MAPPA Annual Report 2004

Foreword 1. 2. 3. 4. 5. 6. 7. 8. Introduction Local Organisation Local Case Examples Analysis of Local Statistical Information Lay Advisor Report Strategic Management Board Focus on Victims The Future

Appendices 1 2 3 4 5 6 7 Roles and Responsibilities of Agencies Identification of MAPPA Offenders Operational Arrangements and Management of MAPPA Local MAPPA Statistics Strategic Management Board Membership Victim Support Services in Dorset Police/Probation/Prison Contacts



Are we making a difference? Are members of the general public in Dorset better protected against serious violent and sexual offenders than they were a year ago? The information available to members of the public is often drawn from the high profile serious cases in the media. This year it has been the Soham trial and the debate subsequently concerning the transfer of information about an offender’s criminal history both factual and intelligence based between different agencies. The purpose of this Annual Report is to tell you what is being done in Dorset. Every year many serious offenders are considered as part of the Multi Agency Public Protection Arrangements. Robust plans are put in place to prevent an offender causing further harm either to their victims or to other members of the public. Within these pages you will find various examples of how these measures have helped to contain the more dangerous violent and sexual offenders in the community. The Police and Probation Services have been working together as the Responsible Authority for MAPPA for almost 3 years. The Prison Service now joins us as a third responsible authority, with statutory obligation to work in partnership to reduce the risk of harm to the public. There are further plans in place to create a new National Offender Management Service, which will consolidate PrisonProbation working and ensure a seamless transfer of responsibility when a prisoner comes through the prison gate back into the community. This report gives both of us the chance to thank our other partners in the community, most of them mentioned in this report, who have contributed willingly over the year to increasing public safety. It is also a good opportunity to recognise the work of all staff, who are committed to conscientiously carrying out their responsibilities for supervising high risk offenders. This is not a publicity document for the Police and Probation Services. It is intended to provide genuine reassurance and information to members of the public. The Lay Advisor within Dorset who sits on the Strategic Management Board independently verifies it. Please read his views as expressed in this report. I hope you will draw your own positive conclusions that we are making a difference and Dorset a safer place.

Barrie Crook Chief Officer National Probation Service - Dorset 2

Adrian Whiting Assistant Chief Constable Dorset Police

1. Introduction
It is the Responsible Authority that make 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. Police, Probation, Health, Housing, and Social Services have agreed multi-agency protocols for the assessment and management of sex, violent, and other offenders. (Roles and Responsibilities of Agencies. Appendix 1). 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. (Appendix 2).


Local Organisation

(Operational arrangements and management of MAPPPs and RAMPs Appendix 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. Risk Assessment Management Panels (RAMPs) 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 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 is based at Bournemouth Police station with the co-located Police and Probation Sex Offender teams. The MAPPA secretary attends all of the panels which are currently diaried for 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 MAPPP or RAMP. 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 7) 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.


Local Case Examples

Case One A very dangerous violent sex offender was due for release and a placement in Dorset was requested. There were concerns to known victims in the area where he used to live. The following risk management plan was agreed and put into place at a local MAPPP following the owning area MAPPP. • • • • • • • • • • • • • • • • • • Three month placement within Dorset; Owning area retains long term ownership and prepares a new risk management plan; Prison release licence to impose strict conditions; Must live and reside where directed by Probation staff; Not to return to home area; Victims notified of release, relevant dates, and MAPPA plan; Local hostel conditions contract must be agreed and signed; Agreement not to form any inappropriate relationship; No contact with children; Recall warrant in place to make recall more efficient in the event of a breach of licence; Delivered and returned under escort of owning area; Double escorted supervision away from hostel; To be allowed out of the hostel alone for one hour per day after the first month, following compliance; To be allowed out of the hostel alone for two hours per day in the third month, following compliance; Police intelligence record updated, maintained, and circulated to relevant areas; Curfews and tagging monitoring; Hostel staff to be briefed and extra staff to be obtained and paid for by the Public Protection Unit; Health issues considered. 4

All of these planned actions aimed at reducing the risk of harm to the public of Dorset and assist the offender’s integration back into society. The above plan was adhered to and the offender returned to the owning area safely. This type of case forms the majority of Dorset’s MAPPP cases and has to date been successful. Case Two A young offender was identified by the Police, Probation Service, Prison Service, and Mental Health Services as being a very high risk to several known previous victims and the general public due to his offending history and information gained by several agencies before his release. The MAPPP was convened several months before his release and a risk management plan formulated that included: • • • • • • • • • • The timing of his release; Monitoring of his release by the Police; 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 at particular addresses; One to one supervision at the hostel; Strict Prison release Licence conditions; Hostel conditions; Obtaining a recall warrant prior to his release to enable a swift recall in the case of failure.

Health Services agreed that they would commence a treatment programme for health issues following six weeks of successful placement. Within 12 hours of arrival he had broken several hostel rules and licence conditions, was arrested, and returned to prison. Subsequently a similar process and model took place, which resulted in a placement of two weeks before he was recalled to prison for breach of licence and hostel conditions. During this time the Prison and Probation Services were working hard to find a placement on a suitable programme. A suitable programme was found, not in the Dorset area, which involved a lot of negotiations and interviews. He was released two days early from his prison sentence to enable the placement to take place and was taken to the location by the Prison Service. When he absconded on the second day, his details were circulated and he was subsequently caught driving whilst disqualified and was arrested and charged. He is currently in prison. The MAPPA still own the case and will have to find a release plan that will work long term and reduce the risk the offender poses; the plan already includes a programme of work that is ongoing in prison with Prison, Probation, and Health staff.


Case Three A woman who was in prison was subject to MAPPP meetings as a result of being identified by Health Services and Social Services as posing a very high risk of danger to herself, children, the public, and Health Service staff. It was clearly identified that the main times that she caused concern was when she was homeless. She had stayed at numerous homes, but due to her behaviour had had to leave, and it was then that problems had occurred. The main task therefore was to find suitable housing. A local housing association assisted and attended the meeting to hear the difficulties and requirements. Accommodation was agreed and vetted (to ensure it was not near children, play areas etc), and a risk management plan formulated that included informing local health services and in particular the Accident and Emergency department at local hospitals that she was due for release and the dates. It was successful for several months until one day she returned to the home having consumed alcohol; this was forbidden by the accommodation rules and she was refused entry. She left and immediately committed a minor offence and was arrested. The accommodation was no longer available and therefore temporary accommodation was found and vetted. Permanent accommodation was subsequently arranged at the next MAPPP meeting and she is still living there. Case Four An offender moved to Dorset from another area to be with his wife and children who had moved to Dorset whilst he was in prison. The placing Probation area had identified him as posing a very high risk to his wife and children and Police Officers. The move came to the notice of the Dorset MAPPA six days after the offender had arrived following a mental health assessment which revealed that arguments were occurring between the offender and his wife. There is a host of research evidence that shows that these situations can lead to serious offences being committed. The placing area were made aware and emergency arrangements were made for the offender to be removed from the home that day. This involved a lot of negotiation between both areas and involved Police, Probation (both local and owning areas) and Health Services. The offender was removed from the family home at 10.00 pm. An emergency MAPPP was held in the placement area a few days later and was attended by Dorset agencies including, Police, Probation and Social Services, as well as the owning area’s agencies. A risk management plan was made to reduce the risk, facilitate long term integration into the community, and allow him to return to live with his wife. The case included Police, Probation, Health, and Social Service involvement at a much higher level and on a more frequent basis than would have been necessary in a non MAPPA case in order to reduce the risk of harm to all concerned. The children’s names were placed on the “At Risk” Register and home visits were supervised. The offender is now with his wife and children and subject to RAMP meetings and will hopefully be deregistered soon. Case Five


A registered sex offender living in a campervan in the Dorset area was the subject of several MAPPP meetings. He was considered to be at high risk of re-offending due to his convictions, and a very high risk offender due to his ability to move and his resistance to his Sex Offender Registration. Static living accommodation was one of the first priorities which, due to his previous offending and convictions and his resistance to be involved, proved difficult. Eventually through multi-agency working a permanent site was found for the winter months where access to children was limited. He continued to resist Sex Offender treatments and interventions agreed at the MAPPP and continued to cause concern regarding his movements and through contacts he was making. He would disappear for days at a time, but this did not contravene his registration obligations. He was subject to Police monitoring and increased supervision as a result of intelligence received that he was involved in setting up a paedophile network. Due to monitoring, both locally and out of county, sufficient information was gathered to obtain a Sex Offender order. This required the offender to notify the Police every time he was going to leave the county of Dorset. He did notify the Police on several occasions, but intelligence and monitoring proved this was not the case on every occasion. A file of evidence was prepared and the offender interviewed and charged with several offences regarding breaches of both the Sex Offender registration obligations and the Sex Offender order. At his court appearance he received a two and half year prison sentence which he is currently serving. It was the combined work of all of the agencies, both locally and outside of Dorset, that first tried to work with the offender and secondly ensured appropriate action was taken when required.

4. Analysis of Local Statistical Information
This section aims to put the statistical information (Appendix 4) into some context, whilst at the same time making comparisons with the information given in 2003. There have been some changes to the way in which the information is compiled which makes a direct comparison difficult in some sections. Comment is made below about any significant changes. Section 1 (i) The number of RSOs (Registered Sex Offenders) has risen from 273 in 2003 to 333 in 2004. There are two factors which have caused this:• there has been an increase in convictions for sex offences due to the concentration on internet offending; • as sex offenders remain on the register for long periods there will be additions to it, but no significant removals from it. It is expected that with the Sexual Offences Act 2003 implementation, there will be further increases in convictions next year. Dorset has been able to monitor the flow of sex offenders in and out of the county and there is no increase in numbers due to that effect.



The number of Sex Offender Orders (SOR) applied for and granted has increased from 0 to 3. This relatively new provision is only used for those sex offenders for whom the restrictions of the SOR will help manage any risk they may pose. The low level of usage indicates the relative effectiveness of managing risk without resorting to those measures, whilst prosecuting the more clear cut incidents.

Section 2 The number of violent and sex offenders in the community on 31st March 2004 categorised under these arrangements was 103. This appears to be a large reduction on the figure of 340 in 2003; however, the 2003 figure also included those offenders with Dorset home addresses of that category who were still in custody. Better comparisons will be possible next year. Section 3 There is a fall in the number of ‘other’ offenders who were dealt with under these arrangements (from 39 to 32). It is too early to say whether this is a long term trend, but there is likely to be an effect that professionals are being clearer about those offenders who should come under these arrangements. Section 4 There has been an increase in the number of offenders dealt with by a Level 3 MAPPP – from 33 to 37. This may be because there have been more high risk offenders to consider, or it may be due to a clearer understanding of the type of case that needs to be dealt with at this level. Only 2 were returned to custody for breach of their requirements or further offences. This compares to a figure of 19 in the previous year. Whilst such a large variation may suggest some caution in making comparisons, it does reflect that the plans for managing the risk of those offenders has been effective. None of these cases has resulted in a serious offence conviction.


Lay Advisor Report

This is my second annual report as the Lay Advisor of the Dorset MAPPA Strategic Management Board (SMB). I have attended all the SMB meetings, a Panel meeting, have conducted an audit and have attended a training weekend.

Training Weekend I attended a training weekend at Birmingham University during November 2003. The weekend reviewed progress of the Lay Advisors role and identified issues and concerns raised. Training 8

sessions were held on the Sexual Offences Bill, victims and the role of statutory agencies, Victim Support and child victims. An evaluation of the eight pilot areas and the (then) anticipated national roll out of Lay Advisors following the provisions of the Criminal Justice Bill was conducted. A report on the weekend was presented to the SMB. Audit I have, with Senior Police and Probation staff, carried out my first audit on the case files in the Police Sex Offenders Investigation Unit. The purpose was two-fold; firstly to audit the efficiency of the system of managing cases, and secondly to test the effectiveness of new audit documentation. No serious non-conformity was found during the audit; however I believe a case for more substantiating cross-agency audits of individual cases has been established. This will support the Board’s review function to consider successful and unsuccessful outcomes in order to identify and disseminate good practice. The audit report was presented to the SMB. A further audit concentrating on Probation files is scheduled for May 2004. The suggestion for multi-agency auditing was accepted at the last SMB meeting. MAPP Panel I attended a MAPPP meeting in a passive capacity to observe some of the operational aspects of MAPPA. The decisions made were clear and time scales set for resulting actions. The professionalism and commitment of the staff from the various agencies contributing was credit worthy. The issue of accommodation, including the sub issue of suitability, was an important factor in several cases. Dorset has, of course, a number of housing authorities and associations working within its border adding to the complexity of housing issues. National Roll Out of Lay Advisors The National Roll out of two Lay Advisors to each of the forty-two MAPPA Responsible Authorities in England and Wales came into effect on 5 April 2004. Dorset is one of eight pilot areas in the country where Lay Advisors have already been appointed to the MAPPA SMB. The evaluation of the pilot areas including feed back from the Lay Advisors has provided the framework for the national roll out of the Lay Advisors. As I am the single Lay Advisor in Dorset at present, the SMB is scheduled to start the recruitment process for another advisor in November 2004 with induction scheduled for February 2005. The second year of my Lay Membership of the SMB has been a period of embedment in the management process without compromising my laity. The disinterested, but not uninterested views and opinions I offer and questions I pose are treated as an integral part of the Board’s proceedings, fulfilling, I trust, the role that has been described as a ‘critical friend’.

6. 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. 9

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 is currently preparing a three-year business plan and has met four times this year. The SMB also: • • • • • • • • • 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.

7. Focus on Victims (Victim contacts: Appendix 6)
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. This strategy, which was published in July 2003, aims to improve support and protection for victims and witnesses by: • • • 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.

These initiatives will help towards another key Government target, that of improving public confidence in the criminal justice system.


The Future

Strengthening the MAPPA


The national development of the MAPPA has concentrated on preparing to implement the MAPPA provisions of the Criminal Justice Act (2003). These provisions came into force on 5th April 2004 and help strengthen the MAPPA by: (i) (ii) making the Prison Service part of the ‘Responsible Authority’ with Police and Probation; formalising the involvement of other agencies which can make an important contribution to helping offenders not to reoffend. The Act imposes a ‘Duty to Co-operate’ with the Responsible Authority MAPPA upon: • • • • • • (iii) Local Authority Housing, Education, and Social Services; Health Service bodies; Jobcentres Plus; Youth Offending Teams; Registered Social Landlords which accommodate MAPPA offenders; Electronic Monitoring providers.

the appointment by the Home Secretary of two members of the public (‘Lay Advisors’) in each Area; this assists in monitoring the effectiveness of the MAPPA. Dorset currently has one Lay Advisor and will advertise for a second. working on the duty to co-operate; this has been taken forward by two separate and complementary initiatives. First, the duty to co-operate formalises what has already been established in our area as good practice. The statutory basis of the duty will help ensure a more consistent engagement of all these agencies across England and Wales. Secondly, the relevant Central Government Departments and the Welsh Assembly have been involved in developing the Guidance which the Home Secretary issued on the duty to co-operate.


The reform of the way in which child protection is organised, following the public inquiry into the tragic death of Victoria Climbiė, will reinforce the importance of effective joint working between different agencies which the MAPPA has itself promoted. Other legislative measures In addition to this work to strengthen the MAPPA, the Government has also begun to strengthen other statutory provisions, the most significant of which is the Sexual Offences Act (2003). Measures to introduce new sentences for ‘dangerous’ offenders which will keep them in custody until they no longer pose a serious risk to the public are also in place. The Sexual Offences Act 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. It introduces new offences of ‘sexual grooming’ and extends the protection from exploitation in prostitution or pornography to children up to the age of 18. For the first time, it will be an offence to buy sexual services from a child below this age, targeting those who abuse children in this way. 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, and introduces new civil orders to help prevent further offences from being committed.




DORSET POLICE The protection of life and property is a fundamental aim and purpose of the Police Service. Dorset Police are committed to improving the quality of life in the county and making the community safer by targeting and reducing crime, disorder, and anti-social behaviour in partnership with Dorset County Council, Bournemouth and Poole Unitary Authorities, and other agencies. This includes identifying dangerous and high risk offenders, sharing information with other agencies, and taking joint decisions as to any subsequent actions. The Sex Offender Act 1997 places a responsibility on the Police Service to work with other agencies in carrying out risk assessments in relation to offenders required to comply with the Act and manage that risk on a multi-agency basis. Divisional Detective Inspectors together with the local Senior Probation Officer arrange and chair RAMPs that involve violent and other offenders living within that division. The Detective Sergeant of the Sex Offenders Investigation Unit together with the Senior Probation Officer of the Probation Sex Offender team arrange and chair RAMPs that involve sex offenders living within Dorset. The Detective Chief Inspector, MAPPA-Co-ordinator together with the Assistant Chief Officer, Probation, arranges and chairs MAPPPs in relation to violent, sexual, and other offenders countywide. The Sex Offenders Investigation Unit provides the management, registration, and monitoring of all sex offenders within the county. PROBATION The National Probation Service, Dorset, is a law enforcement agency. It delivers community punishments, supervises and works with offenders to enable them to reduce their re-offending, and protects the public. The Service works in collaboration with Police and Prison colleagues, as well as the Crown Prosecution Service, Courts, Local Authorities, Health, Education, Housing, and a wide range of independent and voluntary sector partners. The National Probation Service, Dorset, carries out its statutory responsibilities towards the victims of the most serious violent, including sexually violent, crimes. Staff with responsibility for the supervision of sex, violent, and other offenders attend the relevant area MAPPPs and RAMPs together with their line managers. A senior manager acts as a core panel member at all meetings of the area MAPPP.


SOCIAL SERVICES DEPARTMENTS The duties and responsibilities of Social Services Departments include services to vulnerable groups, both adults and children. This applies to children in need and their families, older people, disabled people, and those with mental health needs. The services promote safety and welfare which balance the needs and wishes of individuals with the safety of the wider community. Through the Area Child Protection Committees and the Adult Protection Committee there is a commitment to work together with all agencies in the management of risk and the protection of the public. Social Services Departments receive notifications on adults and young people convicted of offences against children. A response is made to ensure any child protection issues are considered. There is consultation with Police, Probation, Youth Offending Teams, and any other agency relevant to the circumstances. When potential risk to a specific child is identified, a child protection conference is required unless the risk is immediately alleviated by the intervention of Social Services and it is evident that there is no continuing risk. Social Services have a specific role when: • • A child who is looked after by the Authority is convicted of an offence under the Sex Offenders Act 1997. A sex offender is subject to detention in hospital or a guardianship order under the Mental Health Act 1983 following conviction or cautioning for relevant offences.

YOUTH OFFENDING TEAMS Youth Offending Teams are responsible for all young offenders aged 10 to 17. They prepare reports and attend MAPPPs and RAMPs involving young offenders. MENTAL HEALTH SERVICES The Dorset Forensic Team, represented by the Forensic Psychiatrist and psychologists, attend all MAPPPs. There is no requirement for the offender to have had a history of contact with psychiatric services. A member of the Dorset Forensic Team attends RAMPs on patients who are currently under the caseload of the Dorset Forensic Team. A member of the Dorset Forensic Team also attends RAMPs on individuals who are currently not engaged with the Mental Health Services but have been assessed by the Dorset Forensic Team within the last year. Part of their role is to recommend and facilitate psychiatric intervention. PRISON SERVICE The role of the Prison Service is to give appropriate notice of home visits and release dates to enable MAPPP and RAMP procedures to be considered. The Prison Service also attend MAPPP and RAMP meetings prior to the release of a prisoner in appropriate cases and ensure that appropriate treatment is offered whilst the person is in custody.


EDUCATION Educational establishments have a direct interest and involvement if a convicted offender is: • • • A young person who is a pupil or student; or Known to have connections with a school; or Living near a school or loitering in the vicinity of a school.

The Education representative will consider the implications and will arrange and advise the person who attends the MAPPP or RAMP. HOUSING Housing Authorities and Associations have a role in connection with: • • Housing applicants/tenants who have been/are convicted of sex offences or other dangerous offences; Housing applicants/tenants who live in proximity to a person convicted of a sex offence or other dangerous offence.

In reaching decisions about the type and location of accommodation the following is considered: • • Location of any victims of the sex/violent offender; The nature of the offences committed and the offending pattern.

NSPCC The NSPCC in partnership with Poole and Dorset Social Services and the National Probation Service, Dorset provides an assessment, intervention, and treatment programme for both convicted and unconvicted sex offenders within the County. Offenders will be engaged in the accredited Thames Valley Sex Offender Treatment Programme if they meet the criteria. The NSPCC liaises with the Police and Probation Services, Youth Offending Teams, and other relevant agencies, providing assessment reports as necessary. If it comes to the attention of the NSPCC during the course of intervention that there may be a risk to a child, liaison immediately takes place with the relevant agencies.



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 Part I of the Sex Offender Act 1997 defines registered sex offenders as those offenders who have been convicted or cautioned since September 1997 of certain sexual offences, or who at that point were serving a sentence for a like offence. As a result of the registration requirement the identification of Category 1 offenders is primarily the responsibility of the Police. However the Probation Service hold the most comprehensive information on those offenders, and Probation Service staff liaise with the Police regarding assessment and management issues. Category 2: Violent and other Sex Offenders A person is a relevant sexual or violent offender if s/he falls within one or more of the following categories: • s/he is convicted by a Court in England or Wales of a sexual or violent offence (within the meaning of the Powers of Criminal Courts (Sentencing) Act 2000), (Appendix C), and one of the following sentences is imposed: • a term of imprisonment of 12 months or more; • detention in a Young Offender Institution for a term of 12 months or more; • detention during Her Majesty’s pleasure; • detention for a period of 12 months or more under section 91 of the Powers of Criminal Courts (Sentencing) Act 2000 (offenders under 18 convicted of certain serious offences) ; • detention and training order for a term of 12 months or more; • a hospital or guardianship order within the meaning of the Mental Health Act 1983. s/he is found not guilty of a sexual or violent offence by reason of insanity or a disability. However s/he is considered to have done the act charged against him/her and one of the following orders is made in respect of the act: • an order that s/he be admitted to hospital; • a guardianship order within the meaning of the Mental Health Act 1983.

“Court” does not include a court-martial or the Court-Martial Appeal Court. Whilst these offences do not attract any requirement to register with Police, all offenders will be under the statutory supervision of the Probation Service, with the exception of a small number of offenders sentenced prior to the Criminal Justice Act 1991. The Probation Service therefore have primary responsibility for identifying Category 2 offenders. 16

Category 3: Other Offenders This category comprises 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 determined by the judgement of the Responsible Authority rather than automatically by the sentence or other disposal imposed by the court. There are two criteria. First, it must be established that the person has a conviction for an offence, which indicates that s/he is capable of causing serious harm to the public. The offence may have been committed anywhere, which means offenders convicted of a similar offence abroad fall within the MAPPA remit. Secondly, the Responsible Authority must reasonably consider that the offender may cause serious harm to the public. The responsibility for identifying a Category 3 offender lies with the agency that initially deals with the offender. Agencies that operate a Care Programme Approach (CPA) consider and risk assess in that system first. Other agencies or individuals concerned about people posing a risk of serious harm raise those concerns with the DCI, MAPPA Co-ordinator, who can determine which individuals may pose a risk and whether they have any relevant criminal history. Category 1 or Category 2 offenders who still pose a high risk of serious harm to the public at the end of registration/end of statutory supervision (which ever is the longer) cannot continue under those categories; however, it is possible for the Responsible Authority to consider their inclusion under Category 3. 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 can take place using the MAPPA principles of co-operation to reduce the risk of harm.



There is an integrated system of mechanisms and structures throughout Dorset aimed at assessing the risks posed by sex, violent, or other offenders. This involves all relevant agencies sharing information and working closely together in order to protect the public. There are three separate but connected levels at which risk is assessed and managed in Dorset: • • • Level 1: Level 2: Level 3: Single agency risk management. RAMP - local inter-agency Risk Assessment Management Panels. MAPPP – Multi-Agency Public Protection Panels.

This structure of risk management is intended to enable resources to be deployed to manage identified risk in the most efficient and effective manner. The levels of risk management do not necessarily equate directly to levels of risk although generally the higher the assessed level of risk, the higher the level of management required. The level at which a case is managed is dependent upon the nature of the risk and how it can be managed – not all high risk will need to be managed by the MAPPP and the complexities of managing a medium risk might justify MAPPP referral. Level 1: Single agency risk management Level 1 risk management is the level used in cases in which the risks posed by the offender can be managed by one agency without actively or significantly involving other agencies. Level 1 can only be used for Category 1 (registered sex offenders) or Category 2 (violent and other sexual offenders) offenders because by definition Category 3 offenders present a risk of serious harm which requires active, inter-agency management. Level 1 management will primarily involve Probation, Police, Youth Offending Teams or the Prison Service as the lead agency. Generally, offenders managed at Level 1 will be assessed as presenting a low or medium risk; the large proportion of all MAPPA offenders are likely to be managed at this Level. Level 2: RAMP - local inter-agency risk management Level 2 risk management is the level used where the active involvement of more than one agency is required but where either the level of risk or the complexity of managing the risk is not so great as to require referral to the Level 3, the MAPPP. Cases may be referred to Level 2 after having been managed by referral to the MAPPP when, for example, the seriousness of risk has diminished or where the complexity of the multi-agency management of the risks have been brokered and firmly established by the MAPPP. Just as risk can and will change, so the means of managing risk can and will change.


An offender meets the necessary criteria for a RAMP as follows: If they are assessed under OASys, Risk Matrix 2000, or other accredited risk assessment tool as being a high or very high risk of causing serious harm AND If active multi-agency management of risk is required (in addition to Police and Probation) Management of the RAMP The Senior Probation Officer and Detective Inspector of the local area will determine who will be panel members. Other agencies may be invited on the basis of current involvement or the need for likely involvement. Staff directly involved in the case and their immediate line managers are required to attend, as well as the Victim Liaison Officer, if appropriate. Attendees are required to provide a written summary and submit key information and/or documents to the Chair on the day of the Panel Meeting. The documents are photocopied and then distributed with the minutes. A RAMP that concludes that a person meets the criteria for a MAPPP must be referred to a MAPPP. Level 3: MAPPP - Multi Agency Public Protection Panel The MAPPP is responsible for the management of the ‘critical few’. An offender meets the necessary criteria for a MAPPP as follows: If they are assessed under OASys, Risk Matrix 2000, or other accredited risk assessment tool as being a high or very high risk of causing serious harm AND if they present risks that can only be managed by a plan which requires close multi-agency (in addition to Police/Probation) co-operation at a senior level due to the complexity of the case and/or because of the unusual resource commitments it requires OR although not assessed as a high or very high risk, if the case is exceptional because the likelihood of media scrutiny and/or public interest in the management of the case is very high and there is a need to ensure that public confidence in the criminal justice system is sustained.


Thus although the ‘critical few’ are not exclusively those assessed as high or very high risk, in almost all cases they are. Also, while most will be offenders being released from prison, they may also include: • an offender on discharge from detention under a hospital order; • an offender returning from overseas (whether immediately following their release from custody or not); and, conceivably • an offender who having been managed as a medium or even a low risk in the community through referral to the second or third level MAPPA meeting, comes to present a high or very high risk as the result of a significant change of circumstances. Management of the MAPPP The Assistant Chief Officer (Probation) and Chief Detective Inspector agree arrangements for convening a MAPPP, chair the MAPPP, and determine who the panel members should be. Other agencies may be invited on the basis of current involvement or the need for likely involvement. Staff directly involved in the case and their immediate line managers are required to attend, as well as the Victim Liaison Officer, if appropriate. Attendees are required to provide a written summary and submit key information and/or documents to the Chair on the day of the Panel Meeting. The documents are photocopied and then distributed with the minutes. Panels: Single Agency, MAPPP and RAMP Each panel: • • Decides on the level of risk posed by the offender; Agrees the action necessary to manage the risk including any contingencies. Risk Management plans will include, for example, measures to monitor behaviour, sometimes involving Police surveillance, as well as the provision of resources. They will also include the allocation of a place at a Probation hostel and the provision of appropriate services and methods of intervention (psychiatric assessments, sex offender treatment programmes etc) aimed at helping offenders work with the relevant agencies to reduce the risks they pose to others; Considers the need for community disclosure and other community issues; Agrees a media strategy where appropriate; Determines if the case should be placed on the Dorset Police/Probation Service, (Dorset), Very Dangerous Offender Register.

• • •


Criteria for Leaving MAPPA (Deregistration) It is important to identify when an offender is no longer part of the MAPPA. The criteria for leaving MAPPA are different for each of the three categories of offenders. For Category 1 offenders it is the point at which the offender completes their registration requirement as determined by the Sex Offender Act 1997. For Category 2 offenders it is at the point of licence expiry. For Category 3 offenders it will be at a point, determined by the Responsible Authority, where the offender is considered no longer to pose a risk of serious harm that requires management either by the MAPPP or Level 2 local RAMP. Transferring MAPPA cases The transferring area, either from Dorset or to Dorset, must formally agree, via the MAPPA coordinator, the transfer of all the relevant information. The transfer of cases involves more than the transfer of files and papers. The effective transfer requires that the salient features of each case’s risk assessment and risk management plan are clearly communicated in good time – unless unexpected contingencies have arisen which prevent the timely hand-over arrangements. Generally, the receiving area should be given time to consider the case. In cases that have been managed by reference to the MAPPP it is practice to convene a MAPPP with the receiving area so that the case can be formally transferred using the MAPPA framework. Cases registered by the MAPPA are reviewed taking into account the case circumstances but within a maximum period of three months. Public Protection Unit Dorset is one of a few areas that have funded Public Protection Unit (PPU) beds. The system is commenced when an area has a very dangerous violent or sex offender that cannot be returned to the home area. This can be due to victim issues, last minute accommodation issues etc. The funded bed placements are for an interim period of three months until other suitable permanent placements can be found. A MAPPP is convened in the owning area (area in which offences occurred) in order to identify all known risks, and a MAPPP is convened in the receiving area where representatives of the owning area attend. Both MAPPP meetings take place prior to release. Dorset does not accept Predatory Sex Offenders in PPU beds.

Victims Work 21

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. It has been decided that the Victim Liaison Officer should be a member of the MAPPPs and RAMPs to ensure that the views and concerns of victims are represented. That information is then taken into account in developing the risk management strategy for the offender. Staff in the Unit ensure that victims have been offered appropriate help to recover from the offence and, where necessary, assist individuals to obtain services such as criminal injuries compensation, counselling, or protection in the home. Victim Support is the national charity for people affected by crime. It is an independent organisation, offering a free and confidential service, whether or not a crime has been reported. Trained staff and volunteers at local branches offer information and support to victims, witnesses, their families, and friends. Victim Support provides the Witness Service, based in every criminal court in England and Wales, to offer assistance before, during, and after a trial. You can also call the Victim Supportline for information and support and details of local services and other relevant organisations. The contact numbers for local victim support services are provided at Appendix B. The Government is underpinning this work in its Domestic Violence, Crime and Victims Bill which is currently going through Parliament. It will create a new independent post of Commissioner for Victims and Witnesses to be a champion/voice for all victims of crime and a new statutory Victims’ Code of Practice (to be implemented in April 2005) which will build on the existing Victims’ Charter and set out specific responsibilities that each criminal justice service agency and Victim Support must provide to victims.


1. Category 1 MAPPA offenders: Registered Sex Offenders (RSOs) i. The number of RSOs living in Dorset on 31st March 2004 ii. The number of RSOs per 100,000 head of population iii. The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2003 and 31st March 2004 iv. The number of full Sex Offender Orders (a) applied for (a) and (b) imposed by the courts in Dorset between 1st April (b) 2003 and 31st March 2004 v. The number of interim Sex Offender Orders (a) applied for (a) and (b) imposed by the courts in Dorset between 1st April (b) 2003 and 31st March 2004 333 48 5

3 3 0 0

2. Category 2: violent offenders and other sexual offenders i. The number of violent and other sexual offenders (as defined by Section 68 (3), (4) and (5) of the Criminal Justice and Court Services Act (2000)) living in Dorset between 1st April 2003 and 31st March 2004 103

3. Category 3: Other offenders i. The number of ‘other offenders’ (as defined by Section 67 (2)(b) of the Criminal Justice and Court Services Act (2000)) between 1st April 2003 and 31st March 2004 ii. The number of Restraining Orders imposed on any MAPPA offenders by the courts in Dorset between 1st April 2003 and 31st March 2004 32



4. MAPPP cases i. The number of MAPPA offenders in each of the three RSO Categories (ie RSOs, V & O and OO above) that have V & O been managed through the MAPPP (level 3) between 1st OO April 2003 and 31st March 2004 ii. The number of cases managed by the MAPPP (ie between 1st April 2003 and 31st March 2004) how many, whilst still in the MAPPP were: • Returned to custody for a breach of licence? (a) 2 1 0 18 18 1

• Returned to custody for a breach of a restraining (b) order or sex offender order? • Charged with a serious sexual or violent offence? (c)

Dorset Annual Report Statistics for 2003/2004 with year on year comparisons for 2001/02 and 2002/03

Registered Sex Offenders (RSO) 01/02 02/03 Number of RSOs 281 273 RSO per 100k 40 39 RSOs cautioned 15 16

Diff -8 -1 1

%: -2.8% -2.5% 6.7%

03/04 333 48 5

Diff 60 9 -11

%: 22.0% 23.1% -68.8%

MAPPP Offenders within MAPPA 02/03 Number of RSOs 16 Number of VO&SOs 14 Number of OthO 3

03/04 18 18 1

Diff. 2 4 -2

% 12.5% 28.6% -66.7%

Violent and other Sex Offenders (V&O&SOs) 01/02 Number of V&O&SOs 383 02/03 340 Diff -43 % -11.2% 03/04 103 Diff. -237 % -69.7%

Outcome measures of MAPPP activity 02/03 Return to Cust. Breach of 03/04 Diff. %

19 1 0

2 1 0

-17 0 0

-89.5% 0.0%

Other Offenders (OthO) 01/02 0 02/03 39 Diff. 39 % 03/04 32 Diff. % -7 -17.9%

Returned to Cust. Breach of SOO Charged with further serious Offence

Number of OthO

Statistics relating to Court Orders SOO applied for SOO granted ISOO applied ISOO granted RO granted 01/02 3 1 0 0 0 02/03 Diff. 0 -3 0 0 0 0 -1 0 0 0 % -100.0 -100.0 03/04 3 3 0 0 0 Diff 3 3 0 0 0 %

MAPPA calculations for 2003/2004 Category Total MAPPA offender population in Dorset Total MAPPP offender population in Dorset % of MAPPA that are MAPPP Offenders Result 468 37 7.9%

SOO - Sex Offender Order. ISSO - Interim Sex Offender Order. RO - Restraining Order

For the purposes of calculating the number of Registered Sex Offenders per 100,000 head of population, the PPU have used the results from the 2001 census. The headcount for Dorset was reported as 698330.




All Agency Leads receive e-mailed minutes


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) 27


NATIONAL PROBATION SERVICE, DORSET: CONTACT DETAILS FOR ENQUIRIES Assistant Chief Officer (Public Protection) Wadham House 50 High West Street DORCHESTER DT1 1UT 01305 224786

DORSET POLICE: CONTACT DETAILS FOR ENQUIRIES 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 Weare

HM Prison The Weare Rotherham Road Castletown Portland DT5 1PZ

01305 825400