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Multi-Agency Public Protection Arrangements

Annual Report 2003-4
Foreword by the Devon and Cornwall
Strategic Management Board
The Devon and Cornwall Strategic Management significant opportunity to further improve and increase
Board for Multi-Agency Public Protection are pleased confidence, particularly by the appointment of two lay
to publish the third annual report which we believe will advisors to the Devon and Cornwall Strategic
go to demonstrate the developments in this area of Management Board which is due to take place later in
co-operative working. the year. This development is welcome and we know
will be of significant help in ensuring we adequately
This report will give information surrounding the respond to community fears and needs.
mechanics of the management of sex and violent
offenders presenting a high risk of harm, in an effort to
instil confidence in those procedures. In doing so we
recognise the massive impact such offending has
upon individuals and communities and the need for
ongoing development and improvement in such

We look forward to the coming year which we know

will again be demanding and challenging but offers
1. Introduction
This is the third annual Multi The Sexual Offences Act overhauls The number of other offenders
Agency Public Protection the many antiquated sexual considered under MAPPA this year
Arrangements (MAPPA) report, and offences and plugs loopholes in the has increased, due in part, to a
it covers the period 1st April 2003 to law. In updating sexual offences, it greater understanding of the
31st March 2004. This report strengthens the law on rape and on MAPPA process by agencies other
provides details of and updates on sex offences against children. It than those making up the
local arrangements and gives introduces new offences of ‘sexual Responsible Authority, thus creating
contact points for any additional grooming’ and extends the a greater number of referrals into
enquiries including agencies other protection from exploitation in the process.
than Police and Probation. prostitution or pornography to
children up to the age of 18. For Also reported in the statistics
The Criminal Justice and Court the first time, it will be an offence to section is one case where a
Services Act 2000 formalised the buy sexual services from a child MAPPP managed offender was
already close working relationship below this age, targeting those who charged with a serious offence. This
between Devon and Cornwall abuse children in this way. offender was not subject to any
Police and National Probation statutory supervision or licence and
Service Devon and Cornwall Area, The Sexual Offences Act also was not required to register as a
and made them the ‘Responsible strengthens the sex offenders sex offender, however his risk of re-
Authority’. They make multi-agency register, which has proved a offending was recognised and
public protection arrangements for valuable means by which the police therefore he was managed within
the assessment and management can monitor convicted sex offenders the MAPPP. Unfortunately despite
of the risks posed by sexual, within their area, and introduces measures to manage his risk he
violent, and other offenders who new civil orders to help prevent assaulted a woman. It was in some
may cause serious harm to the further offences from being part due to the awareness of this
public of Devon and Cornwall. committed. individual, achieved through
MAPPA processes that he was
The new Criminal Justice Act 2003 This year the annual report quickly identified as a suspect. He
not only introduces Her Majesty’s provides a detailed breakdown of was arrested within hours of the
Prisons (HMP) as a member of the the numbers of the three different offence. and subsequently received
‘Responsible Authority’, but further categories of offender covered by life imprisonment.
strengthens the multi agency nature the MAPPA in this area these are:
of the MAPPA and the collaboration Only a very small proportion of
that underpins it, by introducing a Registered sex offenders, Violent offenders are considered to pose
‘statutory duty to co-operate’ on a offenders and other sexual such a high risk or management
wide range of organisations offenders, and Other offenders. difficulty that they are referred to
including, local County Councils, the highest level of the MAPPA- the
Health Authorities, Social Services, In relation to registered sex Multi Agency Public Protection
Youth Offending Teams, Housing offenders, because sex offender Panel (the MAPPP).
Associations, and Local Education registration is for a minimum of 2
authorities. years (and generally for much Figures alone do not, of course, tell
longer) the figures are cumulative. the whole story. The anonymised
In addition to this work to This is why they have increased case studies contained in this report
strengthen the MAPPA, the since last year. illustrate the practical work of the
Government has also begun to MAPPA, and demonstrate the
strengthen other statutory The number of violent and other preventive action which can be
provisions, the most significant of sex offenders considered under taken. Prior to the MAPPA, action of
which are the Sexual Offences Act MAPPA this year has decreased as this kind was mainly taken by one
(2003), and the measures to we, as an area, are only required to agency alone, with the effect that
introduce new sentences for ‘high show those offenders living in our on occasion offenders’ behaviour
risk of harm’ offenders which will community, whereas in previous which might have triggered
keep them in custody until they no reports the figure included those preventative action went unnoticed.
longer pose a serious risk to the offenders in prison. The multi-agency approach of the
public. MAPPA helps ensure that if an
offender does breach the condition In the previous annual report the involved professionally with the
of the licence under which they concept of ‘Lay Advisors’ was MAPPA are aware of the views of
were released from prison or a introduced, the purpose of the community. In Devon and
court order prohibiting certain appointing ‘Lay advisors’, being to Cornwall we hope to have Lay
activities, then action to enforce the ensure that communities advisors appointed during the next
condition or order and protect the understand more of what is done to twelve months.
public can be taken more swiftly. protect them and that those

2. Area Summary
Formal arrangements in Devon and Significant developments • Development of a Regional Risk
Cornwall began in response to the in the MAPPA have been Training Strategy. This will be
Sex Offenders Act 1997, when police delivered by a joint agency
and probation began to make formal
achieved during the past training team, to all levels of staff,
joint arrangements for the assessment year, which include: in the agencies involved in the
of registered sex offenders. In 2001, risk assessment and
the Criminal Justice and Court • HMP will join Police and management of offenders.
Services Act 2000, was introduced, Probation as a member of the
this Act had the effect of placing the MAPPA Responsible Authority. • Risk Assessment Officers working
already close working relationship more closely with HMP, to identify
between police and probation on a • The ongoing establishment of and formulate accurate risk
statutory footing. four Police/Probation ‘Public assessments on prisoners prior to
Protection’ Teams, who will jointly their release into the community.
The Act also required police and manage the ‘critical few’. In
probation to: addition to a Public Protection • Developing processes for HMP to
Team being set up within the link in with Probation Resettlement
• Establish strategic management Force Intelligence Centre at Officers, ensuring continuity in the
arrangements for reviewing and Police Headquarters Middlemoor. management of high risk of harm
monitoring the effectiveness of offenders. Senior staff at HMP
MAPPA; • Provision of additional officers to Exeter have developed a protocol
manage MAPPA offenders within regarding the management of
• Establish systems to ensure that each Basic Command Unit. MAPPA cases’ both through their
only those ‘critical few’ offenders sentence and in conjunction with
who pose the greatest threat to • The appointment of a ‘MAPPA resettlement plans.
the public are referred to Administrator’, who works directly
MAPPPs; to the MAPPA Manager and who • Corporate commitment to tackle
attends all MAPPP meetings to the problems associated with
• Establish systems for information take minutes, thus ensuring domestic abuse and child
sharing and inter-agency consistency and accurate protection. To ensure that
collaboration in respect of all recording of defensible decision through multi agency working,
relevant offenders; making. positive action is taken in all
cases of domestic abuse, with
• Consider resource allocation and • Continued revision of the Devon offenders being made subject of
the need for multi-agency & Cornwall MAPPA information MAPPA where appropriate.
training; sharing protocol, to include a
wider range of signatories.
• Develop strategies for community
and media communications; • The implementation of a
computer database called VISOR
• Publish an Annual Report to manage the registration of and
describing local Multi Agency intelligence/information on sexual
Public Protection Arrangements, and violent offenders.
including statistical information.
3. Who are we?
Police and Probation staff take a Devon and Cornwall, specialist offenders are clear before release
lead in the operation of MAPP Probation staff are trained and about any licence conditions to which
arrangements in Devon and experienced in the assessment and they may be subject. As the Devon
Cornwall but they cannot achieve management of offenders who pose a and Cornwall area is very large and
effective management of high risk of risk of harm to the public. Staff agencies such as Social Services,
harm offenders without co-operation undertaking these roles are based in Health, Housing and voluntary
and joint working arrangements with each of the four divisions; they work agencies have boundaries which are
other agencies. primarily with offenders sentenced to not necessarily consistent with Police
imprisonment, both during their and Probation, it is not possible to
These agencies include social sentences and on release, although mention here all the agencies involved
services, health, housing, youth they sometimes manage potentially in local partnerships.
offending teams, prisons and others. high risk of harm offenders on
community sentences. The Probation Some examples are:
Devon and Cornwall Constabulary is Area also employs staff who are Health Service staff who provide a
committed to public protection, specially trained to deliver offending range of services, including
particularly of children and the most programmes to sex offenders, community mental health, psychiatric
vulnerable. The Constabulary regards domestic violence offenders and other and forensic assessments. Local
protecting the public from violent and violent offenders. All divisions have forensic psychologists provide
sexual offenders as a priority and working arrangements with other assessment and treatment packages
recognises that public protection work agencies and close working practices for offenders where appropriate.
requires the establishment of practical with the police are well established in Health professionals attend multi-
and effective co-operative measures the form of police/probation teams at agency meetings and contribute to
amongst agencies. local level. Local middle managers assessments and supervision plans.
responsible for resettlement work line
Whilst some offenders can be manage the probation staff, chair and Social Services Departments in
effectively managed by the actions of manage the multi-agency Devon and Cornwall have a statutory
one agency alone, all agencies need conferencing process with the police duty to provide for the protection of
the co-operation of others to review cases and oversee local children and vulnerable adults. Their
discharge their public protection duties registers of offenders assessed as representatives contribute to the multi-
effectively. Today’s police service is posing a risk of harm to the public. agency assessment and management
founded on the principle that the process in all divisions, attending
prevention and detection of crime is There are two approved premises in MAPPP meetings, providing written
central to its purpose. Development of Devon and Cornwall, where high risk and verbal reports where appropriate
effective partnerships is pivotal to how of harm offenders can be and working closely with all relevant
these principles are achieved. To fight accommodated and managed within a agencies in the implementation of
crime effectively, resources have been structured regime, with regular supervision plans.
targeted at the most active offenders monitoring and surveillance.
as well as the most serious offenders A member of Devon Social Services
in our communities. There are three prisons in Devon, works within Public Protection Unit at
Dartmoor, Channings Wood and police headquarters. Her role is to
The Constabulary employs specialist Exeter. Probation and prison staff facilitate a cross flow of relevant
staff who work closely with other within these establishments work information between the agencies.
agencies, particularly the Probation together with Police, Probation and
Service, to assess and manage high others in the community, to plan for The NSPCC has a partnership
risk of harm offenders. the release of offenders under agreement with Devon and Cornwall
conditions which address the risks Probation Area. This partnership
Devon and Cornwall Probation Area is they pose to the public. Prison based covers the provision of sex offender
part of the National Probation Service staff provide reports and other treatment groupwork, staff training
and as such it regards protection of information, sometimes attend multi- and consultation and appropriate
the public as its highest priority. In agency meetings and ensure that contribution to the MAPPP process.

The Constabulary aim for 2003/2004 is:

“Working in partnership to bring about safer communities, reduce disorder, crime and
the fear of crime and contribute to the delivery of justice in a way which secures and
maintains public confidence.”
4. What do we do?
In Devon and Cornwall, all broadly consistent with the police Prior to his release MAPPPs
offenders falling under the MAPP Basic Command Units. The panels were held and multi agency
arrangements are assessed to provide a forum for agencies to share information sharing took place. A
determine the levels of risk they information and to work together in release plan was formulated, and
pose to the public. This assessment the assessment and management of licence conditions considered.
is carried out primarily by staff from the risks posed by registered sex The release plan included,
the probation area and the police, offenders and other offenders arranging and controlling his
sometimes jointly. Validated regarded as potentially dangerous. travel to an approved Probation
methods of assessment are used Hostel, arranging disclosure to
alongside professional judgement to A MAPPP will meet on a regular the victims of his previous
determine those offenders who form basis, and it concentrates on ‘the offending, and to those assessed
part of the ‘critical few’ seen as critical few’ who are either within the as potential targets for future
posing a very high risk of harm and local community, or who are to be offending, thus enabling them to
those who, although not in the shortly released into the community. take any necessary action to
highest category, still pose a high The panel is chaired by the MAPPA protect themselves from any
risk of causing harm to the public. Manager, a Senior Probation Officer, approaches made by him.
with senior representatives from the Following his release he was
An important development in this Police and other key agencies, required to register with the
work has been the introduction of a contributing to the development of a police as a sex offender.
three-tier system for dealing with risk management plan for each
offenders. The purpose of the three- offender based on the risk they Licence conditions were
tier system is to ensure that the present. The Chair of the MAPPP imposed, which included;
most high risk of harm offenders tries to ensure that the appropriate
receive the greatest degree of level of representation from each • Requiring him to see a
scrutiny and oversight. The three agency is present, however whilst this Forensic Psychologist
tiers are: has been achieved by some agencies • The engagement of a
there is still room for improvement. specialist agency in sex
• Single agency intervention: offender work.
Where low and medium risk The MAPPP is committed to • Approved accommodation.
offenders who do not require multi devoting more time and resources • Prohibition from going to
agency management are dealt with to the management of ‘the critical certain areas of Devon.
by one agency (usually police or few’, thereby affording the • Electronic tagging.
probation); community protection from the most • Not to reside in any house
dangerous where there were children
• Risk assessment management under 18yrs.
panel (RAMP): A multi-agency information • To undertake work to address
Where High risk offenders are exchange protocol has been signed sexual/anger behaviour and
jointly managed by police and by the majority of those agencies alcohol misuse.
probation, supported by any who have a duty to co-operate with
relevant information provided by the MAPPA. This cross flow of The conditions were not only
other agencies; information allows for an accurate imposed in order to control and
assessment of the risk posed by, restrict his movements, but also
• Multi agency public protection and the management of, sexual, to allow him to address the
panel (MAPPP): violent, and other offenders. behaviour linked to his previous
Where offenders, assessed as Very offending. These multi faceted
High risk, often referred to as ‘the Case Examples conditions thus gaining the
critical few’, are assessed, managed maximum benefit from his
and reviewed at a senior level by all a) A sex offender coming to the end supervision period and allowing
the agencies that play a part in of a long term prison sentence, plans for his continued
MAPPA. was assessed, prior to his management prior to and
release, as posing a ‘very high following the end of the licence
Within Devon and Cornwall MAPPPs risk’ of causing serious harm. period.
and RAMPs are held in each of the During his imprisonment he had
Basic Command Units (BCU) areas. refused to engage in any offence b) Following information received
The four probation divisions are focused work. from members of the public
concerning the activities of a intelligence gained he is now protect the children should he
male at a local leisure centre managed via the highest tier of attempt to take up residence
swimming pool, a man with offender management the within the household. The
previous convictions for a sexual MAPPP. He continues to be MAPPP agreed to offer him
offence, was identified by police subject of close monitoring. accommodation on a temporary
officers. Enquiries revealed that basis in an approved Probation
he had been attending the leisure d) A sex offender’s release from Hostel on the understanding he
centre for a number of months, prison was notified to police in would undertake the Thames
partaking in seemingly innocent July 2003, the offender had three Valley Sex Offender Treatment
‘rough and tumble’ games with days in which to attend a police Programme on a voluntary basis.
young boys. station and register his name and He agreed to these
address with the police. Police arrangements and successfully
Following a RAMP meeting it monitoring processes revealed completed the early stages of the
was requested that non statutory that he failed to attend as programme remaining at the
disclosure be made to the required, through intelligence hostel for a period of 5 months.
management of the swimming gathering his whereabouts were He has since found alternative
pool. Disclosure was made and ascertained and he was arrested accommodation with the
the management took the and charged. assistance of the relevant
decision to bar the man from the housing department. He has
leisure centre. He continues to e) An offender with a history of made significant progress with
be monitored. predatory sexual attacks on excellent reports regarding his
women, was being released from attitude change as monitored by
c) A registered sex offender, prison without any formal the programme staff. He has his
following release from Prison was supervision. He had previously first significant adult relationship
managed via the MAPPA by the been recalled to prison during 2 and has now been moved from a
police. Part of the single agency periods of statutory supervision. level 3 MAPPP case to at level 2
intervention involved routine Whilst in prison he had refused to RAMP. There have been no
visits and monitoring. As a result participate in the sex offender reports throughout this period of
of continued intelligence treatment programme. His plan any return to previous pattern of
gathering and visits made to the on release was to live with a sexual offending. He continues to
offender, his risk of re-offending friend and her children. Social be monitored.
was reassessed. As a result of Services were advised and they
the visits and confirmation of put in place arrangements to

5. How is the work of MAPPA made accountable?

Section 67(3) of The Criminal The Board is provided with up to • Recent Non statutory disclosures
Justice and Court Services Act 2000 date statistics concerning: - to demonstrate that such
requires that the work of MAPPA be information is appropriately
subject to review and monitoring. • Registered Sex Offenders shared to prevent or reduce
The publishing of an annual report monitored within the Area. crime.
explaining the work of MAPPA
brings to public attention these • Summaries of cases involving The Board has also been provided
public protection measures. In any ‘unregistered’ sex offenders. with the learning outcomes of
addition, a Strategic Management Serious Further Offending Reviews
Board has been established in • Numbers of MAPPP managed relevant to MAPPA Managed
Devon and Cornwall. The Board cases. individuals.
consists of senior managers from
police, probation, health, social In addition they are given accounts In addition the forthcoming
services, prisons, youth offending of: - introduction of a lay member to our
teams and housing etc. SMB will it is anticipated ensure
• The management arrangements that the MAPP arrangements will
The Board meets quarterly to of certain individual cases of remain accountable.
review progress and discuss future note.
developments relevant to MAPPA.
6. Work with and on behalf of victims.
Devon and Cornwall Probation awareness of the victim impact attacked a specific group of
Area employs Victim Liaison issues when considering risk vulnerable women. The direct
Officers, whose role is to consult management arrangements. In victims of the index offence, were
and advise victims of sexual and particular there maybe considerable visited by the Victim Liaison
violent offences, in accordance with anxiety on the part of victims in the Officer, and their views were
the Criminal Justice & Court way information has been considered at the MAPPP.
Services Act 2000 and the Victims exchanged fearing re-victimisation
Charter. In 2003/2004, 96% of should the offender learn of their The Offender’s licence conditions
victims were contacted within 8 concerns. included no contact and an
weeks of the offender’s sentence, in exclusion zone. The victims were
accordance with National Standards One of the main issues is kept informed regarding his
and the Victims Charter. This figure considering licence conditions, discharge and again when his
is based on the 9 months from 1st which aim to deter the offender licence was revoked and he was
April 2003 to 31st December 2003. from making contact either directly returned to prison.
Victim Liaison Officers attend MAPP or indirectly via telephone, letter, or
panels, to ensure that the victim’s third party contact. The victim is b) In a case involving a violent
perspective is taken into account advised as to their part in the attack within a relationship the
where possible, in the formulation enforcement process. In some Victim Liaison contact revealed
of risk management plans and to cases Home office alarms are fitted information regarding the
represent the victim’s interests. in the victims home to ensure an offenders behaviour which was in
immediate appropriate response. direct contrast to the evidence
The protection of victims is at the Also exclusion zones can be collated regarding his behaviour
core of multi-agency public identified by way of preventing an in prison. The information was
protection. In cases where children offender from seeking to intimidate particularly significant in the
are victims the Victim Liaison and harass victims in their home development of the overall risk
Officers will work with Social area . Prevention of victimisation is assessment, as the immediacy of
Services directly to ensure that child a central and guiding principle of the risk would not have been
protection measures are the work of MAPPA and is evident from the other sources of
maintained. Where there is no dependent upon effective multi- information. As a result specific
Social Services involvement they agency working. licence conditions were agreed
will contact parents or guardians and a home office alarm fitted
directly. Other agencies who are Case examples: into the Victims home.
directly involved with Victim Liaison
Officers in supporting victims a) An offender was due for statutory Within 2 days of his release his
interests include Victim Support release on licence having licence was revoked for his indirect
Service, NSPCC, Police Domestic previously been refused parole. harassment of the victim. This case
Violence Units and Police family During his sentence he had required specific liaison from the
Liaison officers. refused to engage in any Victim Liaison Officer with the police
programme work to address Domestic Violence Unit who had a
All agencies through the MAPPA offending related issues. His direct involvement in providing
processes aim to maintain an active offending profile was that he evidence for his recall.
7. Statistical Information
No. of Offenders

i. The number of registered sex offenders on 31 March 2004 725

ii. The number of sex offenders having a registration requirement who 48

were either cautioned or convicted for breaches of the requirement,
between 1 April 2003 and 31 March 2004

iii. The number of Sex Offenders Orders applied for and gained
between 1 April 2003 and 31 March 2004

(a) The total number of Sex Offenders Orders applied for 1

(b) The total number granted 0

(c) The total number not granted 0

iv. The number of Restraining Orders issued by the courts 30

between 1 April 2003 and 31 March 2004 for offenders currently
managed within MAPPA

v. The number of violent and other sexual offenders 131

living in the community, considered under MAPPA
during the year 1 April 2003 and 31 March 2004
(as defined by section 68 [3], [4] and [5])

vi. The number of "other offenders" dealt with under MAPPA during 125
the year 1 April 2003 and 31 March 2004 as being assessed by
the Responsible Authority as posing a risk of serious harm to the
public (but who did not fall within either of the other two categories,
as defined by s.67 [2b])
vii. 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 dealt with by:

a) MAPPP - registered sex offenders 31

b) MAPPP - violent and other sex offenders 9

c) MAPPP - other offenders 3

viii. Of the cases managed by the MAPPP during the reporting year
what was the number of offenders:

a) who were returned to custody for breach of licence 9

b) who were returned to custody for breach of a Restraining Order 0

or Sex Offender Order

c) charged with a serious sexual or violent offence 1

Mary Anne McFarlane Queen’s House 01392 474100
Chief Officer Little Queen Street

Maria Wallis Force Headquarters 08452 777444

Chief Constable Middlemoor

Devon and Cornwall Probation Area Address Phone

Kath Morris Thurlow House 01803 213535

Assistant Chief Officer Thurlow Road

Devon and Cornwall Police Address Phone

Richard Stowe Force Headquarters 08452 777 444

Assistant Chief Constable Middlemoor

Robert Spencer Force Headquarters 08452 777 444

Detective Superintendent Middlemoor
Crime Department

SMB Contacts Address Phone

Tom Conneeley Devon & Cornwall Police 08452 777 444

Detective Inspector Crime Department

John Morgan Cornwall Forensic Mental 01208 251300

Forensic Clinical Psychologist Health Service

Chris Dimmelow Devon Social Services 01392 386657

Child Protection Manager Department

John Cousins Youth Offending Team 01872 274567


Ann Morecraft North & East Devon Health 01392 207428

Head of Devon Patient & Community
Practitioner Services Agency
Designated Manager for Child Protection
(N&E Devon)
Ian Mulholland HM Prison, Exeter 01392 415650

Graham Davey Mid Devon Housing 01884 234286

Housing Needs & Enabling Manager

Phil Confue Plymouth Primary Care Trust 01752 315315

Director of Mental Health
& Learning Disability Services

Chris Nash Cornwall Partnership Trust 01726 291019

Health Visitor & Child Protection Adviser

Nick Pennell Plymouth Primary Care Trust 01752 315315

Acting Deputy Director
Mental Health & Learning
Disability Services / Rural Locality Manager

Maureen Grimley Plymouth Social and Housing Services 01752 306340

Child Protection Officer

Dick Goodere Cornwall Social Services 01872 254549

Social Work Consultant CP Team

Anthony Farnsworth Strategic Partnerships 01392 207477

Director of Strategic Partnerships

Devon and Cornwal Victim Support Phone

Victim Support Devon

01392 678675
Victim Support Cornwall
01872 263464