Multi-Agency Public Protection Arrangements Annual Report 2004-5

Ministerial Foreword by Baroness Scotland
The work being undertaken to improve the safety of communities through the Multi-Agency Public Protection Arrangements (MAPPA) is vitally important and a priority for government. The annual reports for 2004/5 provide evidence of that active engagement. Violence and sexual abuse are unacceptable wherever they occur and it is evident that through MAPPA such offenders are identified and better managed than ever before. As the number of offenders within MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that is the local police, probation and the Prison Service, is addressing these additional demands by strengthening local partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where they breach their licence or order, and using the findings of research and inspection to strengthen national guidance and local practice. Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me one of the most exciting developments in this arena in the last 12 months has been the appointment of lay advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public these lay advisers represent a diverse, able and committed group of people who are now helping the statutory agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively. Without a growing sense of public knowledge and confidence about this work much of the benefits of the public protection arrangements will be lost. I hope this annual report will be useful, informative and re-assuring to local communities. The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.

Baroness Scotland Minister of State for Criminal Justice and Offender Management

We are pleased to present the fourth Annual Report about the work of Devon & Cornwall’s MultiAgency Public Protection Arrangements (MAPPA). This report offers our local communities a unique insight into how the management of high-risk offenders is carried out on their behalf. It reflects the combined activities of the ‘Responsible Authority’ – Police, Probation and the Prison Service and our partners that include, social services, health, housing and the Youth Offending Service. For 2005 the MAPPA Strategic Management Board (SMB) has been strengthened by the appointment of two Lay Advisers. We look forward to the contribution they can provide in making all agencies more accountable for their actions. Every agency involved in MAPPA within Devon & Cornwall is committed to the development of best practice. In October 2004 persons involved in the MAPPA’s for Devon & Cornwall, Avon & Somerset, Gloucester, Wiltshire and Dorset met to strengthen regional collaboration across the whole of the Southwest. Further meetings will be taking place. In March 2005 the area went live with the computer application the Violent & Sex Offender Register (ViSOR). This has meant that information on every registered sex offender and those deemed to be dangerous or violent can be accessed via computer from anywhere in the country. We as Chief Officers and your SMB will continue to scrutinise all arrangements to ensure existing procedures meet the ever-changing risk. We commend this report to you and thank all the individuals and agencies involved for their hard work, drive, enthusiasm that has contributed to the achievements set our in the body of this report.

Maria Wallis Chief Constable Devon & Cornwall Constabulary

Mary Anne McFarlane Chief Officer Devon and Cornwall Probation Area

Jerry Petherick HMP Area Manager

What is MAPPA?
MAPPA stands for Multi Agency Public Protection Arrangements. The MAPPA grew out of the closer working relationship between the police and probation (and increasingly other agencies) in the late 1990s. The Criminal Justice and Court Services Act 2000 placed a legal requirement on all areas to establish Multi Agency Public Protection Panels (MAPPP’s) in order to assess and manage offenders who pose a high risk of serious harm to the public. Police and Probation were defined as the Responsible Authority required to lead on this. The Criminal Justice Act 2003 has reenacted and strengthened the MAPPA legislation, engaging the Prison Service as part of the Responsible Authority and placing a Duty to Cooperate with MAPPA on a range of other agencies and organisations. The Sexual Offences Act 2003 overhauls the many antiquated sexual offences and plugs loopholes in the law. In updating sexual offences, it strengthens the law on rape and on sex offences against children. The Sexual Offences Act also strengthens the sex offenders register, which has proved a valuable means by which the police can monitor convicted sex offenders within their area, also introduced were new civil orders to help prevent further offences from being committed.

Who are MAPPA offenders?
Effective multi-agency public protection needs efficient identification of relevant offenders. There are principally three categories of offender who fall within the MAPPA:

Category 2
Violent offenders and those sexual offenders who are not required to register; and,

Category 1
Registered sex offenders (RSOs), that is those sexual offenders required to register under the terms of the Sexual Offences Act 2003. (Which replaced the Sex Offender Act 1997);

Category 3
Any other offender who, because of the offences committed by them (wherever they have been committed) are considered to pose a risk of serious harm to the public. Offenders must have been convicted of an

offence which indicates a capability of causing serious harm to the public AND the Responsible Authority must reasonably consider that he/she may cause serious harm to the public. Offenders from category 1 and 2 who still pose a risk at the point they leave the MAPPA (i.e. at the end of registration), can be included under category 3.

How are they managed?
In Devon and Cornwall, all offenders falling under the MAPPA are assessed to determine the levels of risk they pose to the public. This assessment is carried out primarily by staff from the probation area and the police, sometimes jointly. Validated methods of assessment are used alongside professional judgement to determine those offenders who form part of the ‘critical few’ seen as posing a very high risk of harm and those who, although not in the highest category, still pose a high risk of causing harm to the public. A three-tier system is used for dealing with offenders. The purpose of the three tier system is to ensure that the most high risk of harm offenders receive the greatest degree of scrutiny and oversight. The three tiers are:

• Level 2: Risk Assessment Management Panel (RAMP):
Where High risk offenders are jointly managed by police and probation, supported by any relevant information provided by other agencies;

• Level 1: Single Agency Intervention:
Where low and medium risk offenders who do not require multi agency management are dealt with by one agency (usually police or probation);

• Level 3: Multi Agency Public Protection Panel (MAPPP):
Where offenders, assessed as Very High risk, often referred to as ‘the critical few’, are assessed, managed and reviewed at a senior level by all the agencies that play a part in MAPPA..

What are MAPPP’s?
A Multi Agency Public Protection Panel is a regular meeting of agencies concerned with the management of registered sex offenders, violent offenders, and other offenders who present the highest levels of risk. The purpose of the meeting is to enable information to be shared between the agencies so that the best possible assessment of risk can be made in respect of these offenders. An agreed risk management plan is then developed for each offender based on their risk assessment.

What can a MAPPP do?
A panel can advise particular agencies of action they might take to improve public protection and effectively manage risk in individual cases. Usually the agencies present will agree a range of measures, which collectively form a public protection plan. This might include, for example, restrictions or controlling measures, accommodation, supervision or treatment requirements, sharing of information, advice to the offender or potential victims or co-ordination of contact arrangements. In addition, the police will discuss applications for Sexual Offences Prevention Orders (SOPO’s) with the panel. Panels are also the forum for considering any form of public disclosure.

Do victims have direct access to MAPPP’s?
No - the meeting itself is confined to representatives from agencies and organisations involved in MAPPA. However, the views and concerns of victims are crucial in helping the agencies decide on the most appropriate strategies for managing individual offenders, and depending on the circumstances of the case, one or more of the MAPPA agencies – eg; Social Services, NSPCC, Probation, Police- will be able to represent the interests of victims and to make their views known.

Who sits on MAPPP’s?
MAPPPs in this area are chaired by the MAPPA Manager, who is a Senior Probation Officer. The MAPPA co-ordinator assists the MAPPP, recording the actions that form part of the public protection plan. The core members of the panel are the police, probation service, social services and housing. The prison service, education, health and other professionals attend as appropriate to the individual cases under discussion.

Do offenders attend MAPPP’s?
No – again, the meeting itself involves only the MAPPA agencies. Offenders’ views will usually be known by police and/or probation. They are informed that they are being managed through a multi agency process, and key decisions about managing the risk they pose will usually be passed on to them by their probation officer or the police offender manager, unless this information is sensitive and needs to be kept confidential in order to protect known victims or the public at large.

What about confidentiality?
Information shared at MAPPPs is confidential to the agencies represented and will only be used as agreed for the protection of the public. Each agency represented is responsible for ensuring the information and documentation are handled and stored securely.

An agreed risk management plan is developed for each offender based on their risk assessment.

Local developments in 2004 – 05
• HM Prison Service
In April 2004 the Prison Service joined the Police and Probation as the third member of the Responsible Authority. The Prison Service contribute to the MAPPA at two key levels, joining the Strategic Management Board but also providing important continuity between the management of offenders in prison and the community. The Prison Service will ensure that prisoners subject to MAPPA are identified as early as possible within their sentence and referred to the MAPPA co-ordination process. A risk assessment tool is used to assess initial and subsequent assessments of risk of harm to others. Prisons will also provide information about release dates and, where relevant, about an offender’s behaviour in prison to ensure that the MAPPA risk assessment process is informed about factors relating to risk. Officers of appropriate grades will also contribute to the development of risk management plans and attend MAPPA panels.

• Violent and Sex Offender Register (ViSOR)
The computer application ViSOR (Violent and Sex Offender Register) has been developed by PITO (Police Information Technology Organisation) to assist in the monitoring and management of sexual and violent offenders. ViSOR went live in Devon and Cornwall Constabulary on Wednesday 23rd March 2005. Once fully implemented ViSOR will allow all information regarding dangerous and sexual offenders to be shared nationally with other forces, the Probation Service and the Prison Service. This information will be accessible 24 hours a day, 365 days a year. When fully implemented ViSOR will be the recording medium through which Registered Sex Offenders, via personal attendance at prescribed police stations, register their addresses. It will flag that an individual has left one police area and has to register in another area, thus encouraging a monitoring visit or commencement of processes aimed at identifying and locating offenders who fail to re-register. It will also be the medium by which certain violent offenders, sexual offenders or persons posing a risk to the public are monitored and managed and be the means by which such monitoring visits are managed. This database is seen as a vital tool for protecting the public and the Devon and Cornwall Constabulary have already directed funding into creating an additional post within the Headquarters Public Protection Unit, in order to administer the system and to role out training to relevant personnel.

To assist in the development of this important area of work, and the efficient use of VISOR as a research and pro-active tool in the management of violent and sexual offenders, Devon and Cornwall Constabulary has also provided funding for two further new posts within the Public Protection Unit.

• Lay Advisers
As a part of the nation-wide appointment of Lay Advisers to every ‘Responsible Authority’ for the MAPPA, in the 42 Areas of England and Wales, Devon and Cornwall MAPPA, have inducted two members of the public to act as ‘Lay Advisers’ to the MAPPA Strategic Management Board. This was as a requirement of Section 326(3) of the Criminal Justice Act 2003. The Lay Advisers will play an important part in the review and monitoring of the MAPPA, and as such will offer significant benefit to the Responsible Authority in reflecting the views of ordinary members of the public in respect of sensitive public protection issues The value of the ‘Lay Advisers’ role is essentially twofold. First, they represent a community interest in public protection. This does not mean that the Lay Advisers represent the public in the way, for example, that local councillors do: Lay Advisers cannot ‘report’ to the local community independently or canvass views in the way that elected representatives do. Secondly, their value lies in what they bring to the Responsible Authority, which is essentially a different perspective from that of the professional interests in the MAPPA. The Lay Advisers, will not be paid, they will attend at least four

meetings of the Strategic Management Board a year but are not expected to become involved in the monitoring of dangerous offenders. Instead their role will be to observe and question the arrangements for managing such people in the community - to be "critical friends". They will not have any contact with the offenders.

• A message from the Devon and Cornwall Lay Advisers Introduction
This short account personalises and summarises our views about the appointment process, initial induction and our participation in the national training weekend. It will also include our future learning needs and expectations.

appointed and involved an excellent series of briefs, which focused not only on national issues but also MAPPA concerns effecting Devon and Cornwall. Once again, as was apparent at the initial interviews, the hosting authority gave clear indications throughout the day that the Lay Adviser concept was valuable, without ever being patronising. More significantly the political implications, which are obviously important, were complemented by a genuine desire to ‘join the team’. The whole day was totally absorbing but arguably of most significance, by the end of the final session we had a sound understanding of how the work of MAPPA in our area was made accountable.

• As with the training, the content and conduct of the SMB varies across regions. The SMB ‘exercise’ was useful for us as we have yet to attend an SMB. • This weekend provided invaluable knowledge and was supplemented by the complete MAPPA guidance notes. In due course we will attend another training weekend. Clearly it does not provide experience. Ironically, because our knowledge is ‘hot off the press’ it may make us appear to be more ‘knowledgeable’ then some of the Duty to Co-operate agencies. In the worst case, through time we could become more ’knowledgeable’ then other newly appointed yet highly qualified members of the SMB. We need to be sensitive to these potentially difficult personnel issues.

National training weekend
The national training weekend occurred 11-13 March 2005 and certainly surpassed our expectations. To say ‘outstanding’ would just be one of the superlatives that could be attached to the weekend and the subsequent feedback sheets reflected unanimous satisfaction. Apart from the obvious merits of the content and delivery of the training, we also wish to highlight some additional, related issues: • Despite their obvious diversity, all attendees shared a ‘unity of purpose’ or ‘common philosophy’ towards MAPPA. From this perspective, the selection process has worked. • Although the interview/selection process was fairly standard in all regions, the scope and quantity of subsequent training was extremely varied. We would like to see some standardisation based on a ‘best practice’ model. • Notwithstanding the above, we are now well placed to identify and articulate our own training needs through a ‘mentor’.

Appointment process
Having both had previous experience in the voluntary sector, we were surprised at the scope and rigour of the recruitment and selection process. We felt that the information pack supporting the application form, which included the Annual Report 2003-4, was excellent and stimulated interest. Even a brief scan of the Person Specification and Role Description confirmed to us the significance of selecting an appropriate candidate. Although the process was exhausting, it was clear to us that the interview panel was taking their professional responsibilities extremely seriously. Their business-like yet respectful approach, together with the personal level of representation, enabled us to fully appreciate the importance of the post and frankly to also feel quite proud of ourselves in being successful!

Future learning needs and expectations
We have yet to attend an SMB, therefore it is difficult to fully identify our specific future learning needs. In outline however, we would expect to broaden our professional knowledge about the various agencies that comprise the MAPPA. Establishing a closer relationship with a variety of professionals will help to dispel prejudices that sometimes arise towards the layperson or ‘amateur’. Ideally, a sequence of briefs and visits would be valuable and mutually beneficial. Our own experience of multi-agency participation has thus far been restricted to the Police and Probation Services but it is clear to us that the professionals we have met are genuinely trying to be fully inclusive to all agencies. Although it was due to unforeseen circumstances, we feel that cancellation of the local SMB meeting, that we were due to attend, has resulted in us losing the initial momentum in establishing the role of Lay Advisers in our area. We are hoping that this is only a

The first phase of our induction occurred within a month of being

temporary measure but we are acutely aware of the importance of promoting and maintaining our desire to learn - particularly between SMB meetings if no other training is in place. Having not yet being involved in an SMB, it makes us feel ‘incomplete’ as a Lay Adviser. On a more positive

note, we are both pragmatists and are entirely confident that when we do take part, a number of our concerns will be allayed and any questions about our roles or responsibilities will be clarified. Apart from the above comment, so far the level and nature of training we have received has met or

surpassed our expectations and being a Lay Adviser continues to be an enjoyable and rewarding experience. The true worth of our role however is unlikely to be revealed for at least another year. We consider continuation training to be vital even when our posts have been fully established.

Joint HMIP/HMIC Thematic Inspection
During March 2005 the Police and Probation services in Devon and Cornwall were visited and reviewed by staff from HM Inspectorate of Constabulary and HM Inspectorate of Probation. This Area was one of five Areas chosen from across the country. The purpose of the review being to analyse and assess the progress, quality and effectiveness of the implementation of MAPPA and interventions used by the Police and National Probation Service in relation to the joint management of sex offenders in our community. The strengths and learning points coming out of the review will be used to help us develop, not only our own practices, but potentially those within other areas as well. Initial feedback from the review team has been received under headings of ‘strengths,’ ‘good practice’ and ‘areas for consideration.’ Examples of strengths and good practice identified by the Inspection were: • The strong working relationship displayed between police and probation. • The dedicated MAPPA Manager and Co-ordinator. • Strong police policy, with associated guidance. • The resources allocated to the Headquarters Public Protection Unit. • The co-located joint police and probation teams sited within each Basic Command Unit. • The innovative work to identify potentially dangerous offenders. Examples of areas for consideration were: • To improve the quality of and timeliness of risk of harm assessments. • To improve the understanding of MAPPA issues amongst field officers. • To review the current levels of supervision of officers engaged in public protection work. The areas for consideration will be made subject to ongoing action plans within the ‘Responsible Authority’ and the MAPPA SMB, in order to seek resolution to some of the issues raised by the Inspectorate team. The full report of the HMI’s will be published later this year.

National developments in 2004 - 05
The role of the Prison Service in MAPPA -2004/5
One of the important ways in which the Criminal Justice Act (2003) strengthened the MAPPA was to make the Prison Service part of the Responsible Authority with police and probation in each of the 42 Areas in England and Wales. The Prison Service has been given this enhanced role in recognition of the important part it plays in protecting the public by keeping offenders in custody; helping them to address the causes of their offending behaviour; and by undertaking other work to assist their successful resettlement. As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs) in the 42 Areas. The Prison estate is configured differently from Police/Probation areas in that its establishments are contained within only 12 geographical areas and two functional areas – the High Security estate, and Contracted Prisons. For this reason arrangements for Prison Service representation on SMBs

vary across the country, but each Prison Service Area Manager has entered into an agreement with the SMBs on how the Service will contribute both strategically and operationally to the MAPPA. The main focus of the Prison Service contribution is at an operational level. A number of measures have been put in place across the prison estate to ensure that this will be effective and result in: • Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk • Regular monitoring of the behaviour of those assessed as

presenting the highest risk, and sharing information with police and probation colleagues • All relevant risk management information being provided to multi agency meetings which help plan an offender’s release • At least three months notification to police and probation of the expected release dates of those offenders who have been referred to the multi-agency public protection panel (MAPPP), and at least six weeks notification of those being managed at level 2 risk meetings • No changes to release dates or arrangements being made without prior consultation with police and probation

Playing an effective role in the multi agency risk management of MAPPA offenders requires good communication between criminal justice partners. The Prison Service has taken steps to ensure that there are dedicated points of contact for public protection at both Area level and in every prison establishment, and that these are published together with police and probation contacts to ensure better communication across the Responsible Authority. With the ever increasing MAPPA population, and proportion of those received into prison likely to grow with the introduction of the new public protection sentences, the inclusion of the Prison Service as part of the Responsible Authority will continue to be vital in protecting the public.

The Strategic Management Board (SMB)
arrangements, such as Area Child Protection Committees, local Crime and Disorder Partnerships and local Criminal Justice Boards. • Preparing and publishing the Annual Report and promoting the work of the MAPPA. • Planning the longer-term development of the MAPPA. The role of the Strategic Management Board (SMB) is to establish, monitor and review the Multi-Agency Public Protection Arrangements. In order to achieve this very broad brief the SMB has 5 main activities: • Monitoring (on at least a quarterly basis) and evaluating the operation of the MAPPA, particularly that of the MAPPP’s. • Establishing connections which support effective operational work with other public protection • Identifying and planning training and developmental needs of those working in the MAPPA. The SMB also: • develop and agree local policies and procedures for inter-agency work to protect the public within national guidance; • encourages and helps to develop effective working relationships between different services and professional groups, based on trust and mutual understanding; • ensures that there is a level of agreement and understanding across agencies about operational definitions and thresholds for intervention; • improves local ways of working in the light of knowledge gained through national and local experience and research and ensures that any lessons learned are shared, understood, and acted upon;

Membership of the SMB
The current chair of the SMB is a Governor from the Prison Service in the Devon and Cornwall area. All agencies on SMBs are represented by senior managers, except the police and probation services where chief officers are considered the appropriate rank for the level of responsibility. Details of the SMB members can be found within the Contacts Section of this report.

A look at MAPPA partners
Whilst some offenders can be effectively managed by the actions of one agency alone, all agencies need the co-operation of others to discharge their public protection duties effectively. Development of effective partnerships is pivotal to how these principles are achieved. Police, Probation and Prison staff take the lead in the operation of MAPPA in Devon and Cornwall, but they cannot achieve effective management of high risk of harm offenders without co-operation and joint working arrangements with other agencies. The agencies who have a ‘duty to co-operate’ (as defined in the Criminal Justice Act 2003) include: • Local Authority Social Services, • Ministers of the Crown exercising functions in relation to Social Security, Child Support, War Pensions, Employment and Training, • Primary Care Trusts, other NHS Trusts and Strategic Health Authorities • Jobcentres Plus • Youth Offending Teams • Registered Social Landlords which accommodate MAPPA offenders • Local Housing Authorities • Local Education Authorities • Electronic Monitoring Providers

Social Services
Social Services Departments in Devon and Cornwall have a statutory duty to provide for the protection of children and vulnerable adults. Their representatives contribute to the multi agency assessment and management process, attending MAPPP meetings, providing written and verbal reports where appropriate and working closely with all relevant agencies in the implementation of supervision plans. A member of Devon Social Services works within the Public Protection Unit at police headquarters. This allows the facilitation of a cross flow of relevant information between the agencies.

process. YOTs have a wealth of information and assessment to offer and often have had considerable contact with the offender and their family. They are able to collaborate with others in developing and delivering plans to manage risk for those offenders for whom they are directly responsible and often for some time after they become adults.

Local Authorities have a statutory obligation under the Housing Act 1996, and the Allocation of Housing (England) Regulations Act 2000, to provide housing for people who find themselves homeless as long as this has not occurred intentionally. The role of the Housing Authority in the risk management process is to represent housing enablers (Local Authorities) and providers (often Housing Associations). They contribute information on appropriate housing for offenders being considered as part of the MAPPA process and how they can be housed safely. The NSPCC has a partnership agreement with Devon and Cornwall Probation Area. This partnership covers the provision of sex offender treatment group -work, staff training and consultation and appropriate contribution to the MAPPP process.

Health Service
Health Service staff who provide a range of services, including community mental health, psychiatric and forensic assessments. Local forensic psychologists provide assessment and treatment packages for offenders where appropriate. Health professionals attend multi agency meetings and contribute to assessments and supervision plans.

Youth Offending Teams
Although the MAPPA deal primarily with adults, some young offenders meet the criteria for inclusion in the

The focus on victims
Devon and Cornwall Probation Area employs Victim Liaison Officers, whose role is to consult and advise victims of sexual and violent offences, in accordance with the Criminal Justice & Court Services Act 2000 and the Victims Charter. In 2004/2005, 96% of victims were contacted within 8 weeks of the offender’s sentence, in accordance with National Standards and the Victims Charter. Victim Liaison Officers attend MAPP panels, to ensure that the victim’s perspective is taken into account where possible, in the formulation of risk management plans and to represent the victim’s interests. The protection of victims is at the core of multi-agency public protection. In cases where children are victims, the Victim Liaison Officers will work with Social

managed to trace only one of the victims and was informed that the second victim had ‘moved away from the area’. At a MAPP meeting held to discuss the fact that the offender had applied for parole, it became clear through police intelligence and information from the Prison and Probation that Mr. E was considered to be a significant risk to the public. In particular he might pose a risk to the victims whom he blamed for the sentence he had received. The investigating police officer was present at the meeting and it was clear that he thought that the offender was one of the most dangerous he had ever met. The assessment of the meeting was that it was imperative for the second victim (Miss B) to be contacted. The seconded police officer was tasked to make enquiries about her whereabouts and was able to trace her to a local area. Thus the Victim Liaison Officer was able to visit Miss B who was most grateful for the contact and who wished to participate fully in the victim contact scheme. This will enable multi agency support to be put in place when the offender is finally released and allow her to offer her views and concerns for consideration when specific Licence conditions are being considered.

Services directly to ensure that child protection measures are maintained. Where there is no Social Services involvement they will contact parents or guardians directly. Other agencies who are directly involved with Victim Liaison Officers in supporting victims interests include Victim Support Service, NSPCC, Police Domestic Violence Units and Police Family Liaison Officers. All agencies through the MAPPA processes aim to maintain an active awareness of the victim impact issues when considering risk management arrangements. In particular there may be considerable anxiety on the part of victims in the way information has been exchanged fearing re-victimisation should the offender learn of their concerns. One of the main issues is considering licence conditions, which aim to deter the offender from

making contact either directly or indirectly via telephone, letter, or third party contact. The victim is advised as to their part in the enforcement process. In some cases Home office alarms are fitted in the victims home to ensure an immediate appropriate response. Also exclusion zones can be identified by way of preventing an offender from seeking to intimidate and harass victims in their home area. Prevention of victimisation is a central and guiding principle of the work of MAPPA and is dependent upon effective multi agency working.

The victim perspective within the Mappa process. Case study
Mr. E, convicted of the rape of two girls under the age of 16, received a custodial sentence of 14 years. The Victim Liaison Officer had

Case study
A victim of serious domestic violence, Mrs. H. and her family were very anxious about the offender’s eventual release. The Victim Liaison Officer’s initial contact with her was a very distressing experience as the victim had thought that the offender would serve the whole of his 5 and a half year prison sentence. It came as a shock to her to discover that he would be eligible for parole after serving half the sentence. She was angry and disappointed with the criminal justice system which, she felt, had let her down. In the course of subsequent meetings, the Victim Liaison Officer was able to help Mrs. H to express her feelings and anxieties, which were shared (with her permission) with members of the probation service and other agencies via the MAPPA process. The background information provided by the victim and her family was helpful in informing the risk assessment process and ultimately the management of the offender when he was finally released. Extra Licence conditions specific to the protection of the victim were discussed and proposed. These were subsequently agreed to the great relief of Mrs. H. Through the MAPPA process the Victim Liaison Officer communicated with the domestic violence police unit. There followed a multi agency meeting at the victim’s home in order to discuss safety measures which were put in place in order to help her to feel more in control when the time came for the offender’s release.

injuries. The effects of this assault have had lasting physical and psychological consequences, leaving the victim feeling very vulnerable. The offender was discussed at MAPPP meeting six months before his release. The Victim Liaison Officer was able to highlight the victim’s vulnerability and her concern regarding the risk of revictimisation. The MAPP panel discussed the Human Rights issues involved, with the offender wishing to resettle in the city where the victim lives and the victim greatly fearing his return. She disclosed that she would not feel confident to leave her home alone if he were residing in the same city. However the offender was only subject to a period of four months statutory supervision by the Probation Service following his release. At the end of which he was free to live wherever he chose. It was agreed that for the first part of his licence he would be excluded from a large part of the city and be

placed in a Probation Hostel in another area. The local Housing Authority were invited to the MAPPA meetings to look at housing away from the area the victim lives in, but in the city where he wanted to be. The police agreed to put a panic alarm in her home. The victim was informed of these plans and was reassured by the fact that he would not initially be in the city. At the end of his licence another MAPPA meeting was held. Housing had been found for him in the city. The victim still remained unhappy and fearful. However, due to the MAPPA meetings, the Housing Authority was aware of his potential risk and the victim’s concerns and had allocated a support worker for him. The Police and Domestic Violence Unit were also alerted. Whilst Probation no longer held any responsibility for him, he was offered voluntary supervision and his case will continue to be reviewed by the MAPPA.

Case study
A victim of domestic violence was violently assaulted in her own home and imprisoned by the perpetrator for two weeks following the attack. During this time she didn’t eat and was in severe pain from her

MAPPA in action locally
The work of HM Prison Service at Dartmoor
The Assessment & Allocation Unit at Dartmoor unit has been set up within the South West area to manage the sex offender population for the thirteen prisons in our area. Because of this we have a high commitment to the MAPPA process in the South West. The public perception of risk is minimised by the view that prisoners pose no risk to the public once confined within prison. The danger with that perception is that sex offenders not participating in any offence related work during their sentence are leaving custody without addressing or reducing the risk they pose when they are reintegrated into the community. Poor liaison and communication between agencies in the past potentially wasted valuable information, and possibly put the public at risk. Similarly our Partner agencies have not always been familiar with the significant risks posed by some offenders returning to the community after lengthy periods in custody. During this time their risk has remained the same as when they were convicted and sentenced, or might even have increased. At HMP Dartmoor we have developed systems to improve on how we manage the risk. We have created an offender-profiling unit to provide the MAPPA process with relevant information on offenders both in custody and due for release into the community. This process focuses on information, which would seem to be of little concern in relation to escapes from custody or trafficking drugs into prison, but focuses on offence related risks and activities such as paedophile networking by prisoners in custody.

Case example
A prisoner convicted of serious sex offences against children from the Gloucester area spent five years in custody at HMP Dartmoor. During that time he completed all sex offence related work required of him and presented to a structured risk assessment a prisoner whose risk was reduced from when he first arrived in custody. When due for release he requested to be re located to the Cornwall area because he felt this would be less traumatic for his victims and their families. From the supervision aspect this pleased the Probation and Social Services because they would not have to worry about his release in to his former home area and negated any victim concerns etc. The reality, which had been observed by prison staff over his sentence, was that his desire to relocate to Cornwall was really inspired by his close association with members of a known paedophile network from the Cornwall area, some of who were in custody at Dartmoor at the same time. All of this is information was obtained by prison staff observing and monitoring prisoners while in custody. Previously, before the Memorandum of Understanding and the Regulation Investigatory Powers Act, it was difficult for staff to legitimately share this type of information with outside agencies. Thankfully there is now placed within prisons Police Prison Liaison Officer’s, and in the case of Dartmoor a Police Risk Assessment Officer specifically to work for the MAPPA process. Without them our job would be much more difficult. Their involvement has enabled valuable intelligence gathered by prison staff to be channelled directly to the agency most concerned as efficiently as possible. We are at present establishing systems for the

effective management of this information, and it is rewarding to see that even at this early stage we are having a considerable impact on reducing the risk to the public, and the safe management of offenders released into the community. This work is carried out by prison staff, unseen by the public, as our contribution to the MAPPA process.

The work of the Police Risk Assessment Officer. Case example
During late December 2004 an offender serving a term of imprisonment for sexual assault was brought to the attention of the police Risk Assessment Officer (RAO), as someone who was deemed to be of increased risk because of his behaviour. He was transferred to HMP Dartmoor and the information about his behaviour was communicated to the Risk Assessment Officer (RAO) for that prison. The RAO liaised with, and shared information with, prison staff, in order that monitoring of the offender could continue, and to further inform the risk assessment process. As a result of these processes effective risk management measures were then put in place to limit the risk that this person presented to females and any potential incident was avoided. Information about the offender’s behaviour was imparted to a level 2 RAMP meeting by the RAO and it was agreed that his risk had increased considerably. He was accorded level 3 ‘high risk’ status and was subsequently managed by the Devon and Cornwall MAPPP. Information from prison sources was used in the overall risk assessment process.

The offender’s prison release plans were changed and he was placed in a Probation Hostel in order that he would have closer supervision and support in the community. However, after only a short time in the community, it was soon recognised that he had started to display behaviour that gave the MAPPP cause for great concern that he was likely to re-offend. As a result of this close supervision and monitoring his licence was revoked and he was recalled to prison. He continues to be monitored by police and prison staff and measures are being considered by the MAPPP to assist this man in reducing his risk to the public before he is released.

A Day in the life of a Police Public Protection Officer
Generally no two days are the same. The usual understanding of our role is that it is a series of meetings with our partner agencies discussing how risky or not certain offenders are and not much more. This could not be further from the truth. We do attend Risk Assessment and Management Panel [RAMP] and Multi-Agency Public Protection Panel [MAPPP] meetings, but these are confined, where possible to one day a week. A normal day may begin with a list of entries in my diary for tasks to be done. These may be routine Sex Offender home visits, specific intervention tasks, joint visits with either Probation or Social Services, Research for risk assessments and profile preparation or other more proactive matters such as enforcement of orders, notification requirements or execution of warrants. However, these may all change at short notice, each task is dealt with in order of priority. A check of incidents and intelligence each morning gives us an idea of what has been occurring in the BCU overnight. These checks may reveal matters that either need our direct intervention, or advice. Contact is made with the relevant officers or their supervisors in order to discuss the issues and where it is seen as necessary we will attend and deal or assist, which ever is the more appropriate. Throughout the working day we will be in contact with not only the police but our partner agencies also. This may be in relation to routine research, but may also be in order to respond to matters that require more immediate action, such as joint visits, specific intervention work or initiating an investigation and arrest. Our aim is to work towards a safer community by the effective use of a multi-agency approach to particular problems or concerns, so reducing the opportunity or motivation for offenders to re-offend.

MAPPA in action case examples.
The following are some examples of cases, which have been managed using new arrangements contained within the Sexual Offences Act 2003.

Case Example 1
A sex offender moved to the Devon and Cornwall area having being released from prison, after having served a long term of imprisonment in another country for offences against his own children. He was not subject to any statutory supervision or registration requirements. A level 2 Risk Assessment Management Panel referred the case to a level 3 Multi Agency Public Protection Panel. The risk assessment was that there was a high risk of re offending should he enter a personal relationship, whereby he could gain access to children. His history was unknown to the local community so the decision was made to apply for a Notification Order. This would require him to comply with the Sex Offender Registration requirements. The Order was successfully applied for and granted. He is now subject to lifetime registration arrangements whilst resident in this country. These arrangements enable Devon & Cornwall Constabulary to monitor his living and working arrangements, thereby assess whether he is placing himself in risky situations and if necessary take action to protect the local community.

not to reside in a household with a child under 18, not to work or undertake any voluntary activity with a child under 18 and not to enter leisure centres or public parks without the prior approval of a supervising Probation Officer. In addition to this he was not allowed to use computers or photographic equipment without obtaining prior permission of his Probation supervising officer. As a result of the monitoring in the hostel, which included room searches, it was discovered that he had obtained three mobile phones which included a camera phone. He was recalled to prison for breach of his licence conditions. The information concerning his recall was then reviewed by the panel and the decision was taken that longer term measures needed to be in place as he would be released at the end of his sentence and therefore no longer subject to statutory supervision by the Probation Service. A legal case was submitted for an application for a Sexual Offences Prevention Order (SOPO). Initially an interim order was granted and this has now been followed up with the Court granting a full SOPO, which could remain in place for the rest of his life. This SOPO includes the following prohibitions:• Approaching, contacting, communicating, engaging or otherwise associating with any male child or young person under 16 years of age or attempting to do any of these whether in any private or public place. • Contacting or seeking to contact communicate by telephone, text messaging, Internet chat rooms, e mails or otherwise any child or young person under the age of 16 years. • Photographing recording or storing computer images of male children or young persons under the age of 16 years.

These prohibitions will be the basis on which he will be monitored should he breach any of the above then he is liable for prosecution and if convicted could be sentenced to a term of imprisonment for a term not exceeding 5 years

Case Example 3
A sex offender who had attracted notoriety within the National press was due to be living in the Devon and Cornwall area. In this case the request was to review him at a MAPPP because of the assessed serious risk to his and his families safety if the local community were alerted to his presence. It was agreed that if he were to remain in the area that there was a real risk of public disorder. In order to minimise this potential risk, arrangements were made with MAPPA colleagues in the region to assist with his management. He was housed for a short while in a neighbouring area’s Probation Hostel. This was time limited and required the offender’s cooperation. These arrangements enabled additional monitoring of his lifestyle as well as ensuring that press interest in him did not result in a public order break down.

Case Example 4
A MAPPP in Devon and Cornwall has managed the risks posed by an offender who had a significant pattern of violence both inside and outside his intimate relationships. The risk assessment identified trigger features to his violence to include lack of social stability particularly housing and his social isolation. The other main feature in his offending was his use alcohol. He would target vulnerable people with whom to have a relationship, then move in and becoming reliant on them for his immediate welfare needs. He then exerted a great deal of control resulting in sexual violence.

Case Example 2
A sex offender managed at MAPPP level 3 was released from HMP subject to licence conditions, which included a condition of residence at an Approved Probation Hostel. Other licence conditions included

The Victim Liaison Officer made contact with the victim of the index offence who was fearful of being re targeted by him. Arrangements were made to protect her and these included licence conditions prohibiting him from making contact and excluding him from a specific area. The significant issue with this case was that he was only subject to a short licence period after which there would be no statutory involvement. The resettlement plan was to move him initially out of the area into a hostel so his behaviour back in the community could be subject to monitoring particularly with regards to his alcohol intake and any

targeting behaviour towards the victim. He settled well and made contact with the local Alcoholic Support group. The panel reviewed his behaviour monthly and towards the end of the licence period arrangements were put in place for him to resettle back in his home area. The Housing Department had a prominent role in assessing and identifying suitable accommodation as it was agreed that the risk of him re offending would be significantly increased if he arrived homeless back in his home area. Also it was important that when returning to his home area his

social isolation was reduced and that he was linked into groups which could support his social needs. However to ensure that these organisations were aware of the risks and to monitor his behaviour, agreement was obtained from the Assistant Chief Constable for disclosure of concerns to the leaders of the place at which he worshipped and the group he chose to work on his alcohol issues. Also he was offered voluntary supervision from the Probation Service and the local Neighbourhood Beat Officer was given a briefing regarding the risks he posed.

Statistical Information
1. Category 1 MAPPA offenders: Registered Sex offenders i) The number of Registered Sex Offenders(RSO) on 31 March 2005. No.of Offenders 808 51 43

ia) The number of RSO 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, between 1 April 2004 and 31 March 2005 The number of a) Sexual Offences Prevention Orders (SOPO’s) applied for b) interim SOPO s granted and C) full SOPOs imposed by the court between 1st May 2004 and 31st March 2005. (a) The number of Sexual Offences Prevention Orders applied for (b) The number of Interim SOPO’s granted (c) The number of full SOPO’s imposed iv) The number of a) Notification Orders applied for b) interim Notification Orders granted and C) full notification Orders imposed by the court between 1st May 2004 and 31st March 2005. (a) The number of Notification Orders applied for (b) The number of Interim Notification Orders granted (c) The number of full Notification Orders imposed v) The number of Foreign Travel Orders a) applied for b) imposed by the court between 1st May 2004 and 31st March 2005 (a) The number of Foreign Travel Orders applied for (b) The number of Foreign Travel Orders imposed


45 2 43

1 0 1

0 0


Category 2 MAPPA offenders: Violent offenders and other sexual offenders (V&OS) vi)

No.of Offenders 172

The number of violent and other sexual offenders (as defined by S327 (3),(4) and (5) of the Criminal Justice Act 2003) living in the community, considered under MAPPA during the year 1st April 2004 and 31st March 2005


Category 3 MAPPA offenders: Other Offenders (OthO) vii) The number of ‘other offenders’ (as defined by S325 (2)(b) of the Criminal Justice Act 2003) dealt with under MAPPA during the year 1st April 2004 and 31st March 2005 as being assessed by the Responsible Authority as posing a risk of serious harm to the public. 46

4. Offenders managed through level 3 MAPPP & Level 2 RAMP viii) For each of the three categories of offenders covered by the MAPPA ("registered sex offenders", "violent and other sex offenders" and "other offenders"), identify the number of offenders that are or have been managed by the Level 3 MAPPP or Level 2 RAMP, between 1st April 2004 and 31st March 2005. Level 3 Level 2 a) registered sex offenders 24 175 b) violent and other sex offenders 19 153 c) other offenders 2 44 ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2004 and 31st March 2005 how many, whilst managed at that level: Were returned to custody for breach of licence Were returned to custody for breach of a Restraining Order or Sexual Offences Prevention Order Were charged with a serious sexual or violent offence 11 2 0 45 0 0

a) b) c)

Statistical comment
The Number Of Registered Sex Offenders(RSO) On 31 March 2005.
The total number of RSO’s resident within Devon and Cornwall has increased on 2003/2004 figure. This was anticipated The fact being that individuals convicted of relevant sexual offences remain on the ‘register’ for several years before dropping off. This fact is reflected in national statistics. It should be noted that although the total numbers of RSO’s continues to grow year on year, only a small proportion are considered to pose such a high risk or management difficulty {‘The critical few} that they need to be referred to the highest level of the MAPPA – A Multi Agency Public Protection Panel.

The Number Of Sex Offenders Having A Registration Requirement Who Were Either Cautioned Or Convicted For Breaches Of The Requirement, Between 1 April 2004 And 31 March 2005
This figure indicates a robust approach by the Devon and Cornwall Constabulary to the enforcement of the Sexual Offences Act registration requirements

The Number Of Sexual Offences Prevention Orders Applied For
During 2004/2005, Devon and Cornwall Area, mindful of the benefits of SOPO’s in managing risk posed by potentially dangerous offenders promoted greater use of these Orders by Courts sentencing offenders. An outcome of these Orders being that certain recognised risky behaviour, pertinent to the individuals concerned could through early Court sanction’s have long term be controlled.

The Number Of Notification Orders Applied For
The benefit of this risk reduction measure was quickly recognised within Devon and Cornwall Area. The Area being one of the first in the country to obtain such an Order.

It is important to note that figures alone do not, of course , tell the whole story. The anonymised case studies illustrate the practical work of MAPPA and demonstrate the preventative action taken. Prior to MAPPA, action of this kind was mainly taken by one Agency alone, with the effect that on occasions offenders behaviour which might of triggered preventative action went unnoticed. The multi agency approach of the MAPPA helps ensure that if an offender does breach the condition of a licence under which released from prison or a court Order prohibiting certain activities, then action to enforce the condition or Order and protect the public can be taken more swiftly.

Mary Anne McFarlane Chief Officer Queen’s House Little Queen Street Exeter EX4 3LJ Force Headquarters Middlemoor Exeter EX2 7HQ South West Area Office Tortworth Road Leyhill Gloucs. 01392 474100

Maria Wallis Chief Constable Jerry Petherick Regional Prisons Manager

08452 777444

01454 264053

Prison Service Devon and Cornwall Ian Mulholland Governor HMP Exeter

Address HMP Exeter New North Road Exeter EX4 4EX

Phone 01392 415650

Devon and Cornwall Probation Area Ian Clewlow Director Operations

Address Queen’s House Little Queen Street Exeter EX4 3LJ

Phone 01392 474100

Devon and Cornwall Police Richard Stowe Assistant Chief Constable Steve Matthews Detective Superintendent

Address Force Headquarters Middlemoor Exeter EX2 7HQ Force Headquarters Middlemoor Crime Department Exeter EX2 7HQ Address Devon & Cornwall Police Crime Department Cornwall Forensic Mental Health Service Devon Social Services Department Youth Offending Team

Phone 08452 777 444

08452 777 444

SMB Contacts Tom Conneeley Detective Inspector John Morgan Forensic Clinical Psychologist Chris Dimmelow Child Protection Manager John Cousins Manager Ann Morecraft Head of Devon Patient & Practitioner Services Agency Manager for Child Protection

Phone 08452 777444

01208 251300

01392 386657

01872 274567

North & East Devon Health Community

01392 207428

SMB Contacts John Edwards Operations Manager Child Protection Graham Davey Housing Needs & Enabling Manager Karen Howard Mental Health Partnership Chris Nash Health Visitor & Child Protection Adviser Maureen Grimley Manager Chairing and Reviewing Team Dick Goodere Social Work Consultant CP Team Fran Mason

Address Torbay Social Services

Phone 01803 208563

Mid Devon Housing

01884 234286

Plymouth Primary Care Trust

01752 315353

Cornwall Partnership Trust

01726 291019

Plymouth Social and Housing Services

01752 306340

Cornwall Social Services

01872 254549

Torbay supporting People Devon partnership Trust NSPCC Devon Partnership Trust

01803 208424

Gill Montgomery Alison Kearnes Laura Hubbard Fielder

01392 403433 01752 235120 01392 403433

Lay Advisers Steve Anderson

Address c/o Force Headquarters Middlemoor Exeter EX2 7HQ c/o Force Headquarters Middlemoor Exeter EX2 7HQ

Phone 01392 223271

Carol Earner

01392 223271

Devon and Cornwall Victim Support Victim Support Devon Victim Support Cornwall

Phone 01392 678675 01872 263464

© 2005 Devon & Cornwall Constabulary. Photographs used in this publication are for illustration only and do not depict actual events or cases.