DEVON AND CORNWALL AREA

Multi-Agency Public Protection Arrangements Annual Report 2005-6

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 multi-agency public protection arrangements (MAPPA) is so important. The supervision and management of sexual and violent offenders who pose the highest risk of serious harm, whether in the community or in custody, is complex and challenging; and is an aspect of public service where the public rightly expects all reasonable action to be taken. Although we have made significant progress in the last five years with the development of MAPPA across England and Wales, the review this year of a number of tragic incidents where people have been murdered or seriously injured reminded us of the importance of reviewing performance, improving practice and learning lessons. It is vital that these tasks are undertaken by the probation, police and prison services, as well as by those other agencies that contribute to the assessment and management of offenders. The publication of MAPPA Business Plans by each Area in this year’s annual reports offers a helpful and necessary programme of local development and review and must lead to enhanced practice. It will be essential that this progress is transparent and shared with local communities. In addition to this, however, it is important that no opportunity is missed to consider other measures that will further enhance public safety. That is why we are undertaking the Child Sex Offender Review, to look at how a particular group of offenders, who provoke anxiety for many, are best managed in the community. The review is consulting a wide range of practitioners and key stakeholders including the MAPPA lay advisers, and will report around the end of the year. Finally, in commending this report to you, I want to take the opportunity to thank all those involved locally in working with sexual and violent offenders, or in ensuring that these arrangements are fit for purpose. Where MAPPA is working well it is based on maintaining high professional standards and effective multiagency 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

Introduction
We are pleased to present the fifth Annual Report about the work of Devon & Cornwall’s Multi-Agency Public Protection Arrangements (MAPPA). This report offers our local communities a unique insight into how the management of dangerous offenders is carried out to ensure their safety. It reflects the combined activities of the ‘Responsible Authority’ – Police, Probation and the Prison Service, and our partners such as education, social services, health, housing and the Youth Offending Service. Public Protection remains an immensely challenging area of work and we acknowledge the enthusiasm and commitment of professionals and volunteers across a wide range of disciplines who work together in ensuring public safety. There is increasing public and media scrutiny of Public Protection issues and this report offers an opportunity for a glimpse at the otherwise un-publicised side of MAPPA. An immense amount of co-operative work is undertaken by the agencies involved, in order to reduce risk to the public. We hope that this report will enlighten as well as reassure. We commend this report to you with our continued commitment to further strengthening the public protection arrangements that safeguard the public of Devon and Cornwall.

Nigel Arnold Chief Constable Devon and Cornwall Constabulary

Mary Anne McFarlane Chief Officer Devon and Cornwall Probation Area

Alan Scott HMP Regional Manager (South West)

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 re-enacted and strengthened the MAPPA legislation, engaging the Prison Service as part of the Responsible Authority and placing a Duty to Co-operate 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:

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:

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

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.

• Level 1:
Where the risks posed by offenders can be managed primarily by one agency (usually police, probation or Prison Service) without actively or significantly involving other agencies.

• Level 2:
Local inter-agency risk management – Where there is ‘active involvement’ of more than one agency in risk management plans, either because of a higher level of risk or because of the complexity of managing the offender.

What is MAPPA?
• 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. The prison service, education, health and other professionals attend as appropriate to the individual cases under discussion

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.

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.

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

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.

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.

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.

Local developments in 2005 – 06
• MAPPA Business Plan
Following guidance received from the Responsible Authority National Steering Group a local MAPPA Business plan is being developed by the Strategic Management Board. This is covered in more detail within the SMB section of this report. police stations register their addresses, and for recording details of home visits undertaken by police. The database is a vital tool for protecting the public. All core users of the system have been trained in its use and a dedicated Systems Administrator is in post. Two further posts within the Public Protection Unit have been filled 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. to the Head Teachers of schools in the locality of the hostels, to ensure that they are aware of the aims and objectives of the hostels, should they receive any concerns from parents.

Andy Cookson, Hostels manager said, “An
approved premise (hostel) is not just somewhere to live. It is a structured and supportive environment where residents have the opportunity to rebuild their lives whilst under close supervision.”

• Violent and Sex Offender Register (ViSOR)
The computer application ViSOR (Violent and Sex Offender Register), developed by PITO (Police Information Technology Organisation) to assist in the monitoring and management of sexual and violent offenders went fully operational in Devon & Cornwall Constabulary on 3rd October 2005. Once fully implemented ViSOR will allow all information regarding dangerous and sexual offenders to be shared nationally between Police, Probation and the Prison Service. This information will be available 24 hours a day, 365 days a year. It is anticipated that ViSOR will begin to be rolled out to Probation and the Prison Service this year. ViSOR is now fully populated with details of all the Registered Sex Offenders in Devon & Cornwall together with all MAPPA level 3 offenders. All records are maintained to a corporate standard and the database has already proven itself as an effective means to transfer information on these individuals between police forces. ViSOR is now being used as a recording medium through which Registered Sex Offenders, via personal attendance at prescribed

• Approved Premises
There are two Home Office Approved Probation Hostels in the Devon and Cornwall Probation Area, Lawson House in Plymouth and Meneghy House in Camborne. Hostels help Probation and other criminal. justice agencies to protect the public and reduce re-offending. The Hostels are staffed at all times and Hostel residents must abide by a strict set of rules. Failure to comply results in enforcement action being taken. Information about the Hostels has been made available in leaflet form to people who live in the vicinity of the Hostels and copies have been sent to local Libraries. In addition community stakeholder groups exist around the Hostels, and meetings involving representatives from the local communities are held on a regular basis. Following these meetings Press briefings are issued, to further inform the general public about the work of the Hostels. Information about the Hostels has also been communicated directly

• 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.

Local developments in 2005 – 06
During 2005 HM Prison Service, South West Area, produced a ‘Statement of Commitment’ to the Devon and Cornwall MAPPA, this document sets out how the Prison Service will engage with its partners in the practical delivery and development of MAPPA. • 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. To respond to ‘the areas for consideration’ the Strategic Management Board commissioned a ‘project improvement team,’ chaired by an Assistant Chief Probation Officer, to formulate action plans in order to seek resolution to some of the issues raised by the Inspectorate team. The majority of the initial ‘areas for consideration’ raised by the Joint Inspectorate team have now been addressed, with progress reports being submitted to the Strategic Management Board. The full report of the HMI’s was subsequently made available to our area in December 2005. As a result, the full set of recommendations detailed within the full report have been identified, and in response the ‘project improvement team’ has been strengthened to include multi agency partners under the banner of ‘MAPPA Improvement and Development Team’ (MIDT). The MIDT is now chaired by a Detective Superintendent, who will ensure that the strengths and learning points coming out of the review will continue to be used to help us develop, not only our own practices, but potentially those within other areas as well.

• MAPPA Improvement and Development Team
In the 2004/2005 Annual report we advised you that in 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. Initial feedback from the review team was 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.

• Lay Advisers
In January 2005 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 inducted two members of the public to act as ‘Lay Advisers’ to the MAPPA Strategic Management Board. This was a requirement of Section 326(3) of the Criminal Justice Act 2003. The Lay Advisers play an important part in the review and monitoring of the MAPPA, and as such 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

Local developments in 2005 – 06
different perspective from that of the professional interests in the MAPPA. The Lay Advisers, are not paid, they attend at least four meetings of the Strategic Management Board a year. They are not expected to become involved in the monitoring of dangerous offenders. Instead their role is to observe and question the arrangements for managing such people in the community - to be “critical friends”. training was to: • Provide an opportunity for Lay Advisers to meet colleagues from other areas and reflect on their role and experience. • Receive additional input on operational and strategic issues provided by the organisers and colleagues from the Responsible Authority. • Consider how SMBs can best communicate with local communities about MAPPA. For both of us, it was an extremely rewarding and informative training weekend, covering a variety of public protection issues, including national developments, the accommodation of sexual and violent offenders, victim support, domestic abuse, defensibility and serious further offending. We particularly appreciated discussing the views and aspirations of fellow Lay Advisers but it was disappointing to note that the range and quality of regional training was very inconsistent. We raised this issue in the 2005 report and a national ‘best practice’ model is still awaited. We did also observe however, that most SMBs acknowledged the merits of lay involvement and were very supportive. continued to evolve and included the following serials: • Visit to HMP Channings Wood. • Regular attendance at the SMB. • MAPPA Development Day sponsored by the NPS. • 2005 Annual Report Press Release • MAPPP Level 3 Meetings. • MAPPA Level 3 File Audit. In our opinion, being allowed to observe and/or participate at Level 3 plays a crucial part in reassuring us that all agencies held public concerns at the top of the agenda. Most importantly, participants were willing to make defensible decisions and be accountable for their actions. Here are some observations that we recorded during the MAPPP meetings and File Audit: • ‘A genuine desire for public protection was apparent in all cases yet the rights of the individual offenders were also observed’. • ‘My overall impression was that the Level 3 Panel meeting is clearly an essential part of the MAPPA process and it requires a full contribution from all agencies involved. Disagreements were handled in a professional manner allowing all parties to make equal contribution and have ‘their say’.Clear conclusions were reached and appropriate follow on actions made’. • ‘My recent attendance at the Level 3 meeting has crystallised the MAPPA process for me and in many ways has been the

• A message from the Devon and Cornwall MAPPA Lay Advisers Introduction
This is our second contribution to the Annual MAPPA Report since being appointed in January 2005. We concluded last year’s report by stating that….“The true worth of our role …. 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”. In this short article we will examine the accuracy of that statement, comment on the extent to which our initial concerns have been allayed and summarise what national and local training we have been involved in. We will also consider how Lay Adviser involvement in the MAPPA process can be further developed.

National training
Earlier this year we were invited to our second National Lay Adviser Training Module and attended separate weekends in Bristol and Croydon. The purpose of the

Local training and involvement
We are pleased to report that since June 2005, the Lay Advisers from Devon and Cornwall have been full and active members of the SMB. Our training and lay involvement

Local developments in 2005 – 06
climax of my involvement over the last year’. • ‘The audit helped to develop a best practice model by focussing on suggested assessment tools. This is likely to be a long process’. • ‘We had initial concerns about the desired outcomes, a view shared with the senior managers. It was therefore good to see that the outcomes were actually developed by the participants themselves’. • We were pleased to note that the conduct of the audit was clearly an honest process and all agencies acknowledged that there are failings in the systems and they are keen to make improvements. • ‘During a review of the Level 3 cases we looked at, except in one specific case, we were content that the crucial/critical assessment information was in place and was being shared by all appropriate agencies’. In addition to the above activities, a Lay Adviser attended the Annual South West MAPPA Seminar, hosted by the Avon and Somerset Police Headquarters in Portishead. This was an important meeting, which included an overview of current and future MAPPA policy, strategic planning, learning from inspections and how Circles of Support and Accountability can support the management of highrisk offenders in the community. Most recently, the SMB has commissioned a MAPPA Improvement Development team (MIDT) to further develop multi agency practice in our area. A lay adviser sits on the Team. we quantify the broader value of the lay adviser? There is certainly further work to be done in achieving full agency collaboration during the SMB meetings. We feel that these issues merit further development. We also stated in the introduction that, “We consider continuation training to be vital even when our posts have been fully established”. Following a relatively slow start in early 2005, our training and learning needs have been largely acknowledged and our skills are being enhanced. It is good to note also, that our involvement is increasing in line with the momentum that is gathering throughout the overall public protection field. In our opinion there are still procedural improvements to be made, but because MAPPA is such a dynamic process and deals with inherent risk on a daily basis, perfection is not achievable and some errors will be inevitable. In general however, the lay advisers remain fully committed to support the hard work and dedication to duty that is so apparent among all members of the Responsible Authority and the Duty to Cooperate agencies.

Future learning needs and expectations
Since last year’s report it is clear that locally considerable progress has been made in integrating lay membership into the MAPPA process. Similarly, the overall concept of public protection is being continually monitored and developed nationally. We stated in the introduction that, “The true worth of our (Lay Advisers) role is unlikely to be revealed for at least another year”. As we go to print today, that prediction has been accurate. From a personal perspective therefore, we can say our individual roles do have value and are, in the main, worthwhile and fulfilling. Questions we have not addressed in detail however is how can SMBs best communicate MAPPA issues with local communities? In addition, how can

National developments in 2005 - 06
Please see Appendix A at the end of this document for MAPPA – the First Five Years ‘A National Overview of the Multi-Agency Public Protection Arrangements 2001 - 2006’

The Strategic Management Board (SMB)
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 key 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 arrangements, such as Local safeguarding Childrens Boards, 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. • 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.

MAPPA SMB Business Plan
Recent research conducted on behalf of the Home Office by De Montfort University into MAPPA, and a joint thematic inspection by the Probation and Police Inspectorates, have highlighted Nationally the variable development of strategic management boards and in some areas the inconsistent delivery of their key activities. ‘While there are a number of areas where the SMB is performing well, and where public protection arrangements are modified to ensure best practice, the level of performance generally across England and Wales has the potential for strengthening and improvement’.

In the light of these findings and recommendations the Responsible Authority National Steering Group (RANSG) has determined that all Areas need to develop MAPPA Business Plans, initially for 2006/7, and set within a three year planning process. In order that Area plans are consistent and address the key issues that will strengthen and help standardise public protection practice. The RANSG has developed a national MAPPA business plan for 2005/8. The Devon and Cornwall Area MAPPA Business Plan is currently being developed and will broadly encompass the following four strategic aims, some of which, it should be noted, are already well established within Devon and Cornwall:

1. MAPPA Development Strategy
a) Achieve dedicated MAPPA Coordination & Administration capacity across all MAPPA SMBs during 2006/07

The Strategic Management Board (SMB)
2. Monitoring and Development Strategy
a) MAPPA SMBs implement Business Plan for 2006/07 which will incorporate monitoring arrangements to support: • publication of Annual Report • analysis of use of MAPPA risk management thresholds at Level 2 & 3 • analysis of MAPPA offenders who commit serious further offences (PC 54/2003) • analysis of attendance and level of cooperation of agencies contributing to Level 2 & 3 meetings • analysis of diversity profile of offenders assessed at Level 2 and Level 3.

4. Training Strategy
a) MAPPA SMBs include a training strategy in business plans, to address: • Induction to MAPPA for new practitioners • Training for MAPPA SMB members • Training for MAPPA Coordinators and Administrators

All agencies will now contribute to the following five key outcomes for children: • be healthy • stay safe • enjoy and achieve • make a positive contribution • achieve economic well being. The key focus of the LSCB will be to safeguard children, whilst also contributing to the other key outcomes. Safeguarding and promoting the welfare of children is defined as: • protecting children from maltreatment • preventing impairment of children’s health or development • ensuring that children are growing up in circumstances consistent with the provision of safe and effective care • undertaking that role so as to enable those children to have optimum life chances and enter adulthood successfully. Members of the LSCB sit on the MAPPA Strategic Management Board, ensuring a synergy of purpose.

Membership of the SMB
The current chair of the SMB is an Assistant Chief Constable from Devon and Cornwall Constabulary. All agencies on the SMB 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.

3. Communication & Strategic Partnership Strategy
a) The Responsible Authority for MAPPA to publish annual report, in consultation with Lay Advisers and SMB, and supported by Ministers and the collation of national MAPPA data from PPLU each year. b) Annual reports are improved and developed to improve public understanding and engagement. c) MAPPA SMB to develop an area communication strategy during 2006/7, taking account of the national strategy devised by the RANSG and shared with areas by April 2006.

Local Safeguarding Children Board
The Children Act 2004 required each local authority to establish a Local Safeguarding Children Board (LSCB) to replace the Area Child Protection Committee (ACPC) in April 2006. The LSCB is the key statutory mechanism for agreeing how the relevant organisations will cooperate to safeguard and promote the welfare of local children, and for ensuring the effectiveness of what they do, both as individual agencies and in partnership.

Local Criminal Justice Board
The Devon and Cornwall LCJB is among the top performing Boards in the country and is committed to the continual improvement of the delivery of justice within the peninsular. The Devon and Cornwall LCJB is actively involved in the multi-agency co-ordination of

The Strategic Management Board (SMB)
national and local initiatives, aiming to reduce fear of crime within the local community and improve public confidence in the Criminal Justice System. Currently Chaired by Chief Probation Officer Mary Anne McFarlane and previously by Chief Constable Maria Wallis (retd), the Board includes representatives from the Crown Prosecution Service, Magistrates’ and Crown Courts, Youth Offending Teams, the police, probation and prison services and is accountable for: • the delivery of criminal justice system objectives • improvements in the delivery of justice • the service provided to victims and witnesses • securing public confidence In addition to these overarching national objectives, at a local level, the Devon & Cornwall LCJB strategy for 2005-08 will focus more specifically on: • increasing public confidence and reassurance – reducing incidents of hate crime, improving equality and increasing community engagement and enhanced file preparation and charging • narrowing the justice gap – targeting prolific offenders, effective trail management • improving services to victims and witness care • reducing incidents of domestic violence • reducing drug and alcohol related crime and disorder • supporting young people and tackling persistent young offenders • improving inter-agency communication To ensure consistency across all partnership bodies, the Local Criminal Justice Board is represented on the MAPPA Strategic Management Board.

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 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. have a duty to co-operate in this work. There are occasions when a small number of young people need to be subject to the scrutiny and intense supervision, because of the nature of the offences they have committed. The necessary communication linkages between the MAPPA Board and Children Safeguarding Boards are in place to ensure that young offenders are also appropriately protected. 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. The Youth Justice Board has rolled out training on risk issues and all Youth Offending Teams are going to train their staff in assessment and management of risk. The YOTs in Devon and Cornwall have arranged that the MAPPA Manager undertakes a presentation about the MAPPA arrangements at the training events.

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 (YOTs)
The Youth Offending Team Manager for Cornwall and the Isles of Scilly represents the four Youth Offending Teams in Devon and Cornwall at the Strategic Management Board. Although the MAPPA deal primarily with adults, some young offenders (those under 18 years) meet the criteria for inclusion in the process. Criminal Justice Services have a duty to ensure that all offenders are assessed for the risk they pose to others, the Youth Offending Teams

Housing
The Housing Act 1996 and the Homelessness Act 2002 place a duty on the Housing Departments of Local Authorities to provide accommodation for people who are considered to be “ in priority need” in accordance with homelessness legislation, provided that they have not made themselves homeless intentionally.

Social Services
Social Services Departments in Devon and Cornwall have a statutory duty to provide for the protection

A look at MAPPA partners
NSPCC
The NSPCC is very interested in being represented on the MAPPA Strategic management Board in order to progress aims we share with other agencies. Our interest is to prevent further harm to children and young people and to protect them and their families from further crime and abuse. We are new to this forum and are also learning from partner agencies. We have a contribution to bring as the major UK Charity concerned with the prevention of cruelty to children, and are pleased to belong to the board. Our projects in Devon and Cornwall include risk assessments and direct work with adults who cause sexual harm to children, and assessments in cases of young people who cause sexual harm to others. A proportion of these cases involve MAPPA procedures in addition to child protection concerns. For the last 12 years the NSPCC has delivered a Young Witness preparation and support service to children and young people across Devon and Cornwall who are required to give evidence in criminal proceedings relating to child abuse. The majority of young people referred to the project are victims of sexual assault. The NSPCC is represented on the victims and witnesses group of the Devon and Cornwall Local Criminal Justice Board to advocate on behalf of young people in the criminal justice system.

Cases where a duty applies include the re-housing of those offenders convicted of offences against children, following their release from prison or other institution. Cases such as this always provide a challenge for Housing Officers. Re-housing decisions are only made following the involvement of the statutory agencies that form the MAPPA and a comprehensive “risk assessment” process being carried out. When considering re-housing the MAPPA have to have regard, not only to the needs of the applicant but also the needs of the community. Such an assessment has to consider matters such as – • Proximity of the proposed accommodation to public open spaces e.g. parks and public conveniences, public facilities in the neighbourhood e.g. schools, village halls and youth clubs and the residents of the neighbouring properties.

When all these factors have been assessed appropriate accommodation is allocated. During this process Housing Officers will consider all housing options which are available including accommodation owned and managed by Housing Associations also known as Registered Social Landlords and private sector landlords. During the whole of this process careful consideration always has to be given to the applicant’s confidentiality.

Why is this process so important?
Graham Davey Housing Needs and Enabling Manager. ‘Research has shown that two thirds of individuals are likely to re offend in the 12 months following release if they are not provided with appropriate accommodation. However this figure falls to one quarter if appropriate accommodation is provided’.

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 2005/2006 95% of victims were contacted within 8 weeks of the offender’s sentence, in accordance with National Standards and the Victims Charter. The Domestic Violence, Crime and Victims (DVCV) Act 2004 has extended the duty to contact victims of mentally disordered offenders, in certain circumstances. This includes victims of offenders transferred from prison to hospital for psychiatric treatment, as well as offenders subject to hospital orders with restriction orders. Victims will have an opportunity to make representations to the Home Secretary or Mental Health Tribunal about the conditions of a patients discharge. 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 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 revictimisation 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. anxiety. She is the ex-wife of the prisoner, mother of his children and still lives in great fear of her attacker. An exclusion from Devon and Cornwall was requested as an additional licence condition, and a condition not to contact the victim or any of their children. Both these conditions were included in his licence. At the request of the MAPPP, the prisoner was accepted as eligible for an Enhanced Supervision place at a Hostel well away from the South West. He was also “tagged”, and supervised at all times upon release. Devon and Cornwall Police put in detailed contingency plans to protect the victim and her children, and advised her on security. The Housing Association improved security of her home, and an alarm system was installed. Working together with other Probation Areas, the Hostel management, the Police, the Housing Association, Victim Support, Social Services and Mental Health workers, the MAPPP were thus able to ensure that the release of this prisoner was managed in a way that took full account of the fears and concerns of the victim.

The victim perspective within the Mappa process. Case study
A serial rapist, approaching release, was registered at Level 3. His release was planned by the Supervising Officer and the MAPPP over many months. The Probation VLO team had been in touch with one of the victims several times in the course of the prison sentence, and was well aware of her extreme

Case study
Mr. R is well known in his local community. He is understood to have a ‘personality disorder’ which results in him becoming aggressive and violent over incidents during which he perceives he has been slighted in some way. For many years local shops have banned him from entering the premises and people have lived in some fear of

The focus on victims
him, although they were supportive, particularly of his family who were doing their best to provide him with a stable home. Mr. R’s aggressive and violent behaviour resulted in many arrests and some community and short custodial sentences but he always found his way back to his mother’s home. His behaviour was seen to be escalating until he finally ‘snapped’ and attacked a neighbour with a knife. The attack took place in the neighbour’s home and it was the actions of a relative of the victim, who grabbed the knife, causing injury to himself, which prevented the victim from serious injury, or even death. Certainly both men felt that the offender undoubtedly meant to kill the victim. Through the MAPPP process the VLO was able to feed back the concerns of the victims and the local community. This enabled the panel to have a greater understanding of the wider implications of the offender’s behaviour and resulted in Licence conditions which prevented his contact with the victims and his family. An exclusion zone was also agreed. The victim and his family were particularly nervous when release was being considered but they were grateful for the information they received via the VLO and felt somewhat reassured by the additional Licence conditions. The offender was released to a Probation Hostel but this placement soon broke down and he was recalled to prison. This information was relayed to the victim, for which they were extremely appreciative. Indeed, they wrote to the VLO to express their thanks and to praise the Probation Service’s commitment to working with victims in this way. that the charge was dropped from attempted murder to grievous bodily harm. He did not want the offenders to return to the city he lives in and keenly expressed that he would react violently towards them should he see them again. He suggested that local feeling would also be strongly negative. The case was brought to the MAPPA level 2 panel at Parole stage when the victim issues were presented. The offenders were granted parole, but due to the possible risk to their safety from the victim’s father and sensitivity to the emotional impact on the family should the offenders return to the area, an exclusion area was placed around the city where the victim and the offenders’ parents live. Whilst the exclusion area is difficult for the offenders’ to maintain family links, the cases continue to be reviewed through MAPPA giving the opportunity to change the exclusion areas should risk reduce. We often see the MAPPA process as a means to protect the victim, but this is one example of how the MAPPA aims to protect all members of the public including, in some cases, offenders.

Case study
A young man was attacked by some youths. Two of the youths were sentenced to 5 years for GBH. The injuries were so severe that he suffered long term disability. He spent the first year of his recovery in care which is where he was when the Victim Liaison Officer first met him and his father. Three years on and the victim has returned home. He continues to have problems with communication and mobility. He will never regain his former health and abilities. The impact of this offence on his father has been life changing. He feels that the sentence was far too lenient and finds it appalling

MAPPA in action locally
Statistical Information
The statistical information regarding the work of the MAPPA between 1st April 2005 and 31st March 2006 and a commentary on aspects of that data can be found towards the back of this report. what the risk is, to who or what and under what circumstances. The prison will hold a meeting to discuss the prisoner and the risk posed, if necessary the prison will transfer or receive such prisoners to facilitate a discharge to the home area. For example, a prisoner subject to MAPP arrangements who resides in the local area but is located in a prison outside the area may be transferred to HMP Exeter for local discharge. Once identified such persons are prohibited from having contact with children. They are required to submit an application for contact with children from their family. These applications are considered at a monthly meeting which we attend and where the views of children’s services, probation and police are all discussed to set the level of contact. It may well be that it is appropriate that no such contact should take place. The protection of children is paramount in all cases. We also attend regular Multi Agency Public Protection meetings held in the prison to consider the risk that prisoners, who are due for release, pose to the public. At these meetings information from all parts of the prison is contributed as well as input from the Probation Officer who will be supervising that person in the community, and on occasions Police from the area into which he is to be released. The minutes of these meetings can then be used to inform any MAPPP meetings that are subsequently held in the community. On a daily basis we receive various items of information and intelligence about prisoners. This is researched and analysed where necessary. Any perceived increase or decrease in risk is passed to the authority who will manage that person on release. The development of a national database called ViSOR has enabled such information to be input directly onto an offender’s record thus ensuring that information, is not only available more quickly, but is also available to any authorised person who has an interest in that offender.

The work of HM Prison Service Exeter
In conjunction with our partnership agencies the core business of the Public Protection Unit at HMP Exeter is the timely identification, assessment and management of risk. Since its creation some years ago the Public Protection Unit has strengthened its links with the statutory and non-statutory agencies. The ethos of the Unit is protecting the public from those prisoners who pose a risk. The Guidance provided by National and local protocols ensures a consistent accountable and joinedup approach between the involved agencies. Working together, communicating and sharing information are the key ingredients when identifying, assessing and managing risk. The monthly Public Protection meeting is a forum held at the prison. At this meeting prison staff, probation, social services and police meet to share information and make decisions on prisoners who present a risk to the public. The resources of the Public Protection Unit follow those prisoners who are subject to MAPP arrangements. In such cases a full risk assessment will be carried out – that assessment will include

A working day for the Risk Assessment Officer
In a nutshell, my colleague and I provide the link between the Police, Prison staff and seconded Probation officers who work in the three prisons in Devon. In order to achieve that truly close working relationship, we spend at least 3 days a week in the prisons, where we are now co locating with the Probation staff. Each day brings its own problems and successes as different prisoners move in and out of the prison. We make a weekly check on all reception prisoners in an effort to identify those public protection cases who present a high or very high risk of re offending, providing any current relevant intelligence to the prison and drawing attention to those who have not already been identified. Those who have been convicted of offences against children or who, because of other factors, present a risk to children, are flagged on the prison computer system. On occasions it may well be that it is information held by the police that identify these persons as a risk.

MAPPA in action locally
This true partnership working with the two other members of the Responsible Authority enables important information about risky people to be shared on a daily basis so that we can combine our resources in managing those persons identified as posing the highest risk to the public.

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 MAPPA [Multi-Agency Public Protection Arrangement] meetings, but these are confined, where possible to one day a week for the level 2 cases and as and when required for the higher risk level 3 cases. 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 and attendance at court. 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 examples of cases, which have been managed using the MAPPA processes.

Case Example 1
A MAPPP in Devon and Cornwall was requested to consider a referral from a MAPPP in another area on a level 3 offender who posed a risk to public safety by fire setting,

MAPPA in action locally
a potential risk of sexual harm to children and a risk of self harm. The offender with an index offence for arson, received a Community Rehabilitation Order (CRO) that included requirements to reside where directed and comply with psychiatric treatment. He failed to comply with his Community Supervision requirements, both in relation to Probation and Mental health settings. This failure accompanied a deterioration in behaviour, in that there was evidence of self harm, and as a result an increased threat to public safety was identified. an Approved Premises for a short term period. This was in order to gauge his response to living in the community whilst in a structured environment with support, then if all went well he would move back to his home area. As part of the regional MAPPA, the Devon and Cornwall MAPPA Panel agreed that it would not be defensible to refuse the referral and have the offender being without suitable accommodation on release. Short term referral was accepted. The two MAPPP Panels agreed that ownership of the case would remain with the referring area until the offender actually arrived at the approved premises within Devon and Cornwall, at this time ownership would transfer. The Panels agreed as this was a shortterm placement, and that during future MAPPP meetings both panels would participate. If the offender were to breach licence conditions whilst in this area, our MAPPP would deal with the recall, the case would then revert back to the referring Area for further re-release plans. Additional Licence conditions were also put in place to assist in the control and monitoring of the offender whist in the Devon and Cornwall area. This demonstrates the close Multi agency working arrangements that Devon and Cornwall MAPPA has with other areas. completing a 8 year prison sentence, was managed by the MAPPA level 3 panel. He was a case registered with the National Probation Public Protection Unit as a critical public protection case. And therefore his case was subject to ministerial briefings. He was supervised by Devon and Cornwall Probation staff on Licence. The licence included conditions to reside at Devon and Cornwall Probation Approved Premises, initially he was housed away from his home area. Further conditions included not residing, working or have any unsupervised contact with children. The victims of his index offence were seen by a Victim Liaison Officer, who agreed with them that the offenders Licence includes a no contact condition and an exclusion area around where they lived. The staff of the Approved Premises required him to produce a movement diary, which was closely monitored in conjunction with the local police in relation to the validity of the account he was giving. He had significant health problems preventing him from seeking any work. He was required to undertake specialist sex offending work, which particularly had regard to his learning disabilities and offending profile. At the end of his sentence he requested a move back to his home area. He was now no longer subject to statutory supervision but agreed to move to approved premises in this area. Even though he was a voluntary resident he was required to comply with hostel rules. The panel considered that if he were to return to live in the community without any

On release from Prison, due to victim issues and a lack of appropriate accommodation in his home area, he was in danger of being released from prison without suitable accommodation being in place. The MAPPP in Devon and Cornwall were requested to consider accommodating the offender at

Case Example 2
A predatory child sex offender, with a 35 year offence history,

MAPPA in action locally
Housing Department to identify accommodation away from any direct access to children. Addresses were jointly checked by the Housing Department and Police. Suitable accommodation was identified and he moved in. Close monitoring remains in place with regular visits from the police both via the Public Protection Officer and Community policing arrangements. In addition to this he has contact with a volunteer and housing staff. All information regarding his activities is checked against his risk. The evidence is that he continues to cooperate fully with the arrangements in place and is developing appropriate age related activities. strategy meeting was attended by police officers from this area and information was shared. This was subsequently followed up by child protection case conferences. Following conviction, the offender was further risk assessed, and was monitored throughout sentence by a MAPPA level 2 panel. In addition by utilising established links with the Social Services child protection team, it was confirmed that the offender would not have any further contact with the children. Monitoring by the MAPPA level 2 panel continued after the offender’s release from prison. As a result it was identified that he became involved with another woman with young children, from another area. The MAPPA panel, utilising the Liaison Officer, was again able to swiftly notify the relevant Local Authority of the situation, and a further strategy meeting was held. The joint working demonstrated in this case helped to ensure that the relevant local authority child protection officers were well aware of the risks posed and that they could work closely with the MAPPA level 2 panel, to ensure that arrangements were in place with regard to the childrens’ safety.

social support his risk of re-offending would significantly increase. Work was undertaken by the police and probation to develop a network of social support that were aware of the risk he posed and could take the necessary preventative measures should his behaviour start to deteriorate. This involved meeting with Church leaders from his faith group and determining arrangements, which enabled him to take part in church activities safely. Also a volunteer was identified to act as a mentor and support him with resettlement issues. Alongside this, work was undertaken with the local

Case Example 3
An offender with a sexual offending background, at the time of his arrest was found to have established a relationship with a vulnerable woman who had young children, and had been living with her and her children in another area. The Local Authority Liaison Officer, attached to the Devon and Cornwall Public Protection Unit, with responsibility for MAPPA, was able to immediately notify the Local Authority in which the vulnerable woman resided. This was in order to initiate a child protection strategy meeting. This

Statistical Information
1. Category 1 MAPPA offenders: Registered Sex offenders i) The number of Registered Sex Offenders(RSO) on 31 March 2006. ai) 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 2005 and 31 March 2006 iii) The number of a) Sexual Offences Prevention Orders (SOPO’s) applied for b) interim SOPOs granted and C) full SOPOs imposed by the courts between 1st April 2005 and 31st March 2006. (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 April 2005 and 31st March 2006. (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 courts between 1st April 2005 and 31st March 2006 (a) The number of Foreign Travel Orders applied for (b) The number of Foreign Travel Orders imposed 0 0 No.of Offenders 173 0 0 0 73 1 72 No.of Offenders 879 55 52

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 S327 (3),(4) and (5) of the Criminal Justice Act 2003) living in the community, considered under MAPPA during the year 1st April 2005 and 31st March 2006

3. 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 2005 and 31st March 2006 as being assessed by the Responsible Authority as posing a risk of serious harm to the public.

No.of Offenders 83

Statistical Information
4. viii) Offenders managed through level 3 MAPPP & Level 2 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, between 1st April 2005 and 31st March 2006. a) registered sex offenders b) violent and other sex offenders c) other offenders ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2005 and 31st March 2006 how many, whilst managed at that level: a) Were returned to custody for breach of licence b) Were returned to custody for breach of a Restraining Order or Sexual Offences Prevention Order c) Were charged with a serious sexual or violent offence 15 8 3 169 165 80 Level 3 Level 2

7 1 0

41 2 0

Statistical comment
The Number Of Registered Sex Offenders (RSO) On 31 March 2006.
The Devon and Cornwall Area, from a policing perspective, is divided into four Basic Command Units. (BCU’s) The number of Registered Sex Offenders resident within each BCU is as follows: Cornwall and Isles of Scilly BCU: Plymouth BCU : North and East Devon: South and West Devon: HQ Public Protection Unit: Total: 306 182 196 194 1 879

The total number of RSO’s resident within Devon and Cornwall has increased on 2004/2005 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 2005 And 31 March 2006
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 2005/2006, 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 be controlled in the long term.

The Number Of Notification Orders Applied For
The benefit of this risk reduction measure is recognised within the Devon and Cornwall Area. Although no such orders have been applied for in this reporting period, last year this Area was one of the first in the country to obtain such an Order.

Statistical comment
The Number of Category 3 MAPPA Offenders: Other Offenders
The total number of this category of offender, dealt with under MAPPA during 1st April 2005 and 31st March 2006, has increased on last year. This category comprises of ‘other offenders’, not in either category 1 or 2, but who are considered by the Responsible Authority to pose a risk of serious harm to the public. The identification of Category 3 Offenders is challenging, in that it is determined by the judgement of the Responsible Authority rather than automatically by the sentence or other disposal imposed by the court. The increase in numbers, can in part, be explained by the greater awareness of MAPPA processes, within the duty to Co-operate agencies such as Youth Offending Teams, Health, and Children and Young Persons Directorates.

General Comment
It is important to note that figures alone do not, of course, tell the whole story. The anonymised case studies within this report illustrate the practical work of MAPPA and demonstrate the type of 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.

Contacts
Address 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. Phone 01392 474100

Nigel Arnold Chief Constable

08452 777444

Alan Scott Regional Prisons Manager

01454 264053

Prison Service Devon and Cornwall
Mark Flinton Governor HMP Exeter HMP Exeter New North Road Exeter EX4 4EX 01392 415650

Devon and Cornwall Probation Area
Ian Clewlow Director Operations Queen’s House Little Queen Street Exeter EX4 3LJ 01392 474100

Devon and Cornwall Police
Richard Stowe Assistant Chief Constable Force Headquarters Middlemoor Exeter EX2 7HQ Force Headquarters Middlemoor Crime Department Exeter EX2 7HQ 08452 777 444

Steve Matthews Detective Superintendent

08452 777 444

Contacts
SMB Contacts
Russell Mogridge Detective Inspector John Morgan Forensic Clinical Psychologist Chris Dimmelow Safeguarding Children Manager John Cousins Manager Ann Morecraft Head of Devon Patient & Practitioner Services Agency Manager for Child Protection 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 Services CP Team Fran Mason Gill Montgomery Alison Kearnes Laura Hubbard Fielder Address Devon & Cornwall Police Crime Department Cornwall Forensic Mental Health Service Devon Social Services Department Youth Offending Team North & East Devon Health Community Phone 08452 777444 01208 251300 01392 386657 01872 274567 01392 207428

Torbay Social Services

01803 208563

Mid Devon Housing Plymouth Primary Care Trust Cornwall Partnership Trust

01884 234286 01752 314004 01726 291019

Plymouth Social and Housing Services Cornwall Social

01752 306340

01872 254549

Torbay supporting People Devon partnership Trust NSPCC Devon Partnership Trust

01803 208424 01392 403433 01752 235120 01392 403433

Contacts
Lay Advisers
Steve Anderson Address c/o Force Headquarters Middlemoor Exeter EX2 7HQ Phone 01392 223271

Carol Earner

c/o Force Headquarters Middlemoor Exeter EX2 7HQ

01392 223271

Devon & Cornwall Victim Support
Victim Support Devon 01392 678675

Victim Support Cornwall

01872 263464

© 2006 Devon & Cornwall Constabulary. Photographs used in this publication are for illustration only and do not depict actual events or cases.

Appendix A: MAPPA – the First Five Years
A National Overview of the Multi-Agency Public Protection Arrangements 2001 - 2006 Introduction
It is now just over 5 years since the implementation of the Criminal Justice and Courts’ Services Act 2000 that led to the formation of the Multi-Agency Public Protection Arrangements, commonly known as MAPPA. As the national strategic body overseeing the implementation and development of these arrangements it is important for us to review the progress made, to identify the challenges ahead and set out the national plans for improvement. It is also an opportunity for the first time to provide a national commentary on the MAPPA annual statistics and to explain what they are telling us about the growth and complexity of these arrangements. Much has been achieved in terms of enhancing public safety in the last 5 years and the arrangements are rightly described as world leading. Yet we are acutely conscious that a number of serious case reviews and other reports published this year indicate there is still much to do to ensure that the arrangements are fit for purpose and apply consistently across England and Wales. Unless those operating these arrangements ensure that all reasonable action is taken to reduce the harm caused by sexual and violent offenders they will have failed. While we recognise that it is never possible to eliminate risk entirely the public are entitled to expect the authorities to do their job properly. Making our communities safer and reducing re-offending is our highest priority and one of the greatest challenges facing the agencies and staff involved. Over the last year all agencies responsible for establishing, maintaining or contributing to these public protection arrangements have been extremely busy: the probation service, the prison service, the police service who form the Responsible Authority in each area, plus the range of agencies who have a duty to co-operate in these arrangements and include health, housing, education, social services, youth offending teams, Jobcentre Plus, and electronic monitoring services. In addition to the agencies, each area has this year benefited from the input of lay advisers. These are people recruited locally but appointed by the Secretary of State to offer key support to the strategic management of the MAPPA process. Their role is essentially to ask often fundamental questions of senior practitioners and bring a community perspective to a process that could otherwise lose sight of its main function: to protect members of the public from serious harm. Together, all of those inputting to MAPPA have ensured that more high risk sexual and violent offenders have been identified and proactively managed this year than ever before.

Appendix A: MAPPA – the First Five Years
The National MAPPA Statistics
As the scale and complexity of MAPPA has increased so the analysis of the annual report statistics has become more important in understanding local and national developments in these arrangements. The national analysis offered below, based upon reports from the areas, highlights a number of important trends, particularly in respect of the volume of referrals for multi-agency management at Level 2 and Level 3 (MAPPP), and the outcomes of that management. The individual area MAPPA annual reports are published elsewhere on this web-page and should be consulted for detailed local commentary. Chart 1 Total number of MAPPA offenders in the community 2005/06

Category 3 All other offenders 3363 (7%)

Category 2 Violent & Non Registered Sex Offenders 14317(30%)

Category 1 Registered Sex Offenders 29973 (63%)

MAPPA Offenders by category 2005/06
than in previous years at just over 3%; secondly, fewer offenders than expected have been referred into MAPPA under Category 3. (These are those offenders who are neither registered sex offenders nor currently supervised by the probation service/ youth offending team but do have a history of physical or sexual violence and are considered by the Responsible Authority to pose a current risk of serious harm to the public.) The reasons for these variations from expectation are unclear but the RSO variation may in part be due to a number of areas last year (2004/5) incorporating offenders who were still in prison and to refinements areas have continued to make to referral procedures and the management of risk thresholds. Registered Sex Offenders continue to form by far the largest category – see Chart 1.

MAPPA Offenders
The number of offenders in the community that come within the remit of MAPPA increased this year, as anticipated, although the rate of that increase has slowed from last year (13% to 7%) - see Table 1. A number of factors may have contributed to this slow down. Firstly, the increase of registered sex offenders (RSOs) is much less

Table 1 Total number of MAPPA Offenders in the Community by Category (% Change) Category 1. Registered Sex Offenders (RSO) 2. Violent Offenders and other sex offenders 3. Other offenders Totals 2002/03 21513 29594 1802 52909 2003/04 24572 14.22% 12754* -56.9% 2166 20.2% 39492 -25.36% 2004/05 28994 18% 12662 -0.72% 2936 35.55% 44592 12.91% 2005/06 29973 3.38% 14317 13.07% 3363 14.54% 47653 6.86%

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

Appendix A: MAPPA – the First Five Years
Registered Sex Offenders
For the first time this year the MAPPA annual reports include a breakdown of the total RSO population for the basic policing units within each area (see individual area reports). This, together with the density of RSOs per 100,000 of the population, which ranges from 36/100,000 to 81/100,000 across the 42 Areas of England and Wales, illustrates the variable distribution of RSOs within the community. There are no obvious or simple explanations for the distribution of RSOs, which in any case is barely significant statistically. Chart 2 MAPPA Offenders by Management Level

Level 3 “The Critical Few” 1278 (3%)

Level 2 ”Multi-Agency” 12505 (26%) Level 1 Normal Agency 33870 (71%)

MAPPA management levels
It is important to remember that the majority of offenders within MAPPA do not pose a significant risk of serious harm to the public and can therefore be properly managed through the normal supervision arrangements provided by the probation service, youth offending teams and by police sex offender registration. This is described as level 1 management and accounts for about 71% of the MAPPA population. However, for offenders whose risk of serious harm is high or complex Category of Offender 1. Registered Sex Offenders (RSO) 2. Violent offenders and other sex offenders 3. Other offenders Total per Level

Total number of MAPPA Offenders by Level 2005/06
and requires active management by more than one agency, referral to Level 2 or Level 3 (MAPPP) meetings is vital. A case will generally only qualify for level 3 management where the intervention of senior agency representatives is required to effect the risk management plan with the authority to release or prioritise exceptional resources. Chart 2 shows the breakdown of management levels this year. This is the second year in which both Level 2 and Level 3 (MAPPP) data has been available and Tables 2 and 3 illustrate the number of offenders now subject to collaborative/ multi-agency risk management (29% of the MAPPA total). For each of these 13,783 offenders agencies will be required to meet on a number of occasions and to progress actions that reduce the likelihood of re-offending. The tables also provide a fuller picture Total per Category (% of MAPPA Total) 6594 13.84% 4786 10.04% 2403 5.04% 13783 28.92%

Table 2 Breakdown of Level 2 and Level 3 MAPPA Offenders for 2005/6 Level 2 (% of MAPPA Total) 6014 12.62% 4280 8.98% 2211 4.64% 12505 26.24% Level 3 (% of MAPPA total) 580 1.22% 506 1.06% 192 0.4% 1278 2.68%

Appendix A: MAPPA – the First Five Years
Table 3 Offenders referred to Levels 2 and 3 - Comparison with last year (% Change) Level 2 Category of MAPPA Offender 1. Registered Sex Offenders (RSO) 2. Violent offenders and other sex offenders 3. Other Offenders Total: 2004/05 5381 3615 2292 11288 2005/06 6014 11.76% 4280 18.39% 2211 -3.53% 12505 10.78% Level 3 2004/05 626 547 305 1478 2005/06 580 -7.35% 506 -7.49% 192 -37.05% 1278 -13.53%

of the commitment and resources being provided by the Responsible Authority and other partner agencies within MAPPA. The Level 3 MAPPP, the highest level of risk management, continues to focus on the most complex offenders, sometimes referred to as the ‘critical few’, and involves senior managers within each area. The use of Level 3 MAPPP has been refined over the last 3 years as part of a concerted effort to ensure that resources are focused where they can be most effective in enhancing public protection. This year they have been employed in under 3% of the total MAPPA caseload. At the same time, Level 2 risk management meetings, which are locally based, have increased in

number (12,505) and become the engine room for MAPPA. Whilst there is an element of focus on level 3, all Areas have recognized the necessity of ensuring adequate management and administrative support for Level 2; and this is reflected in Business Plans.

Interventions and Outcomes
Information about the scale and categories of offender is complemented by information on direct interventions and outcomes for this MAPPA managed group (ie those under Levels 2 and 3). These measures deal with breaches of licence and court order, with sex offender registration requirements and related court orders, and with further offending – see tables 4 and 5.

The headline figure is, no doubt, that reflecting the number of offenders who, while managed at levels 2 or 3, are charged with a serious sexual or violent offence. Compared with 2004/5, this year saw a reduction in the number of serious further offences in this population from 79 (0.6%) to 61 (0.44%) cases this year. And the biggest impact was where you would want and expect it – with the more intensively managed Level 3 cases. On the face of it the figures are encouraging but they should be treated with caution for 2 reasons. Firstly, we have only collected the data for 2 years; secondly, with such small numbers any change can trigger a wholly disproportionate, misleading percentage variation.

Table 4 Outcome measures: Level 2 and Level 3 activity for 2005/6 (% Change) Level 2 Category of MAPPA Offender 1. Breach of License 2. Breach of Orders 3. Charged with SFO 2004/05 1084 55 49.09% 47 50 6.38% 32 2005/06 1321 21.86% 82 Level 3 2004/05 222 18 2005/06 219 -1.35% 22 22.22% 11 -65.63% Total of Level 2 & 3 2004/05 1306 73 79 2005/06 1540 17.92% 104 42.47% 61 -22.78%

Appendix A: MAPPA – the First Five Years
Table 5 Outcome measures: RSO arrests and Sex Offences Act Civil Orders 2004/5 and 2005/6 (% Change) RSO Enforcement 1. Registered sex offenders (RSO’s) charged/cautioned Sex Offences Act Orders 2. Sexual offences prevention orders (SOPOs) granted 3. Notification Orders (NOs) granted 4. Foreign Travel Orders (FTOs) granted Total Number of Orders Number of Offenders Number of Offenders (04/05) (05/06) 993 Number of Orders (04/05) 503 22 1 526 1295 30.41% Number of Orders (05/06) 933 85.49% 39 77.27% 1 0% 973 84.98%

What is apparent, however, is that the figure is low and whilst any serious re-offending is a matter of great concern, such a low serious re-offending rate for this particular group of offenders is to be welcomed and supports the view that MAPPA is making a real contribution to the management of dangerousness in communities. The data relating to breach of licence and court orders is positive as this reflects an increase in action taken in level 2 and 3 cases prior to them having opportunity to commit serious further harm; ie to recall offenders to prison. A similarly encouraging picture emerges from a reading of the data on various sex offender provisions – see table 5. Action taken to enforce the sex offender registration requirements through caution and conviction increased by 30% from last year and affected 1295 offenders, 4.3% of the total registered in the community. There was also considerable use made of the range of new civil

orders available under the Sex Offences Act 2003 (sexual offences prevention orders, notification orders, foreign travel orders). In total 973 orders have been granted this year an increase of 446.

instructive to set out the lessons learned this year. Strengthening Multi-Agency Public Protection Arrangements Published in October 2005 available on www.homeoffice.gov. uk/rds/pubsintro1.html This research was undertaken by De Montfort University and found evidence of greater effectiveness and efficiency across MAPPA teams in England and Wales, compared to an earlier review of public protection arrangements, which had been conducted before the MAPPA legislation was introduced in 2001. It found that areas were meeting the MAPPA Guidance specification to a large extent. It also found that the arrangements had been strengthened by the inclusion of the Prison Service within the Responsible Authority and by the designation of a number of duty-to-co-operate agencies ( a consequence of the Criminal Justice Act 2003). The MAPPA process

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

Appendix A: MAPPA – the First Five Years
facilitated effective contributions by agencies so that representatives could make operational decisions and develop risk management plans. The report made a number of recommendations for policy and practice development which are being taken forward through the revision of the MAPPA Guidance and the MAPPA business planning process. available on http://inspectorates. homeoffice.gov.uk/hmiprobation This was a report by Her Majesty’s Chief Inspector of Probation into the murder of John Monckton and attempted murder of his wife Homeyra in November 2004 by two men under the supervision of the London Probation Area. The report identified overall failures and some specific deficiencies in the way the two cases were managed. Although neither offender was referred to MAPPA Damien Hanson, who was assessed as presenting a high risk of serious harm, should have been. Importantly the report has established a number of principles against which future case management within MAPPA and the National Probation Service will be judged. Key amongst these is that the public is entitled to expect that the authorities will do their job properly i.e. to take all reasonable action to keep risk to a minimum. In response to this report, an action plan was issued to the National Probation Services to ensure delivery of effective implementation of the report’s five ‘key’ recommendations and 31 practice recommendations. Authority for MAPPA in Hampshire who were concerned by a number of issues that had contributed to the risk management failure. The report details principal findings and recommendations for a range of agencies within and outside MAPPA. Each of which is being taken forward. Importantly it revealed the failure to manage the offender’s risk of harm to the public was not due to any single act of negligence or deficiency. Rather it was a cumulative failure of processes and actions throughout his sentence supervision, both in prison and in the community. This is an essential point to grasp and reinforces the importance of having an integrated offender management system from start to end of sentence with clear and consistent practice between the three core MAPPA agencies, prisons, probation and police. The key recommendation for MAPPA was about maintaining a better balance between human rights of offenders and protecting the public, and using existing MAPPA guidance properly. Work is already underway to revise and strengthen national guidance and improve MAPPA’s foundations by way of the national and Area MAPPA business plans.

Managing Sex Offenders in the Community (A joint thematic inspection by Her Majesty’s Inspectorates of Probation and Police) Published in November 2005 available on http://inspectorates. homeoffice.gov.uk/hmiprobation This inspection found that there was greater focus by police and probation on improving the assessment and management of high risk sex offenders which offered the prospect of improved performance. However it noted a number of deficiencies in relation to MAPPA case management records; police home visits for registered sex offenders and training for both police and probation staff on assessment and management of risk of harm. These deficiencies have been addressed through the National Offender Management Service Risk of Harm Improvement strategy and the development and imminent publication of the Police Public Protection Manual. An Independent Review of a Serious Further Offence case: Damien Hanson and Elliot White Published in February 2006 and

An Independent Review of a Serious Further Offence case Anthony Rice Published in May 2006 and available on http://inspectorates. homeoffice.gov.uk/hmiprobation This report was completed following the murder of Naomi Bryant in August 2005. The independent review was requested by the Responsible

Joint Police/Probation/Prisons Thematic Inspection Report: Putting Risk of Harm Into Context Published in September 2006 and available on http://inspectorates. homeoffice.gov.uk/hmiprobation This report found that much had been achieved, including

Appendix A: MAPPA – the First Five Years
that planned interventions were generally effective in containing offending behaviour. There were also many areas for improvement and the report makes recommendations for the more consistent use of MAPPA and sharing of MAPPA good practice, improved risk of harm assessments and sentence planning and greater victim awareness. It is important to note that the fieldwork to support the inspection concluded in the autumn of 2005, prior to the launch of the Risk of Harm Improvement Action plan and other actions referred to in this overview. Nevertheless, the report has been welcomed and will be considered in further detail by the National Offender Management Service (NOMS) Risk of Harm Improvement Board as well as the Responsible Authority National Steering Group (RANSG). a direct bearing on how dangerous offenders are assessed and managed. This includes the OASys Quality Assurance Programme implemented from July 2005; implementation of the offender management model from April 2006; the launch of the NOMS Risk of harm Guidance and Training resource pack June 2006; and the planned roll-out of the Police Public Protection Manual. MAPPA will increasingly benefit from the expansion of ViSOR (the Violent and Sex Offenders Register). ViSOR is an integral part of plans to strengthen public protection through improved risk assessment and management and will provide electronic support for MAPPA allowing efficient data sharing between Police, Probation and Prisons. The police have been using ViSOR since April 2005 and the system will be implemented into the prison and the probation service during 2006/7. For the first time the Responsible Authorities will be working together on the same I.T system to Reduce Re-offending. MAPPA Development Strategy • Achieve dedicated MAPPA coordination and administration capacity in all areas during 2006/7 (underway) • Develop RANSG to include national representation of Duty to cooperate agencies (achieved) • Revise and publish MAPPA Guidance (by April 2007 – see existing Guidance at: http:// www.probation.homeoffice.gov. uk/output/page30.asp)

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

Actions to develop MAPPA
Effecting change to these public protection arrangements requires concerted action from a range of agencies and key stakeholders. MAPPA is not an agency but a set of national arrangements that requires each contributor to ensure that their own agency’s practice is fit for purpose and that the manner of their collaboration is effective in assessing and managing the risk posed by sexual and violent offenders. It is important to note that MAPPA has benefited significantly this year from the work undertaken by individual agencies; work that has

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

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

Appendix A: MAPPA – the First Five Years
Training • Delivery of lay adviser national training (delivered but also developing so far) • National coordinators conference (delivered – May 2006) • Collate core training material (underway) • Areas to implement a training strategy for new practitioners, new members of the strategic management board and for coordinators and administrators (underway) Areas have been asked to produce annual reports on this model and local business plans are attached to area annual reports for the first time. Future reports will record the progress that has been achieved. information and manage offenders collaboratively, ensuring that potentially dangerous offenders are being properly risk assessed and robustly managed in the community. Effective management of high-risk offenders, as a discipline, is still relatively in its infancy. There is continuous development and the standards and good practice of tomorrow are likely to be different from today’s, achieved through experience and research. The challenge therefore is not only to match current practice with what we know, but also to respond rapidly to new learning. The Inspectorate helpfully suggests that what they are describing can be better understood as the identification of stages on a journey rather than a destination reached. Since their introduction in 2001, the 42 MAPPAs covering England and Wales have travelled a great distance in a short time to establish the new arrangements. The vital public protection work of MAPPA is undertaken by skilled and committed staff and everyone engaged in the arrangements acknowledges the need for constant vigilance and improvement. The journey is not easy, but communities are safer because, as this report demonstrates, the Responsible Authorities are travelling together in the right direction.

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

Conclusion The introduction of MAPPA enables agencies to work more closely than ever before to exchange

HM PRISON SERVICE
SOUTH WEST AREA