MAPPA Annual Report 2004


Home Office Letter Foreword 1. 2. 3. 4. 5. 6. 7. 8. Introduction Local Organisation Regional Collaboration Emergency MAPPPs Identification of MAPPA Offenders Lay Advisor Report Strategic Management Board Focus on Victims


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MAPPA stats 2004/2005 Victim Support Services in Dorset Police/Probation/Prison Contacts MAPPA Leaflet


Ministerial Foreword by Baroness Scotland

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

Baroness Scotland Minister of State for Criminal Justice and Offender Management


Foreword It is sometimes difficult to know how best to communicate the work that goes on to protect the public from dangerous offenders. Criminal Justice Agencies are mindful of the risk of raising anxieties by talking about the small number of people in our communities who pose a risk of harm to the person. As a result media coverage often concentrates solely upon serious offences that have been committed and sometimes upon those cases where steps to prevent an offence have not been sufficient. This Annual Report tries to redress that balance. It sets out the positive measures being taken by Police, Probation and Prison Services with their partners in the community to protect the public. This is our highest priority and as a result only a very small proportion of offenders under supervision go on to commit further offences. Preparation for the release of offenders and their intensive supervision in the community has never been better co-ordinated. The Criminal Justice Board in Dorset is working hard to try to build public confidence in the Criminal Justice System. The work of the Multi Agency Public Protection Panels make a strong contribution to this effort. They are focused upon the needs of victims and the absolute importance of ensuring that past victims are protected from further harm. To ensure that there is a more effective response to dangerous offenders, further work is underway to ensure that: • • • Known sex offenders are supervised more stringently. Appropriate accommodation is in place for high risk offenders. Particular attention is paid to the prevention of domestic violence.

However members of the public should not be just passive recipients of this service from the Criminal Justice Agencies. They can be active partners in preventing further offences and in enabling reintegration of some offenders back into the community. In Dorset two Lay Advisors now sit on the Strategic Management Board for the Multi Agency Public Protection Arrangements to provide an independent but informed view of the work that is being undertaken. Lay Advisors not only gain an insight into how high risk of harm offenders are managed but, more importantly, have an opportunity to challenge what is being done. We would like to take the opportunity to express appreciation for the work undertaken both by our own staff and members of partner organisations in making Dorset a safer place. Far from raising further anxieties about serious crime, we hope that by reading this Annual Report you will gain confidence in the measures being taken to enhance the protection of the public.

Jerry Pethnick Area Manager Dorset Prisons

Barrie Crook Chief Probation Officer Probation-Dorset

Adrian Whiting Assistant Chief Officer Dorset Police




It is the Responsible Authority that makes multi-agency public protection arrangements for the assessment and management of the risks posed by sexual, violent, and other offenders who may cause serious harm to the public of Dorset. Effective multi-agency public protection starts with the efficient identification of relevant offenders. Prompt and accurate identification allows agencies to gather and share relevant information and enable them to choose the appropriate risk management strategies. Without this initial action there are real dangers that important information is not gathered and shared or is shared inappropriately and the energy of agencies diverted from those offenders posing the highest risk of serious harm. The identification of an offender follows the national guidelines but can also be subject to local concerns or issues that can place someone as part of MAPPA


Relevant offenders falling within the remit of MAPPA are: Category 1: Category 2: Category 3: Registered sex offenders Violent and other sex offenders Other offenders

Category 1 Registered Sex Offenders (RSO) The nature of sexual offending and those responsible for it is often obscured by popular stereotypes, which portray the primary danger as being strangers. In reality, this is not the case as national research indicates that 80% of sexual offending occurs in known relationships such as family or other acquaintances. Within this definition, the process caters for offenders who are required to register under Part 2 of the Sexual Offences Act 2003. This includes everyone who has been convicted or cautioned for sexual offences as prescribed in the Sex Offenders Act 1997. The offences range from unlawful sexual intercourse to rape and offences against children. Therefore, the statistics presented later in this report cover a wide range of sexual offending and it is important to remember that when looking at the number of Registered Sex Offenders, that not all sex offenders can be classed as paedophiles. The statistics provided within this report (Appendix 1) indicate that there are 352 Registered Sex Offenders living within the Dorset area during the reporting period. This equates to 50 offenders per 100,000 head of population, which is well below the National average of 65.


The number of offenders being managed has grown from 273 in 2002/03 to 333. in 2003/04 to its current level of 352 It will keep increasing over the next few years because once convicted the majority of sex offenders are required to register for many years or even life and now as a result of the Sexual Offences Act 2003 in almost all convictions of sexual offences the offender will become a RSO. Not all of these individuals pose a high risk of causing harm to others but their behaviour is monitored regularly. Prior to the registration, initially required by the Sex Offender Act 1997, there was a limit to what agencies could do to manage these offenders within the community. The registration process ensures that the Police and other agencies know where these offenders live. This enables the multi-agency arrangements to manage and support them with the aim of reducing their risk of re - offending. Category 2 Violent and Other Sexual Offenders This group of offenders includes those individuals who have been convicted of a violent or sexual offence and have received a term of imprisonment of 12 months or more. The definition includes those who commit offences of domestic abuse, all types of violent assault, criminal damage or other violent crimes. A very small proportion of these offenders will be individuals convicted of murder or manslaughter. It also includes some sexual offenders who have no requirement to register under the act. The statistics contained within this report highlight the fact that there were 44 offenders within this category, managed through the MAPPA process in Dorset during the reporting period. Category 3. Other Dangerous Offenders This category encompasses individuals who have the potential to pose a risk of causing serious harm to others but do not come into the two previous categories. A person is classified as ‘dangerous’ or very high risk if they are assessed as presenting an abnormally high or potentially unacceptable level of risk to other people. This risk can include the potential to cause serious physical, sexual or psychological harm. There were 5 offenders assessed within this category in Dorset during the reporting period. The one important factor is that the subject of the MAPPA must have a conviction. If a person is considered by one or more agency to be a danger but does not have a conviction, then local strategy meetings take place using the MAPPA principles of co-operation to reduce the risk of harm.


Local Organisation

Level 3 Multi-Agency Public Protection Panels (MAPPPs) take place on the third Wednesday of each month at either Bournemouth Police Station or Bournemouth Probation offices. The Detective Chief Inspector Child Protection Investigation Unit or the Probation Assistant Chief Officer (Public Protection) chair the panels. Level 2 MAPPS also take place on a monthly basis usually taking place at the relevant local Police Station in Bournemouth, Poole, Weymouth, or Ferndown. The local police Detective Inspector chairs 5

the meetings concerning violent offenders and the Detective Sergeant or Senior Probation Officer of the Sex Offender Units chair Sex Offender cases. The Probation Service and the Police jointly fund a MAPPA secretary who attends all of the panels, which are currently arranged for the next three years. The Secretary invites the agency members for each individual panel; each member takes a report to the panel and shares their information with the other panel members. The same standing agenda is used for all meetings and concludes with each risk management action allocated to an individual and a key worker nominated to manage the overall plan. The plan is owned by all agencies present and the minutes agreed and circulated. The last action is to agree the date of the next meeting and the process for amending the plan should circumstance change. When the offender is owned by another area (the owning area is defined as the location in which the last conviction took place), representatives from that area, who will already have attended a MAPPA panel in their area, attend the local Level 2 or 3 MAPPP They must provide a risk management plan for the resettlement of the offender on leaving Dorset. The nominated keyworker informs the offender that they have been the subject of a local MAPPA panel and explains the outcome of the meeting, and informs the offender that they have to work with the panel to reduce the risk of harm.

Emergency MAPPPs The DCI and ACO (Contacts, Appendix 2) are the points of contact for emergency MAPPPs; they will discuss the case and decide using the national guidelines and local concerns if a MAPPP is appropriate, and determine the attendees, location, and minute taker. The panels take place at any suitable premises provided by any agency.

Locally and nationally the organisation of MAPPA is complex, but the attendance and involvement of agencies throughout Dorset has been faultless with each agency prioritising MAPPA work to achieve the best possible risk management plan to reduce the risk of harm to the people of Dorset.


Regional Collaboration

There are three main reasons for developing regional approaches to protecting the public. Firstly, offenders who represent a risk to the public do not always stay in one place and the risks can be more effectively managed across borders if there is a common approach. Secondly, collaborating on the development of policy and practice can make efficiency gains. Finally, a wider range of best practice can be disseminated effectively. In the South West we have a Regional Public Protection Steering Group with representatives from all 5 MAPPA areas. The Steering Group is overseeing a regional action plan, which addresses a range of issues including: • better coordinated management of dangerous offenders 6

• • • •

improved risk assessment and management coordinated implementation of new policy learning lessons from case reviews coordinated training and development

It is intended that this agenda for improving services will lead to strengthened protection of the public.


Local Cases

Case One A youth aged 19 with a current offence of indecent exposure was awaiting sentence. Following a guilty plea. He was referred to a MAPPA conference due to concerns that his offending might escalate. He has learning needs, possibly caused by a head injury. MAPPA firstly brought in the expertise of a London based organisation that specialises in treating sex offenders with learning difficulties. Their assessment helped to decide that local arrangements to treat sex offenders, which involve NSPCC, could assist in reducing his risk and that treatment will be arranged. He continued to receive monitoring and support from Social Services because of previous contact. The Probation Service assisted in providing safe accommodation. The Police provided information about his previous risky behaviour. A private accommodation provider has been involved in offering move on accommodation – and he is aware of any risks identified and can assist in monitoring those. The MAPPA conferences, which involved all the above parties, have been moving towards implementing actions which reducing his future risk and those plans were put to the sentencing court who took account of them when sentencing took place.. Case Two A very violent offender whose last conviction had concerned a serious assault on his wife that resulted in a long term of imprisonment was due for release. He had always blamed his wife for being in prison and still does. It was felt that upon release he would find his wife and seriously assault her. The MAPPP was convened several months before his release and a risk management plan formulated that included: • • • • • • • • Visit in prison prior to release Collection from the prison and taken to the Hostel Hostel accommodation being provided; Housing issues for the future; Victim notified of release, dates, and MAPPA plan; Victim informed about what action to take if he were to turn up Strict Prison release Licence conditions; Strict Hostel conditions;


• Obtaining a recall warrant prior to his release to enable a swift recall in the case of failure. In relation to the victim new accommodation was secured which included alarms and a “safe room “ within the house that could be secure from attack. He has to date been managed without incident by the close cooperation of all agencies with a high level of commitment to make the people of Dorset safer.

5. Lay Advisor Report This is the third annual report I have presented as the Lay Adviser of the Dorset MAPPA Strategic Management Board (SMB). Since my last report I have attended all meetings of the SMB. I have also carried out a series of audits on the management of the arrangements in Dorset and have been involved at the regional level. During the last year my status as a contributor to one of the eight pilot Lay Member schemes in the country has changed and I have been re-appointed under the now national arrangements. Board meetings I have found the SMB meetings to be professional, focused and expertly chaired. Actions required are clearly defined and their deadlines enforced. There is a continuity of strategic development from meeting to meeting. My input includes the presentation of audits and also queries that require clarification of procedures or terminology, the occasional challenge or simply suggestions based on my non-public protection experiences. Audits In the last year I have carried out a series of audits. I agree the nature of the audit with the SMB and MAPPA co-ordinator, but then lead the audit myself with the support of the co-ordinator and other staff as required. As the audit proceeds I determine the questions asked, examine documentary evidence relating to the management of cases and decide the route the audit takes. I have carried out audits on the Probation files, the MAPPA Register, a detailed review of a single case, and a review of all Level 2 and Level 3 cases to determine the correct level of management is being applied. A series of minor observations requiring minor actions were recorded but no major nonconformity was found. All audit reports are presented to the SMB. Such audits perform a review of some of the aspects of statistics presented elsewhere in the Annual Report, and thus add confidence in the statistics. It should be noted that some statistics, in particular Registered Sex Offenders, are expected to increase as more offenders are placed on the Register adding to the existing Register population. Regional I attend meetings of the Regional MAPPA Steering Group and I attended a Regional MAPPA Seminar. The development of a regional approach to MAPPA may be considered appropriate in some strategic areas. Examples of subjects where a cross-area co-ordinated approach may be beneficial are: • Agreeing protocols on information sharing and disclosure. • Agreeing assessment processes, definitions and thresholds. 8

• Implementation of the National Sex Offender Strategy. • Public protection training. • Etc Lessons learned from high profile cases in other parts of the country have, of course, local, regional and national impacts. Second Lay Adviser Since my last report I have been involved in publicizing the Lay Adviser role in preparation for the recruitment of a second Lay Adviser to the Dorset SMB. I am pleased to report that a second Lay Adviser has been appointed who is attending the SMB and undergoing training. I look forward to her unique and valuable contribution to the work of the Board and to the public protection of the people.


Strategic Management Board

The Strategic Management Board (SMB) includes representation at a senior level from all Dorset agencies. (Appendix 5) and is fortunate to have been one of the pilot areas for the Lay Advisor scheme which ensures public representation on the Board to give a valuable independent view. One person from each agency sits on the SMB and brings issues for discussion. The minutes and agenda are subsequently e-mailed to all “MAPPA leads” represented who can in turn provide agenda items or issues for the Board to consider. The SMB: • • • • • • • • • develops and agrees 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; works in conjunction with the Dorset, Bournemouth, and Poole Area Child Protection Committees, the countywide Adult Protection Committee, the Mentally Disordered Offenders Strategy Group, and Housing strategy groups; 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; helps to improve the quality of public protection work and of inter-agency working through specifying needs for inter-agency training and development, and ensuring that training is delivered; audits and evaluates how well local services work together to protect the public; receives and acts on Audit feedback as necessary; determines community and media communication.



All Agency Leads receive e-mailed minutes


7. Focus on Victims In addition to all this work to tackle offenders, the Government has rightly placed much greater emphasis upon meeting the needs of victims. The victims of sexual offending are identified as a priority group within the National Victims and Witnesses Strategy. • • • reducing the adverse effects of crime on victims and witnesses, and preventing secondary victimisation; encouraging more victims and witnesses to come forward; offering more options to victims and witnesses, including alternatives to attendance at court.

Victims Work The National Probation Service, Dorset, contacts victims of violent and sexual offenders sentenced to 12 months custody or more. The Probation Victim Liaison Unit Dorset provides a countywide service. Victims are asked if they wish to be consulted about the release arrangements for the offender. Approaches to victims are made in a manner that respects their wishes to be involved in the conduct of the case. Victims are offered information about the sentence, the prison system, and general public protection strategies. Victims are invited to contribute to a discussion about the licence conditions that will ensure their future safety. This information is passed to the Probation Officer responsible for preparing the offender’s parole or pre-release report. Victims are also asked to specify the degree to which they wish to be kept informed about stages in the offender’s sentence. The Victim Liaison Officer is a permanent invitee to the MAPPPs For details of Victim Services in Dorset, please see Appendix 3



STATISTICAL INFORMATION 1st APRIL 2004 – 31st MARCH 2005 1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i) The number of RSOs living in Dorset (a) The number of RSOs 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. The number of: a. Sexual Offences Prevention Orders (SOPOs) applied for b. Interim SOPOs granted c. Full SOPOs imposed by the courts in Dorset 352 50



1 1 1

iv) The number of: (a) Notification Orders applied for (b) Interim Notification Orders granted (c) Full Notification Orders imposed by the courts in Dorset v) The number of Foreign Travel Orders: (a) applied for (b) imposed by the courts in Dorset

0 0 0 0 0

2. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V & OS) i) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in Dorset


3. Category 3 MAPPA offenders: Other Offenders (OthO) i) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)). 5


4. Offenders managed through Level 3 & Level 2 MAPPPs i) Number of RSOs, V & O and OthO managed through the MAPPP. Level 3 21 18 8 Level 2 49 36 6



Of the cases managed at levels 3 or 2 the number who: -

(a) Were returned to custody for a breach of licence. (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order. (c) Were charged with a serious sexual or violent offence.

a b c

Level 3 4 0 1

Level 2 9 0 1





Assistant Chief Officer (Public Protection)

Wadham House 50 High West Street DORCHESTER DT1 1UT

01305 224786


Detective Chief Inspector, HQ CID Support (MAPPA Co-ordinator)

Dorset Police Force Headquarters Winfrith DORCHESTER DT2 8DZ

01305 223878

Probation/Police MAPPA Secretary

Dorset Police 01202 228055 Sex Offenders Investigation Unit Bournemouth Divisional Headquarters Madeira Road Bournemouth Dorset Police 01202 222161 Sex Offenders Investigation Unit Bournemouth Divisional Headquarters Madeira Road Bournemouth

Police MAPPA researcher


Dorset Prisons: Governor, HMP The Verne

HM Prison The Verne Portland DT5 1EQ

01305 825000


APPENDIX 3 VICTIM SUPPORT SERVICES IN DORSET Victim Supportline Tel: 0845 30 30 900 Victim Support Dorset Barnack Chambers, 9-9A West Street, Blandford, Dorset DT11 7AW Tel/Fax: 01258-453100. Supports victims, witnesses and family members who have experienced crime. SAMM South Christine and Ron Tel/Fax: 01305-787869. Offers support after murder, manslaughter, or unlawful killing. Rape Crisis Line Tel: 01202-547445. 24 hour answerphone line offering confidential support to woman and girls who have been raped or sexually abused. Dorset Women’s Outreach Project Tel: 01305-768999. Confidential service for women and families with experience of domestic violence in West Dorset. Poole Domestic Violence Project Tel: 01202-710777. Confidential service for women and families. Bournemouth Women’s Helpline Tel: 01202-547755. Confidential 24hour Helpline with refuge and outreach facilities for women and families. Police Domestic Violence Co-ordinator Tel: 01202-222451 Police Domestic Violence Units: Bournemouth Division 01202-222374 Eastern Division 01202-226253

Poole Division 01202-227835 Western Division 01305-226547

Dorset County Council: Policy Officer for Child Protection County Hall, Dorchester DT1 1XJ Tel: 01305-224643 Borough of Poole: Children and Families 14A Commercial Road, Poole, BH14 0JW Tel:01202-735046 Borough of Bournemouth: Children’s Services New Century House, 24 Christchurch Road, Bournemouth, BH1 3NL Tel: 01202 458000 StoP – Supports mothers of children who have been sexually abused PO Box 4493, Boscombe, Bournemouth, BH1 4YZ Tel: 01202 773667 (24 hour answerphone, answered Monday and Tuesday 10.30-12.30) 15