action plan reflecting recommendations and advice from i)HMIP inspection on sex offenders and public protection ii) De Montfort Research Report iii)HMIC on MAPPA (expected July 06) and iv)NCPE Practice Advice

Review suitability of South Cambs venue at April 06 meeting. Further research as needed

Agency reps

Improved attendance rates at SMB. Use of suitable venue for SMB Meetings

Devise Action Plan to improve October 06 SMB management of high risk offenders As agreed schedule i) Review progress report from December 2006 Probation and Police RA March 2007 members. ii) Police and Probation RA members to produce action plan and agree schedule for providing SMB with progress reports on implementation during 06/07 RA and SMB to consider further guidance when received and advise SMB re resourcing issues To be reviewed at each SMB (April, July, October,January) when guidance on revised MAPPA arrangements is received from NPD/PPU

Probation Service plan to Complying with HMI improve timeliness and quality recommendations of Oasys assessments on high risk of harm offenders. Introduce Oversight via SMB Police plan to meet organisational requirements re monitoring of sex offenders, centrally managed with officers intrusively supervised.

D. Implementation of revised MAPPA arrangements, taking into account HMIP/De Montfort recommendations

MAPPA Manager – full time MAPPA Co-ordinators. (6days fte) Further resource needs to be reviewed by police and probation

Compliance with new guidelines

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Business plan continued

2. Monitoring & Evaluation
STRATEGIC AIM
A. Introduce robust performance monitoring arrangements to provide confidence to stakeholders that protection arrangements are good/effective

DELIVERY PLAN
i) Develop PI’s/Standards/ Monitoring to include • No’s at Level 2/3 meetings • Attendance Analysis • Diversity Profile • No’s of MAPPA Serious Further Offences • Sex Offender Orders • Annual Report ii) Review mechanism for evaluation of impact of discussions at level 2 and 3 meetings e.g. on public protection

MILESTONES
Agree at SMB July 06 Quarterly reporting to SMB established from October 06 Quarterly reporting to SMB Published 10/ 06 Subgroup membership to be agreed at July SMB

RESOURCE

OUTCOME

PROGRESS

MAPPA Manager and MAPPA Demonstrate enhanced Co-ordinators monitoring activity Probation/Police Media Managers Improved performance across key areas during 2006/7 VISOR Police Central point of contact Review completed by April 2007 SMB subgroup

B. Use of Police/VISOR e.g. by Agreement by CPA about Probation training and roll-out arrangements for use of VISOR by Probation staff C. Review of Gatekeeping system for referrals (Appeals/Process/Rejections) Discuss at RA meeting Agree review process and propose to SMB

Plan in place by end of 06/07 CPA Heads of Offender VISOR in use by agreed staff year – awaiting regional roll Management and Information and integration of VISOR into out November 07? and Performance mainstream probation and police practice Quarterly checks re RA members/volunteers from gatekeeping /threshold levels. SMB? Process agreed by October 06. Work completed by end of 06/07 year October 2006 RA members Appropriate use of resources. Appropriate management of risk.

D. Increase links to Serious Case Reviews E. Establish new Serious Further Offences Protocol

Formal review of links with Serious Case Reviews

Improved information sharing with Serious Case Reviews Increased co-operation and information sharing between police and probation re SFO incidents

Police and Probation to agree Protocol agreed by July 2006 Police and Probation Senior new protocol for co-operation Reviewed by RA or SMB by Management re serious case reviews January 2007 MAPPA Manager

3. Communications & Partnership Strategy
STRATEGIC AIM
A. To improve accessibility and overall quality of Annual Report

DELIVERY PLAN

MILESTONES

RESOURCE

OUTCOME

PROGRESS

i) Initial discussions with Colour/Printing/layout/Distribu Probation Media Manager tion – learn from other areas March 2006 ii) Use Probation PR Person (John McAngus) iii) Improve Planning Process iv) Increase Lay Adviser Participation in Production of Annual report v) Discuss Potential for Launch Event/Publishing Annual Report Lay Advisor to contribute to MAPPA Manager, layout and content discussion Probation Media Advisor, May 06 Lay Advisor, Police Press Office By October 06 Consultation with Chief Officers Improved Annual Plan. Evidence of increased community engagement in publication of Annual Report e.g. attendance at launch by SMB Duty to Co-operate partners

B. Develop Communication Strategy

i) Identify Opportunities to Work with Media and/or key partner forums – CDRPs, LSCB, DV groups

Consultation meeting with Police/Probation Media Relations staff July 06

RA members – Media staff in key agencies

Presentation of Annual Report to CDRP’s, LSCBs and Local DV groups

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4. Training/Workforce Development
STRATEGIC AIM DELIVERY PLAN MILESTONES
Review effectiveness of training programme for Lay Advisors in October and again in March 2007

RESOURCE
Probation Training Manager. Police training dept. Public Protection Unit. Lay Advisor.

OUTCOME
Lay managers have received training to support the development of their role and enhance understanding of MAPPA

PROGRESS

A. Training Schedule for Lay Schedule put in place to Advisors in Cambridgeshire to support understanding and be developed and actioned encourage shared learning between two Advisors, incorporating national arrangements/provision. B. To ensure attendance at National/Regional Conferences and Training Events, e.g. Co-ordinator MAPPA Manager supported to attend relevant conferencesTraining plan incorporated into appraisal MAPPA Co-ordinators have individual training plan

Appraisal May 2006 Follow up review of Training plan on bi- monthly basis in 2006/7 In place – reviewed annually by MAPPA Manager Admin 1 – August 06 Admin 2 - March 07

Probation and police funding as appropriate

Best practice developed

MAPPA Manager. Probation training resources

Individual staff and organisational needs are met.

C. To use core training material to support MAPPA SMB training and support training to new practitioners

i) Receive collated As notified material/national training pack from National Workgroup. ii) Discuss with SMB members to clarify their requirements iii) Modify existing presentations to new practitioners

MAPPA Manager. Training staff of RA and Duty to Cooperate partners. MAPPA Manager and police colleague

Improved SMB training opportunities. Improved presentations for new practitioners

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Contacts
Cambridgeshire
Multi Agency Public Protection Arrangements National Probation Service, Cambridgeshire Matthew Ryder Assistant Chief Officer Probation Headquarters 1 Brooklands Ave Cambridge CB2 8BB 01223 712345 Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564

Carol Ashford Multi Agency Public Protection Manager

Cambridgeshire Constabulary
John Raine Detective Superintendent Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564 HMP Whitemoor Longhill Road March Cambs PE15 OPR 01354 602350

Prison Service
Martin Lomas Governor