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Cumbria MAPPA Annual Report



Multi-Agency Public Protection Arrangements

Annual Report 2005-2006

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Cumbria MAPPA

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Cumbria MAPPA


This is a joint report of the National Probation Service Cumbria, Cumbria Constabulary and
Her Majesty’s Prison Service North West setting out how we manage the risks posed by sex
offenders and other dangerous offenders in Cumbria.

It is the fifth such report covering the period of 1ST April 2005 to 31ST March 2006 and has
been produced in accordance with s.67(4) of the Criminal Justice and Courts Services Act
2000.In addition to describing details of arrangements for Cumbria, it provides some statistical
data and contact points.

How to contact us

We welcome feedback and if you have any comments to make about this report they should
be sent to one of the addresses below:

Assistant Chief Officer (Offender Management)

National Probation Service
Cumbria Area Headquarters
Lime House
Tel: 01228 560057

Superintendent (Operations) North West Area Office

Cumbria Constabulary HM Prison Service
Police Headquarters Stirling House
Carleton Hall Ackhurst Business Park
Penrith Foxhole Road
Cumbria Chorley
CA10 2AU Lancashire
Tel: 01768891999 Tel: 01257 248628

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Further Copies and Additional Information

Further copies of the report and additional information can be obtained from MAPPA Registrar
Kendal Probation Office
Busher Lodge
149 Stricklandgate
Tel: 01539 816014

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Cumbria MAPPA


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

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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We have pleasure in presenting this fifth report on behalf of The National Probation
Service Cumbria, Cumbria Constabulary and Her Majesty’s Prison Service North
West. It sets out how we have developed our work together along with a number of
other agencies in protecting the public from sexual, violent and other dangerous
offenders in Cumbria, within the Multi- Agency Public Protection Arrangements

(NB a copy of the report `MAPPA-The First Five Years: A national Overview of the Multi-
Agency Public Protection Arrangements 2001-2001` is available on the National Probation
Service website – )

The fundamental purpose of MAPPA is public safety, the protection of victims and the
reduction of serious harm from sexual and violent offences.

MAPPA acknowledges the complex nature of serious offending behaviour and

recognizes that a co-ordinated multi-agency approach to risk management, combining
the skills and expertise of a number of agencies offers the best chance of achieving
public safety.

The MAPPA grew out of the closer working relationship which developed between the
Police and Probation (and latterly other agencies) in the late 1990s.Sections 67 & 68
of the Criminal Justice and Court Services Act (2000) first enacted these
arrangements. Sections 325-327 of the Criminal Justice Act (2003) re-enacted and
strengthened those provisions. The legislation requires the police, probation and
prison services (acting jointly as the `Responsible Authority`) in each of the 42 areas
of England and Wales;

i) to establish arrangements for assessing and managing the risks posed by

sexual and violent offenders

ii) to review and monitor the arrangements; and, as part of the reviewing and
monitoring arrangements

iii) to prepare and publish an annual report on their operation.

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Cumbria MAPPA

During the course of 2005-06 MAPPA nationally have become more significant and
prominent in the management of sexual and violent offenders. Recent incidents
publicised in the media have highlighted the imperative for all involved in public
protection and MAPPA to work as hard as possible to get this as right as possible.
This report offers the opportunity to highlight all the efforts and work that happens
inside the MAPPA and outside the MAPPA to ensure Cumbria is protected. This is
the fifth year of operation of the MAPPA and it is able to demonstrate that it is well
established in Cumbria. It is an important tool for the statutory and Duty To Co-
operate partners. There have been no further serious offences committed by those
subject to management by the MAPPA process.

As the MAPPA has gained in value and the relevant agencies become increasingly
confident in assessment, the work of the MAPPA has grown. The majority of the work
is managed at Level 2 and only a few `critical few` cases require a Level 3
management approach.

This year has been one of continuous change in the criminal justice and social care
agencies, and the MAPPA business planning has had to reflect these changes.
There has also been substantial national research undertaken in the development
needs of MAPPA and in light of these findings Cumbria will be developing its working
practices. Up-to-date knowledge and understanding of offending behaviour and how
to protect the public is critical if we are to undertake our work effectively. Next years
business plan in will implement changes to achieve;

- a development strategy

- a monitoring and evaluation strategy

- a communication and strategic partnership strategy

- a training strategy
(Nb: see Appendix 1: Cumbria MAPPA Business Plan for further information)

The Responsible Authorities, the Duty to Co-Operate Agencies and central

government are working closely together to build a strong framework and foundation
for public protection. The needs of victims are paramount in public protection, but this
can only succeed if it is combined with a rigorous approach to the management of
offenders. Evidence of this can be seen in;

o the development of the Local Safeguarding Children’s Board to replace Area Child
Protection Committees; these new boards ensure all relevant agencies work together
to promote the well-being of children.

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o the Domestic Violence, Crime and Victims Act 2004 which strengthens the Criminal
Justice agencies commitment and responsibility for ensuring victims and witnesses
receive support and protection through the Criminal Justice process.

o during 05-06 there has been significant drive to improve assessment and
management of risk of harm through

• risk of harm improvement strategy

• development of the Approved Premises Strategy to ensure high standard of

oversight and control of offenders.

• implementation of the results of the public protection and sex offender

thematic Inspections.

• restructuring the criminal justice agencies to ensure a more effective

delivery of service to the public in the management of offenders, such as the
National Offender Management Service and amalgamation of police

• strengthening of ways in which offenders are identified and tracked, for

example, by the Violent and Sex Offender Register (VISOR) which is due to
be implemented in the Probation Service, the implementation of the DFEs
Vetting and Barring Scheme, and the Bichard recommendations.

Cumbria MAPPA SMB is committed to improving and strengthening its effectiveness in

public protection work. The management of violent and dangerous behaviour can only
be done well if the efforts, expertise and skills of agencies are combined.

For 2006-07 the Cumbria MAPPA SMB will concentrate more than ever on the scrutiny
of processes and ways of working and implementing the lessons learnt from the results
of audits and inspections. Moreover, we will set up a means of working to ensure the
public and communities of Cumbria are reassured about the work we do and
understand the size, nature and complexity of the problem and what we do to manage
that risk.

Public protection is a high priority for every agency involved with MAPPA .We hope that
this report will inform you and reassure you that MAPPA in Cumbria are constantly
striving to develop effective working practices that make Cumbria a safer place for all
who live, work and visit here.

Mike Maiden Michael Baxter Ian Lockwood

Chief Probation Officer Chief Constable Assistant Director of
National Probation Service Cumbria Constabulary HM Prison Service
Cumbria North West

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Cumbria MAPPA


For the fifth year running in Cumbria we are pleased to report that of all the offenders
subject to management by the MAPPA (i.e. Levels 2 and 3) none were charged with a
further serious sexual or violent offence during this reporting period. This must be
regarded as a successful outcome.

VISOR- The Violent and Sex Offender Register has now been fully implemented by
Cumbria Constabulary. VISOR is the first national database that has the ability to
track, risk assess and manage violent and sexual offenders across the country. Prior
to VISOR the forty-three individual police forces held information separately and not all
officers from every force could access information on offenders instantly. VISOR now
gives forces that are investigating sexual or violent crimes an efficient method of
connecting their current cases with knowledge of possible offenders from other areas,
including details such as modus operandi and a photographic library of how an
offender may have changed over time. Cumbria Police officers have found VISOR to
be an effective investigative tool in crime operations and for monitoring sexual
offenders resident in the area.

Victims- MAPPA meetings continue to ensure that the victim perspective is

appropriately represented with a Victim Liaison Officer, employed by the National
Probation Service for Cumbria contributing to relevant meetings. The victim
perspective is crucial when formulating risk management plans. Action taken to protect
victims has included the imposition of specific prison licence conditions to prevent
contact with individuals and support to victims and their families from voluntary sector
domestic abuse services and the Children and Adult Protection Unit (CAPU) of
Cumbria Constabulary.

Witness Care Unit (WCU)- March 2005 saw the introduction of Cumbria`s first
Witness Care Unit (WCU). Based centrally in Kendal, the opening of the WCU
followed extensive input by staff from across various criminal justice agencies in the
county. The development of local, specialised Witness Care Units is an important
element of the government's 'No Witness, No Justice' programme.In essence, without
witnesses appearing at court a criminal trial will be delayed or could possibly even fail
to proceed. In a worst case scenario, that could mean offenders are not being brought
to justice for the crimes they have committed. For the wider community, this could
have major implications for their confidence in the criminal justice system to protect
them and reduce fear of crime.

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One of the key roles of the Witness Care Unit is to assist witnesses (including victims)
to overcome any possible barriers to their attendance in court. These can often be
very practical issues, such as travelling difficulties or not having adequate childcare to
cover the period when needed in court. Witnesses are supported throughout the court
case and are linked to post-court services if additional support is required longer-term.

Youth Offending Service- High risk young offenders are now also being managed
by the MAPPA in Cumbria.Written protocols have been established with the Youth
Offending Service which has improved the efficiency and accuracy of risk assessment
and management of the relatively small number of such young people.

Housing Services-From a housing perspective the key achievements of the MAPPA

process has been those associated with the information sharing and joint planning that
is achieved through both the Strategic Management Board and the local MAPPA

Local MAPPA meetings have provided an opportunity for housing agencies to work
closely with the Responsible Authorities to ensure that processes are in place to
resettle an offender into the community in a planned and monitored way. Many areas
of Cumbria have inadequate housing stock and it can take some time to find suitable
accommodation in an appropriate location. MAPPA meetings also offer the opportunity
to put into place a multi -agency package of support to manage any risk posed to the

Housing agencies and providers are working with the National Probation Service,
Cumbria to develop a protocol for housing MAPPA cases in the County. A programme
of training events will also be provided by the National Probation Service for housing
providers in Cumbria. It is anticipated that these events will raise the profile of the joint
protocol and provide the housing agencies with training to assist them to manage the
challenges presented by these potentially difficult cases.

Approved Premises - The Probation Service Approved Premises Carlisle has been
instrumental in the successful management of a number of offenders subject to
MAPPA proceedings, involving high levels of monitoring and enhanced supervision.

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Cumbria MAPPA

Adult’s Services ( Mental Health Services)-MAPPA arrangements are not only

concerned with those released from prison but also encompass those convicted of
certain offences who are made subject to hospital orders or guardianship, either under
the Mental Health Act 1983 or after being found to be under disability (unfit to plead) or
not guilty by reason of insanity.

Health Authorities, Primary Care Trusts and NHS Trusts, among others, are required by
the Criminal Justice Act 2003 to co-operate with MAPPA. Such co-operation has
resulted in mental health care staff participating in the MAPPA process. It is critical that
any intervention and management in relation to an offender with a mental disorder who
meets the MAPPA threshold is dealt with collaboratively and expeditiously. Health
professionals, have a significant contribute to make to the process of informing the risk
assessment and contributing to the risk

The `Development Officer for Mentally Disordered Offenders ` has continued to prove
an invaluable and dedicated resource in Cumbria; providing advice and guidance to
both the MAPPA and the mental health services in Cumbria in how best to manage
such offenders, whilst securing appropriate treatment interventions.

With the increase in services for people with Personality Disorders and in particular the
introduction of the Community Forensic Personality Disorder Team (CFPDT) at St
Nicholas Hospital, Newcastle Upon Tyne there has been a coordinated approach
between the MAPPA Responsible Agencies in Cumbria, local health practitioners and
individuals from the CFPDT to manage that client group. As a result the MAPPA has
benefited from a more comprehensive and inclusive risk assessment and such
individuals have been managed more effectively in the community.

There have also been occasions where the expertise and experience of the
Responsible Authority representatives have been used where mentally disordered
offenders have not met the criteria for MAPPA inclusion but present some risks to
others. An example of this is where the Public Protection Officers (Police) attend Care
Programme Approach (CPA) meetings and assist with the risk assessment and risk
management of individuals who may, or have historically presented with risky offending
behaviour in a Community setting. There have also been occasions where the “Chairs”
of the MAPPA process have again imparted their expertise and experience in “chairing”
or advising on complex mental health case reviews, where a public protection emphasis
is required.

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HMP Haverigg’s Public Protection Committee

The Public Protection Committee at HMP Haverigg registers all MAPPA Level 2 and
3 prisoners and reviews these cases on a regular basis. The Committee is multi-
disciplinary and includes prison officers, probation officers and the prison’s police
liaison officer. The Committee considers ongoing risk issues with prisoners in relation
to members of the public and considers whether any further protection restrictions
should apply, as well as engaging the prisoner in work designed to address the risk
of future offending. The prison has close links with the National Probation Service
and local police and works with these agencies to plan for an individual’s release into
the community whilst maintaining the safety of the public.

The establishment of an Offender Management Unit within the prison aims to

improve the co-ordination of all aspects of an offender’s time in custody; from initial
assessment of risk and access to interventions through to preparation for release in
conjunction with agencies in the community. Public protection will remain at the heart
of the work of the Offender Management Unit to further enhance risk management of

Training – The Senior Probation Officer responsible for public protection and the
MAPPA Registrar have locally delivered public protection training to police, probation
and prison staff. They have also delivered training at the North West regional
conference; focussing on developing practice in the area of risk assessment and
management of high risk offenders.

Information Sharing- Developments in the area of information sharing between

agencies involved with the MAPPA have developed sharing of information between
police and NPS concerning sentencing outcomes. This has significantly improved the
efficiency of police systems, such as VISOR, which help to keep track of offenders.

Both Children’s and Adult’s Services are now provided with data relating to MAPPA
offenders and victims which assists their ability to identify areas where service
provision may be required and hence determine an appropriate level of resources.

There have been a number of significant developments by Cumbria Constabulary in

the field of public protection work. County-wide public protection meetings are held
for police staff at all levels with regular input from National Probation Service staff
involved in the MAPPA.These meetings provide the opportunity to consider high risk
cases, evaluate local practice in light of national developments and provide a forum
for staff support.

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Cumbria MAPPA

NSPCC-MAPPA continues to work closely with the NSPCC in Cumbria; who provide
a valuable resource for the specialist assessment and treatment of male sexual
offenders. During the last year a total of nine offenders subject to the MAPPA process
have either been assessed for or attended an intensive group work programme.

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Who are the MAPPA offenders?

There are principally three categories of offender who fall within the MAPPA

• Category 1 - Registered Sex Offenders (RSO’s), that is those sexual

offenders required to register their details with the Police under the terms of
the Sex Offenders Act (1997) and its amendments (2003).

• Category 2 - Violent offenders and other sexual offenders who are sentenced
to term of imprisonment for 12 months or more.

• Category 3 - Any other offender who, because of the offence/s committed by

them are considered to pose a risk of serious harm to the public.

How are they managed?

The structure of risk management is intended to enable resources to be deployed to

manage identified risk in the most efficient and effective manner. The level at which
a case is managed is dependent upon the nature of the risk and how it can be

Three categories of `MAPPA Offender` have been defined to focus risk management:

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Cumbria MAPPA

Level 1: Ordinary risk management

Level 1 risk management is used in cases in which the risks posed by the of-
fender can be managed by one agency without actively or significantly involving
other agencies. Typically the lead agency will be police, prison, probation or
Youth Offending Teams. Generally offenders managed at Level 1 will be as-
sessed as presenting a low or medium risk – the largest proportion of all
MAPPA offenders in Cumbria are managed at this level.

Level 2: Local Risk Management Meetings (LRMM)

Level 2 local inter-agency risk management is used where the active involvement
of more than one agency is required. The agencies involved are agreed locally
and determined by the characteristics of that case. A permanent representation
from core agencies contributes significantly to violent risk management.

Level 2 management usually requires a monthly meeting to reassess the risks an

offender presents and amend the risk management plan accordingly.

Level 3: Multi Agency Public Protection Panel (MAPPP)

Level 3 MAPPP meetings deal with offenders who present a high or very high risk
of causing serious harm and who present risks that can only be managed by a
plan which requires close co-operation at a senior level due to the complexity of
the case and/or because of the unusual demands it creates or, if not high risk, the
case is exceptional because of the likelihood of media interest and/or public scru-
tiny. These cases are often referred to as the ‘critical few’ and only a very
small percentage of offenders in Cumbria are managed at this level.

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What happens in practice?

The following diagram sets the four key stages of the MAPPA:


Early identification of those offenders that meet the above criteria for MAPPA is
essential. The majority of referrals to the MAPPA are from the Probation Ser-
vice who has the primary responsibility for managing offenders in the commu-
nity. Offenders serving custodial sentences are referred to the MAPPA in ad-
vance of their release in order to ensure that the risks to the community they
are returning to have been fully considered and managed.

High risk offenders are also identified to the MAPPA by the Police and other
agencies such as Mental Health Services, Children’s Services and the Youth
Offending Service.


The exchange of information is an essential element of effective public protec-

tion. Agencies attending the MAPPA meetings share information about the of-
fender and the risks they present. The Cumbria `Protocol for the Sharing and
Disclosure of Information` exists to ensure that information shared is necessary,
lawful, accountable, proportionate and undertaken in ways that protect the
safety of those it relates to.

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Cumbria MAPPA


Agencies use a variety of methods to assess risk.

The MAPPA meeting will consider each individual assessment in conjunction

with any additional information in order to reach a consensus decision about the
level of risk an offender is considered to present.

The MAPPA use definitions of risk taken from the Probation Service’s assess-
ment tool called OASYs.

The MAPPA is concerned with those offenders who pose a risk of `serious
harm`, defined as `a risk which is life threatening and/or traumatic and from
which recovery, whether physical or psychological, can be expected to be diffi-
cult or impossible`.


Risk Management Plans are tailored to the individual circumstances focussing

on the risks identified in each case and the steps needed to reduce those risks
and protect the members of the community. There is often a complex balance
between the need to impose conditions and controls on the offender whilst sup-
porting the individual to address their behaviour via the provision of treatment,
programmes and services to reduce further offending.

Risk management objectives are recorded within the meeting minutes and
every action is assigned to an agency responsible for ensuring that it is carried

Subsequent MAPPA meetings are then held to review the progress of the plan
and to make changes to the management approach if necessary.

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6. How MAPPA promotes positive multi-agency working relationships

throughout communities in Cumbria.

By its very nature MAPPA demands close working relationships between staff from a
variety of community agencies, both statutory and voluntary. Cumbria MAPPA
constantly strives to improve its service to all of the diverse communities within the
county. We are continually building on effective working partnerships to ensure that all
those involved in this work provide excellent value for money in reducing the likelihood
of further serious offending, whilst remaining accountable to the public.

Of particular note is the excellent and productive relationship that exists between
Cumbria Probation Area and Cumbria Constabulary. Long gone are the times when
the two organisations were separated by culture and working practices, and we have
seen over recent years the forming and consolidation of a very effective partnership.

At an operational level it is not uncommon for the local Police Public Protection Officer
and a Probation Officer (Offender Manager) to undertake joint prison visits to see a
prisoner prior to release to explain the terms of the post-release licence and to make it
very clear that probation and police will be taking an active interest in the offender’s
behaviour once they are released. Similarly, this joint-working approach increasingly
extends to the licence supervision period, with officers from both agencies making
home visits together. This arrangement is invariably part of the agreed risk
management plan generated at a MAPPA meeting, and it aims to reinforce the
message to certain high risk offenders that their release back into the community is
taken very seriously and that there will be consequences for them should they fail to
comply with the licence requirements.

Not only is information and intelligence shared in a formal manner within public
protection meetings but it is then translated into practical working relationships to
ensure closer supervision of high risk offenders. It should be noted that the vast
majority of post-releases licences (whether subject to MAPPA or not) are successfully
completed, i.e. without further offending or breach of the requirements of the licence.
Where enforcement is required this is undertaken promptly with the offender being
returned to custody.

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Cumbria MAPPA

When the licence period expires the offender usually ‘drops out’ of MAPPA
considerations, in line with the current legislation. However on occasions where risk
warrants, there is scope to extend the period of MAPPA oversight for cases that
continue to present identified and ongoing risks of causing serious harm, and in
Cumbria we retain several such offenders within the system.

During 2006-07 it is planned to make VISOR (the Police Services Violent and Sex
Offender Register) available to the National Probation Service, and this will require the
two agencies to work even more closely together. On the basis of MAPPA in Cumbria
we are well placed to ensure this partnership continues to flourish.

The following Cumbria case studies illustrate the multi-agency approach to risk
management planning:

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Case Studies

A is a male offender with a history of sexual abuse against children within his family, com-
mitted over a significant period, for which he was sentenced to an eight year term of impris-

A came into the MAPPA system in advance of his release from custody in order to ensure
that a well thought out plan for the management of his risk was in place before his return to
the community.

Input from the prison was crucial in order to provide information as to A`s progress whilst in
custody and hence formulate an accurate and up-to-date assessment of risk.

During his prison sentence A had refused to undertake any work designed to address his
offending behaviour. Prison intelligence also highlighted concerns that that throughout his
sentence he had been networking with other prisoners convicted of child sexual offences.
He had also had made contact with the children of his victims.

Children’s Services and the Probation Service’s Victim Liaison Officer also expressed con-
cerns in relation to ongoing risks to children within A`s family, given that certain family
members were reluctant to consider that he continued to present a risk to children.

A was eventually released from prison at his non-parole stage with a number of strict li-
cence conditions imposed by the MAPPA.These included a condition not to have any un-
supervised contact with children and residence at an Approved Premises in the area
whereby a high level monitoring and surveillance could be undertaken.

A was subject to probation supervision on licence and police supervision as a requirement

to sign the Sex Offender’s register.

Children’s Services also formulated an extensive Child Protection plan in order to protect
the children A may try to contact.

Within a short period of time A was observed by the police processing photographs in local
shop that evidenced him having contact with children. This put A in breach of his licence
conditions and as a result the National Probation Service in Cumbria immediately recalled
him and he was returned to custody.

Subsequent MAPPA meetings considered A`s inevitable re-release and a plan to reduce
the likelihood of contact with children within his family. As a result it was agreed that he
should be released with a condition to reside in an Approved Premises in another part of
the country. His continued assessment and management by the MAPPA would be taken
over that area’s arrangements.

In this case early assessment and a robust multi-agency risk management plan, including
intensive monitoring and swift enforcement action reduced the opportunity for A to commit

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Cumbria MAPPA

B is a male offender who was assessed and managed by the MAPPA process by Public
Protection committee at HMP Haverigg.Concerns were raised as the offender was due to
be released unsupervised, after being recalled on licence from a lengthy sentence imposed
for Attempted Murder. B was felt to continue to pose a risk to the public and there were nu-
merous issues based around childhood experiences, Given the fact that B was not going to
be supervised on release, a referral to the Public Protection department of the Home Office
was necessary in order to secure additional resources to manage his risk in the community.

In the months leading up to his release, the prison probation officer saw B regularly and
was able to motivate him to agree to report to probation on a voluntary basis on release.
This was followed up by frequent communication with the local probation area who were
kept informed of his ongoing progress and contributed to plans for his managed release.

It was arranged via the Prison Service’s Area Office for a psychologist to assess B.

He engaged with the assessment process and spoke openly and honestly about his past
and his current state of mind. Both the psychologist and prison probation officer attended a
MAPPA meeting in the area to which B was to be released. The psychologist’s findings
were shared and the assessment of his current level of risk. A risk management plan was
agreed which included his location in approved accommodation and his profile being high-
lighted to the local Police force. B had altered his appearance somewhat prior to release,
and therefore relevant agencies were provided with an up to date photograph taken by the
prison’s security department. After B was released, he did indeed report to the probation
office on a voluntary basis. Links were established by the Psychologist with local psychiat-
ric/psychological services and subsequent MAPPA meetings continued to monitor his reset-
tlement back into the community and level of public safety.

This case illustrates that from the point of reception into custody it is fundamentally impor-
tant for effective communication to take place between agencies within the prison who are
involved with registered MAPPA cases and those outside agencies in the community re-
sponsible for monitoring such offenders and involved in protecting the public.

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Whilst nothing can detract from the importance of high quality risk assessment and
management of offenders, ultimately good and better practice is reliant on a
continuous circle of planning, enacting, reviewing, evaluating and making changes
which lead to better public protection.

For this reason the Strategic Management Board (SMB) of MAPPA exists to monitor,
review, evaluate and make any necessary changes to the work of the MAPPA; hence

bringing rigour and scrutiny to the work of protecting the public.

At a strategic level the SMB brings a national and regional perspective to local issues
concerned with the management of offenders and community safety.

The Board is chaired by an Assistant Chief Officer from the National Probation
Service (Cumbria). Other members of the Board include senior representatives from
the Cumbria Constabulary and HM Prison Service, Duty to Co-operate agencies and
in Cumbria this includes local authority housing, Primary Health Care Trusts, Adult
Care Services, NSPCC, Youth Offending Service and Children’s Services and

A large proportion of these senior representatives also attend the local Safeguarding
Children’s Board and the Criminal Justice Board, which affords a continuous level of
cooperation amongst the agencies involved in the work of protecting members of the

The SMB in Cumbria has over the last twelve months focussed particular attention on
the development of systems to enable the collation and analysis of MAPPA
management information.

Analysis of data on a quarterly basis has helped to identify trends in a variety of

areas including differences in workload due to geographical location and
concentration of higher risk offenders in those areas. It has been recognised that
whilst Cumbria may have a relatively smaller percentage of high risk offenders the
geographical size of the county creates specific challenges for staff involved in the
management these offenders. Such an evaluation has helped to identify where
resources are best deployed and where they are most needed.

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Cumbria MAPPA

Evaluation has also helped to identify good practice and has highlighted areas were
there have been considerable improvements in consistency of practice and procedure
within local agencies responsible for assessing and managing high risk sexual and
violent offenders. Conversely this has also highlighted areas where further training and
development is required.

The SMB in Cumbria has always been in a position to review its performance in terms
of achieving the objectives set out in its Annual Business Plan. All objectives for 2005-
06 have been met.

This year sees the introduction of a statutory requirement for all MAPPA areas to
produce a local business plan taking into account the national plan.

Business Plans are now also to be made public in order to increase accountability
and Cumbria’s plan can be found in this report at Annex B.

The SMB also this year commissioned the first joint internal inspection into the
management of Police and Probation supervised MAPPA cases. The findings were
congruent with much of the research undertaken nationally and highlighted a
consistently good level of professional input into the management of high risk
offenders. Certain areas were however identified for improvement and development
changes to address these have been set as an objective in the Annual Business Plan.

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Annual Report


A valuable addition to the membership of the SMB are the `Lay Advisers`.The two
Lay Advisers are members of the public, resident in Cumbria who sit on the SMB
Board for the purpose of encouraging greater transparency and public accountability
in the work of the MAPPA.

Not only do they provide an opportunity to question what is done about crime and
public protection in their area, but they also bring a lay view to the development of
the MAPPA.

Their contribution to developing the complex and sensitive work of public protection
continues to be greatly received by the Strategic Management Board.

The following highlights the experience of one of the Lay Advisers`:

“The role of a lay adviser is to act as informed observers so that the professionals who are
devising strategies for public protection know that someone who is not involved in their daily
work can ask a right question at the right time. Of course it is important to have some
understanding of the Criminal Justice System and the potential dangers presented to the
public by offenders and the training provided by the Public Protection Unit of the Home Office
has been very useful in this respect.

In meeting lay advisers from other areas it was useful to compare experiences and to observe
the progress that had been made in Cumbria. Here we have clear action plans to achieve our
objectives and all the aims set at the beginning of the year have been met. The active
involvement of other agencies has undoubtedly improved the communication amongst all
those bodies involved with the management of offenders and this can only serve the public

Of particular note are the many MAPPA meetings led by the Probation Service where a
number of agencies assess the potential harm of particular individuals and conclude how best
that risk can be managed. This process of risk management is very effective and is essential
in a system where resources are under constant strain.

It is a fundamental requirement of the lay adviser role to monitor the effectiveness of the
arrangements made to protect the public and it is pleasing to say that in Cumbria the
Responsible Authorities have worked well together and formally involved other important
agencies including Children Services, Mental Health, NSPCC and Housing to create a very
good process for dealing with this complex work.”

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Cumbria MAPPA


Information provided to the Public Protection and Licensed Release Unit of the Home
Office is contained within the Annual Report’s Statistical Information.

It is important to remember that the total number of violent and sexual offenders is a
very small proportion of the general public as a whole.

The number of Registered Sex Offenders in the county has risen only minimally since
last year. A rise in numbers nationally was however predicted following the
implementation of the Sexual Offences Act 2003 which widened the range of sexual
offences meeting the criteria for registration.

The MAPPA in Cumbria has continued to use new legislation to increase controls over
Sex Offenders assessed as presenting a high risk to the public by the imposition of
Civil Orders. Such Orders place greater restrictions on the behaviour of offenders and
usually for a longer period, with the possible consequence of a custodial sentence
should the offender fail to comply.

The number of applications for Sexual Offences Prevention Orders (SOPOs) has
increased by over 200% compared with the number of applications made the previous
year. The presence of a Cumbria Constabulary legal representative at MAPPA
meetings to advise on matters such as behaviour criteria and appropriate restrictions
has greatly improved the success rate of the imposition of such orders.

The total number of offenders subject to management by the MAPPA in Cumbria

(seventy offenders) has risen by 13% compared to last year. This slight rise does not
however, necessarily equate to a rise in the number of higher risk offenders resident in
the area. It can be attributed to a more efficient system of risk assessment and
management which now encompasses some offenders who previously would not have
been subject to multi-agency involvement.

Cumbria has devised a comprehensive referral system into the MAPPA which ensures
that valuable resources are targeted at the most serious risk offenders. Managers are
required to oversee the risk assessments undertaken by practioners which acts as a
`second opinion` assessment for those offenders who may be considered to present a

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Annual Report

lower risk of harm. In these circumstances a management plan will be agreed by the
manager after consideration of all the relevant issues. These offenders will be
managed at MAPPA Level 1; by a single agency.

More important than the number of offenders subject to management by the MAPPA
is fact that the majority of these offenders (i.e. the seventy offenders for 2005-06) are
managed at Level 2 (94%) with only a very small percentage (6%) regarded as the
`critical few` offenders, requiring intensive management and an extensive level of

Whilst the number of MAPPA offenders returned to custody for a breach of licence
has increased this year, this in many respects should be viewed as a success. A
combination of improved practice and more robust MAPPA management and
monitoring systems has resulted in the National Probation Service being increasingly
responsive to offender infringements of their licence conditions.

It is worthy of note that the majority of these infringements have been relatively minor
which highlights that the management of such high risk offenders can also be viewed
as `preventative` i.e. ensuring early intervention to prevent the likelihood of more
serious further offending.

As stated earlier in `Key Achievements` , of all the offenders subject to MAPPA

management ,at both Levels 2 and 3 ,none have been charged with a serious sexual
or violent offence during this report year. This must be regarded as a successful

Page 27
Cumbria MAPPA

MAPPA Annual Reports Statistical Information

Reporting Period 1st April 2005 – 31st March 2006

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

i) The number of RSO’s living in Cumbria on 31st March 2006 260

The number of RSO`s living in Cumbria per Basic Command Unit on 31st March

Basic Command Unit (BCU) area: Number of RSO`s :

North 100
South 82

West 78

i) The number of RSO’s 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. 12
iii) The number of:

a) Sex Offences Prevention Orders (SOPO’s) applied for 19

b) Interim SOPO’s granted 1
c) Full SOPO’s imposed by the courts in Cumbria 7

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Annual Report

iv) The number of:

a) Notification Orders applied for 0

b) Interim Notification Orders granted 0
c) Full Notification Orders imposed by the Courts in Cumbria 0
v) The number of Foreign Travel Orders:

a) Applied for 0
b) Imposed by the Courts in Cumbria 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 Cumbria 121

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) 4

4. Offenders managed through Level 3 (MAPPP) and Level 2 (local inter-agency


Page 29
Cumbria MAPPA

viii) The number of MAPPA offenders, in each of the three categories (i.e. 1) RSOs, 2)
V & O and 3) Other) that have been managed through the MAPPP (Level 3) and
through local inter-agency management (Level 2)

Level 3 Level 2

RSO 1 34

V&O 2 29

Other 1 3

ix) Of the cases managed at Level 3 or 2, the number, whilst managed at that level
who were:

a) Returned to custody for a breach of Licence

b) Returned to custody for a breach of Restraining Order or

Sexual Offences Prevention Order

c) Were charged with a serious sexual or violent offence

Level 3 Level 2
a) 11 11

b) 0 0

c) 0 0

Page 30


1. MAPPA Development Strategy

Strategic Aim Delivery Plan Milestones Resource Outcome

a) Achieve dedicated MAPPA Analysis of resource / ca- End of May 06 Led by MAPPA Reg- By April 2007 confirmed
co-ordination and administration pacity requirement to admin- istrar and SPO dedicated co-ordination
capacity across MAPPA SMB ister and and administration and
budget to meet Cumbria
co-ordinate Report on re- requirements
sources required SMB to identify
for MAPPA meet- dedicated funding
ing chairs
Produce business plan for End of June 06 Police and Probation Receipt of Business Plan
SMB and RAs Senior Man- RA leads and agreement as to
agement Team for agree- MAPPA development for
ment the year.
Plan in place

Determine a budget for End of April 07 Police and Probation Sufficient resources to
06/07 RA leads manage MAPPA effi-
ciently and effectively by
Predict next years

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Annual Report



Page 32

1. MAPPA Development Strategy

Strategic Aim Delivery Plan Milestones Resource Outcome
Cumbria MAPPA

Review existing protocols, Nov 06 SMB Led by MAPPA By April 2007 – up to date
process & recommendations policies, procedures that
for review, Registrar & RA leads are `fit for purpose`.
in conjunction with
development & implementa- Report to SMB DTC agencies
tion for JAR,LCSB,ACJB &
DTC agencies
b) Improve quality of delivery of Update and revise service May 06 Led by Public Protec- By April 07, further audit
MAPPA service delivery taking into account tion SPO & MAPPA demonstrates clear im-
local audit, H Kempshall Registrar provement of MAPPA
research and Joint Inspection service
Findings Executive sum-
mary to SMB

Implement OASys quality June 06 Probation RA lead Consistency and quality of

audits on risk of harm assess- the assessment/
ment and management plans
for offenders subject to Pro- management
bation supervision Implement OASys
quality audits of high risk offenders.
2.Monitoring and Evaluation Strategy
Strategic Aim Delivery Plan Milestones Resource Outcome

a) Implement arrangements to - Production of annual report End of April 06 Led by MAPPA Reg- Report published and com-
support publication of the MAPPA encompassing an evaluation istrar in conjunction municated as per strategy
Annual Report of RA & DTC developments SMB receive draft with RA leads and by 10.06
report and approve Police PR Dept

- Integrate with communica-

tion strategy to be developed End of Sept 06
with Police PR Dept
Report completed
and ready for publi-
b)Development of MAPPA per- Agreement with SMB on By May 06 SMB Led by MAPPA Reg- By 1st April 2006 active
formance indicators and monitor- presentation of Management istrar , supported by analysis and action against
ing systems to support: Information report, analysis Information Unit at information.
and communication routes. Police HQ
- Analysis of MAPPA thresholds Presentation of
at Level 2 & 3 revised Information
Management report RAs and DTCs to use in-
- Analysis of attendance and level formation to improve
of co-operation at Level 2 & 3
meetings quality of service delivery
- Analysis of diversity profile of
offenders assessed at Level 2 & 3
c)Improve consistency and re- Briefing from regional Risk By Sept 06 SMB Led by MAPPA Reg- By 01.04.07 Cumbria in-
cording of collation of data by & Public Protection meeting. istrar putting into regional data-
collaborating with regional data- base

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Agenda item
Annual Report

Page 34
2.Monitoring and Evaluation Strategy
Strategic Aim Delivery Plan Milestones Resource Outcome
d) Implementation of VISOR in - Integration into business End of May 06 Led by RA leads By 01.04.07 public protec-
National Probation Service (NPS) case for public protection in tion arrangements “fit for
Cumbria NPS purpose” in Cumbria in-
Cumbria MAPPA

cluding VISOR able to

Report produced measure agreed indicators.
- Collaborate with regional

e)Present Serious Further Offence - Track SFOs in NPS Every SMB agenda Led by RA leads in Processes identified to link
(SFO) findings to SMB and link item conjunction with issues from SFOs and seri-
to serious case reviews for child MAPPA Registrar ous case reviews for child
protection and domestic violence and Public Protection protection and domestic
- Link with LJCB and DV SPO violence.
SMB By Sept 06
3.Communications & Strategic Partnership Strategy

Strategic Aim Delivery Plan Milestones Resource Outcome

a)i)Publication of Annual - Prepare annual report in con- - Report produced Led by MAPPA Reg- Report produced & com-
junction with guidance by Sept 06 istrar, in conjunction municated
Report in consultation with Lay with RA leads & Po-
Advisers & SMB, supported by lice PR Dept Positive media messages re
Ministers and the collation of public protection work
MAPPA data from PPLU. - Plan communication and - Communication which contributes to im-
marketing strategy with Police and marketing proved public understand-
a) ii) Develop area communica- PR dept ;as approved by SMB strategy agreed by ing and confidence.
tion strategy, taking account na- June .06
tional RANSG strategy. Communication strategy in

b) Development of the role of Lay - Induction for new lay mem- By July 06 RA leads and Role of Lay Advisor is
Advisor ber MAPPA Registrar
Induction complete clear and prominent.

Able to provide independ-

- Agreements with Lay Advi- ent advice and represent
sor on role in communication By June .06 public perspective at SMB
of SMB and public protection and national MAPPA
messages Role agreed and events as appropriate

c)Clear processes in place to sup- See a) See a) See a) Consistent and clear mes-
port consistent sharing of guid- sages re SMB and public
ance and good practice to SMBs Issue leaflet re the work of protection

Page 35
agencies involved in public
protection & MAPPA
Annual Report

Page 36
3.Communications & Strategic Partnership Strategy
Strategic Aim Delivery Plan Milestones Resource Outcome

-Develop a training strategy for: - Regular induction sched- SMB Nov 06 Led by Public Protec- All RA practitioners’ con-
ule for new practitioners, tion SPO & MAPPA fident and knowledgeable
Cumbria MAPPA

- induction to MAPPA of new prac- SMB members, adminis- Registrar in conjunc- re MAPPA process.
titioners trators and Chair of meet- tion with RA leads
ings Agenda item at
- for MAPPA SMB members SMB i.e. frame-
work for training All SMB members rou-
- for MAPPA co-ordinators and ad- tinely advised on MAPPA
ministrators - MAPPA co-coordinator/ development & impact of
chairs to attend national relevant legislation
Develop local training for MAPPA
practioners re Training packages in place
- Framework for duty to
-Delivery of national MAPPA guid- co-operate briefings, in-
ance (due Dec 06) formation and include
housing providers Duty to Co-operate practi-
- Delivery of national templates (due tioners’ confident and
Nov 06) knowledgeable re MAPPA
- Delivery of national training pack - Framework for dissemi-
(due April 07) nation of new MAPPA
Annual Report

Page 37