Cumbria MAPPA Annual Report


Multi-Agency Public Protection Arrangements Annual Report 2005-2006

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Cumbria MAPPA

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Annual Report














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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 Wetheral Cumbria CA4 8EW Tel: 01228 560057 Superintendent (Operations) Cumbria Constabulary Police Headquarters Carleton Hall Penrith Cumbria CA10 2AU Tel: 01768891999 North West Area Office HM Prison Service Stirling House Ackhurst Business Park Foxhole Road Chorley Lancashire PR7 1NY 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 Kendal LA9 4RF Tel: 01539 816014

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Cumbria MAPPA

2. MINISTERIAL FOREWORD BY GERRY SUTCLIFFE, MP 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 multiagency 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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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 (MAPPA).

(NB a copy of the report `MAPPA-The First Five Years: A national Overview of the MultiAgency 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;


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 Cooperate 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 authorities. 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 Chief Probation Officer National Probation Service Cumbria Michael Baxter Chief Constable Cumbria Constabulary Ian Lockwood Assistant Director of HM Prison Service 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 meetings.

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 community.

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 multidisciplinary 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 offenders.

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 legislation:

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 managed. 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 offender 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 assessed 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 scrutiny. 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:

Stage 1- IDENTIFICATION 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 Service who has the primary responsibility for managing offenders in the community. Offenders serving custodial sentences are referred to the MAPPA in advance 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.

Stage 2 – INFORMATION SHARING The exchange of information is an essential element of effective public protection. Agencies attending the MAPPA meetings share information about the offender 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

Stage 3 – RISK ASSESSMENT 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 assessment 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 difficult or impossible`.

Stage 4 – RISK MANAGEMENT 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 supporting 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 out. 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, committed over a significant period, for which he was sentenced to an eight year term of imprisonment. 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 concerns 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 licence conditions imposed by the MAPPA.These included a condition not to have any unsupervised 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 numerous 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 highlighted 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 psychiatric/psychological services and subsequent MAPPA meetings continued to monitor his resettlement back into the community and level of public safety.

This case illustrates that from the point of reception into custody it is fundamentally important 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 responsible 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 Education. 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 public.

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 200506 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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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 interest.

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 resources.

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 outcome.

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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


The number of RSO`s living in Cumbria per Basic Command Unit on 31st March 2006:

Basic Command Unit (BCU) area: North North South West

Number of RSO`s : 100 100 82 78

i) The number of RSO’s per 100,000 head of population ii) The number of Sex Offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement. iii) The number of: a) Sex Offences Prevention Orders (SOPO’s) applied for b) Interim SOPO’s granted c) Full SOPO’s imposed by the courts in Cumbria


12 19 1 7

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Annual Report
iv) The number of: a) Notification Orders applied for b) Interim Notification Orders granted c) Full Notification Orders imposed by the Courts in Cumbria v) The number of Foreign Travel Orders: a) Applied for b) Imposed by the Courts in Cumbria

0 0 0 0 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


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

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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 RSO V&O Other 1 2 1

Level 2 34 29 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 a) a) b) c) 1 1 0 0

Level 2 11 11 0 0

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1. MAPPA Development Strategy
Delivery Plan Milestones Resource Outcome

Strategic Aim

a) Achieve dedicated MAPPA co-ordination and administration capacity across MAPPA SMB Analysis of resource / capacity requirement to administer and End of May 06 Led by MAPPA Registrar and SPO co-ordinate SMB to identify dedicated funding Police and Probation RA leads Report on resources required for MAPPA meeting chairs End of June 06

By April 2007 confirmed dedicated co-ordination and administration and budget to meet Cumbria requirements

Produce business plan for SMB and RAs Senior Management Team for agreement Plan in place

Receipt of Business Plan and agreement as to MAPPA development for the year.

Determine a budget for 06/07

End of April 07

Police and Probation RA leads

Annual Report


Predict next years budget

Sufficient resources to manage MAPPA efficiently and effectively by RAs

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Delivery Plan Milestones Resource Outcome Review existing protocols, process & recommendations for review, Nov 06 SMB Led by MAPPA development & implementation for JAR,LCSB,ACJB & DTC agencies Update and revise service delivery taking into account local audit, H Kempshall research and Joint Inspection Findings May 06 Executive summary to SMB June 06 Probation RA lead Report to SMB Registrar & RA leads in conjunction with DTC agencies By April 2007 – up to date policies, procedures that are `fit for purpose`. Led by Public Protection SPO & MAPPA Registrar By April 07, further audit demonstrates clear improvement of MAPPA service Consistency and quality of the assessment/ management Implement OASys quality audits of high risk offenders. Implement OASys quality audits on risk of harm assessment and management plans for offenders subject to Probation supervision



1. MAPPA Development Strategy

Cumbria MAPPA

Strategic Aim

b) Improve quality of delivery of MAPPA service

2.Monitoring and Evaluation Strategy
Delivery Plan - Production of annual report encompassing an evaluation of RA & DTC developments End of April 06 SMB receive draft report and approve Report published and communicated as per strategy by 10.06 Led by MAPPA Registrar in conjunction with RA leads and Police PR Dept Milestones Resource Outcome

Strategic Aim

a) Implement arrangements to support publication of the MAPPA Annual Report

- Integrate with communication strategy to be developed with Police PR Dept End of Sept 06 Report completed and ready for publication By May 06 SMB Led by MAPPA Registrar , supported by Information Unit at Police HQ

b)Development of MAPPA performance indicators and monitoring systems to support: Presentation of revised Information Management report

- Analysis of MAPPA thresholds at Level 2 & 3

Agreement with SMB on presentation of Management Information report, analysis and communication routes.

By 1st April 2006 active analysis and action against information.

- Analysis of attendance and level of co-operation at Level 2 & 3 meetings

RAs and DTCs to use information to improve quality of service delivery to MAPPA.

- Analysis of diversity profile of offenders assessed at Level 2 & 3 Briefing from regional Risk & Public Protection meeting. By Sept 06 SMB Led by MAPPA Registrar By 01.04.07 Cumbria inputting into regional database Agenda item

Annual Report

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c)Improve consistency and recording of collation of data by collaborating with regional database

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Delivery Plan - Integration into business case for public protection in Cumbria NPS End of May 06 Led by RA leads Report produced - Collaborate with regional approach Milestones Resource Outcome By 01.04.07 public protection arrangements “fit for purpose” in Cumbria including VISOR able to measure agreed indicators. - Track SFOs in NPS Every SMB agenda item - Link with LJCB and DV SMB By Sept 06 Led by RA leads in conjunction with MAPPA Registrar and Public Protection SPO Processes identified to link issues from SFOs and serious case reviews for child protection and domestic violence.


2.Monitoring and Evaluation Strategy

Strategic Aim

Cumbria MAPPA

d) Implementation of VISOR in National Probation Service (NPS)

e)Present Serious Further Offence (SFO) findings to SMB and link to serious case reviews for child protection and domestic violence

3.Communications & Strategic Partnership Strategy
Delivery Plan - Prepare annual report in conjunction with guidance Led by MAPPA Registrar, in conjunction with RA leads & Police PR Dept - Report produced by Sept 06 Report produced & communicated Milestones Resource Outcome

Strategic Aim

a)i)Publication of Annual

Report in consultation with Lay Advisers & SMB, supported by Ministers and the collation of MAPPA data from PPLU. - Plan communication and marketing strategy with Police PR dept ;as approved by SMB - Communication and marketing strategy agreed by June .06

a) ii) Develop area communication strategy, taking account national RANSG strategy.

Positive media messages re public protection work which contributes to improved public understanding and confidence. Communication strategy in place.

b) Development of the role of Lay Advisor By July 06 Induction complete

- Induction for new lay member

RA leads and MAPPA Registrar

Role of Lay Advisor is clear and prominent.

By June .06 Role agreed and communicated

- Agreements with Lay Advisor on role in communication of SMB and public protection messages

Able to provide independent advice and represent public perspective at SMB and national MAPPA events as appropriate

Annual Report

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See a) Issue leaflet re the work of agencies involved in public protection & MAPPA See a)

c)Clear processes in place to support consistent sharing of guidance and good practice to SMBs

See a)

Consistent and clear messages re SMB and public protection

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Delivery Plan SMB Nov 06 Milestones Resource Outcome All RA practitioners’ confident and knowledgeable re MAPPA process. - Regular induction schedule for new practitioners, SMB members, administrators and Chair of meetings Led by Public Protection SPO & MAPPA Registrar in conjunction with RA leads Agenda item at SMB i.e. framework for training - MAPPA co-coordinator/ chairs to attend national training All SMB members routinely advised on MAPPA development & impact of relevant legislation Training packages in place - Framework for duty to co-operate briefings, information and include housing providers Duty to Co-operate practitioners’ confident and knowledgeable re MAPPA process. - Framework for dissemination of new MAPPA guidance


3.Communications & Strategic Partnership Strategy

Strategic Aim

Cumbria MAPPA

-Develop a training strategy for:

- induction to MAPPA of new practitioners

- for MAPPA SMB members

- for MAPPA co-ordinators and administrators

Develop local training for MAPPA practioners re

-Delivery of national MAPPA guidance (due Dec 06)

- Delivery of national templates (due Nov 06)

- Delivery of national training pack (due April 07)

Annual Report

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