County Durham

Multi-Agency Public Protection Arrangements Annual Report 2003-4

By Pam McPhee, Chief Probation Officer, and Paul Garvin, Chief Constable Public Protection remains a key focus of Police and Probation within County Durham and Darlington. In the last year we have placed more resources into the team that manages the multi agency approach that the Government and legislation requires. However more importantly we recognised the need to continue to build upon the existing cooperation of local agencies and the public to monitor and supervise those individuals who may present a real threat of harm to our communities. We welcome the further legal powers offered through the Criminal Justice Act 2003. The Criminal Justice Act 2003 requires the Prison Service to also become a responsible authority. It requires many of our existing partner agencies to have a Duty to Co-operate to ensure we work together to find the best solution to managing often very difficult situations. The Sexual Offences Act 2003 provides a new framework for registration requirements and incorporates additional offences, particularly around offenders who misuse the Internet. Closer working relationships with Prison colleagues has already resulted in an offender being charged with additional offences as a result of Prison Intelligence which resulted in an additional 4½ year sentence. However the most important partners we can have in Public Protection are you as members of the public. It is vital that you are aware of the action you can take to increase the safety of our communities. We know a great deal of abuse and violence occurs within families and close friends. Often people do not want to believe what is happening within their own community. However sex offenders and violent offenders live in all of our communities, often presenting respectable lifestyles. The intelligence reports we get from concerned members of the public often provide the missing piece of the jigsaw puzzle that can make the critical difference. Please recognise that by taking care to protect your own children and family and also to report concerns we can ensure action is taken as soon as possible. Working together we can make a difference.

Chief Officer

Chief Constable

Annual Report 2003/4
This is the third annual report for County Durham and Darlington Area in relation to Multi Agency Public Protection Arrangements, or MAPPA. In many ways this year could be described as a year of transition and preparation for the legislative and partnership changes that are taking place to improve Public Protection Arrangements locally and nationally. These are as follows:

Strategic Management Board. Education have proved a valuable new partner, in working to address the needs of protecting young people from perpetrators and also in meeting the educational needs appropriately with others who themselves are young perpetrators. Securicor provide the service locally to people in the North East who are electronically tagged to monitor their movements. For example, we have successfully used this locally to ensure an offender remained indoors at key school movement times. This added an extra control over the offenders’ movements and reduced the risk of grooming young children outside school premises. Securicor have now joined the local Strategic Management Board and a protocol for accessing their services has been agreed. Housing issues always remain a concern. In addition to the requirement for Local Housing Authorities to be partners to Public Protection Arrangements, we have for a long time worked closely with Registered Social Landlords. They now join as formal partners to assist

to provide the best accommodation control available within the constraints of legislation and availability. County Durham and Darlington do not have any Statutory 24 hour staffed accommodation for adult offenders so our working relationship with other housing providers remains vital. It is important to remember that all communities have sex and violent offenders living in their area and the ability to work together to minimise risk of harm is critical. All parents, grandparents and responsible family members must also play a part, information about abuse comes from within the circle of family and friends of the perpetrator, and we depend on the courage of others to share concerns.

Strategic Oversight
On April 1st 2004 new MAPPA requirements come into force as a result of the Criminal Justice Act 2003. This places a statutory responsibility on the Prison Service as well as Police and Probation, but more importantly strengthens the link with other partner agencies by introducing a legal “Duty to Co-operate” ensuring Public Protection is addressed within your community. This means we have to review the Strategy that we had all signed up to in County Durham and Darlington several years ago and invite some new members to join our

Colin Pearson – Durham Police “Durham Constabulary views the Multi Agency Public Protection Arrangements [MAPPA] as an integral part of the management and supervision of Registered Sex Offenders and Dangerous Persons”.

Ian Shanks – Education Department, Durham County Council “From Durham Local Education Authority’s [LEA] point of view, excellent arrangements are now in place to support the education of a young person who is a Schedule One Offender, following a move to or within the area or release from custody”.

Training for the Strategic Management Board
The arrival of new partners resulted in a recognition that all members required some training to focus our minds on the best practice that has been evolving within the area and nationally. A training day was held in the Autumn led by colleagues from the National Public Protection Unit and local staff from within the North East. It was invaluable in sharing experiences, for it is never easy managing what are frequently very difficult individuals for which there are no ideal solutions that meets every concern. Our Lay Member has proved to be a real asset, in bringing to the Board those questions that members of the public would like to ask, sometimes triggered by information in the press,

sometimes by not understanding legislation and the controls that may be desired but cannot be applied, sometimes just checking out on the existing practice. There have been occasions when all present felt able to respond with confidence and others when we have had to think again and look for more information. We have been part of a pilot nationally to look at the benefit of Lay Members and the research completed on the Pilot Areas has resulted in Government commitment to extend this throughout the country and from April 2004 they will be known as Lay Advisors. We hope to recruit another Lay Advisor at this time.

year requiring contact. As a result of this Durham Constabulary and County Durham Probation Area decided to increase the staffing resources within the local Public Protection Unit. County Durham Youth Offending Service retained their secondee and the unit now consists of a Police Sergeant and Probation Manager, 4 Police Officers, 5.5 Probation staff and a Senior YOS Case Manager. The statistics this year demonstrate that whilst the numbers of registered sex offenders have increased, there has not been any serious level of reoffending. The position remains that when we know who is dangerous it is possible to reduce the risk of reoffending, and that the greatest risk remains with those who are not known or not reported. Therefore it is important that you as members of the public realise the importance of sharing information. A call from a member of the public to one of the partner agencies this year was passed onto the Public Protection Unit and when checks were made, it revealed that whilst there were no local concerns, in fact visitors to the area had criminal convictions of interest to the Police.

John Spencer – Health “The Strategic Health Authority has been eager to support the inter agency work to protect the public through the MAPPA process. The NHS has a valuable role in contributing to a healthier safer community”.

Operational Growth
The nature of legislation relating to Sex Offenders means that many individuals are registered for life. This results in an increasing number of offenders year on

We do manage some potentially very dangerous individuals and on these occasions it is sometimes possible to place them in a nationally funded secure community based hostel for a short period when they are first released. This enables close observation of the individual and intensive work to be undertaken to assist their management within the community. In a situation where we considered that a previous victim was potentially at risk we were able to secure this interim placement that ensured there was no contact whilst the offender readjusted to the reality of having to manage his behaviour in the community. However it is also important that people realise that these placements are time limited and only available in exceptional circumstances. The more common pattern of work of the Public Protection Unit staff is that by sharing their assessment skills from differing professional backgrounds the offenders risk is managed to an agreed plan. Changes of behaviour are closely monitored and if deterioration is seen then enforcement action is taken where possible. We have had several offenders returned to custody for unacceptable behaviour, or

minor offences resulting from intelligence that has come from home visits or information gained from concerned members of the community. Sadly we also have to manage responses from the public where they try and take the law into their own hands. Recently a newly released prisoner was attacked and threatened. We would want to reinforce that if an offender has to be moved suddenly due to local threats, the risk of them repeating their offending increases. As with most people stability helps, and if their home situation is stable it increases their ability to maintain their efforts not to reoffend.
Dave Summers - YOS “Joint working between Durham Youth Offending Service, Police and Probation colleagues has strengthened the risk management plans for relevant young people, and ensured that these plans are managed and reviewed, were appropriate, through the MAPPA process”.

Nobody can begin to imagine the life changing impact that physical and emotional abuse can have on individuals, or the strength that some victims show in ensuring that perpetrators are convicted and the risk of them repeating their behaviour is reduced. The Victim Liaison Officer remains a crucial player in MAPPA and attends meetings to represent Victims views, when the victim has requested they do so. They also liaise closely with Victim Support who are the professional support available to all victims of crime. In MAPPA cases it is often possible to ensure that restrictions about contact with the victims are written into licence conditions. Normally this relates to individuals or exclusion areas of a particular community. However in exceptional circumstances this year the Parole Board agreed to exclude someone from the whole of County Durham and Darlington. The Home Office have undertaken a survey of victims’ views regarding the service they get from Victims of MAPPA offenders and we hope that when this is published it will inform further improvements for Victim work, if required.

Victims of Serious Sexual and Violent Crime
The trauma for many victims cannot be underestimated.

Any member of the public can get information about Victim Support from their local contact point, telephone number 0191 3831389.

all MAPPA offenders in the country. The system is user friendly and links to the Police National Computer. It can store information from Police and Probation, including details of photographs, offending behaviour, hobbies and interests and any concern that is raised within MAPPA. More importantly it has an excellent search facility, so anyone with authority to require a search can quickly find any offender on the system who meets the criteria they are looking for. Therefore it is possible to know how many offenders own a car, have tattoos, use a computer etc. Clearly any system is only as good as the information entered but this is the first system that has this facility across agencies. It is due to be rolled out across the country within the next 12 months and should increasingly aid any investigation relating to a serious offence.

line more controls for those people who use the internet to make contact and groom victims. However parents are still reminded that the best controls are those which you as parents can impose.

Pauline Mitchell – Housing Department, Darlington Borough Council “Housing Authorities can provide advice on suitable accommodation in both the social and private sector, as well as support in accessing accommodation. Housing representatives attend MAPPA meetings as requested and may ask for a meeting to be arranged”.

Criminal Justice Act 2003
As well as bringing in more powers within MAPPA, this Act also sets out a new sentencing framework which includes the ability to sentence someone to detention under a requirement of public protection, if they are convicted of a serious violent or sexual offence. Such sentences will enable release to be subject to greater accountability and also for the person to remain subject to licence and subsequent recall for a longer period of time.

Looking to the Future
County Durham and Darlington is currently piloting one of the most promising developments that has evolved within the area of Public Protection. Everyone will know of the concerns about information being lost between areas and between agencies. We now have ViSOR operating in County Durham and Darlington within the Public Protection Unit. ViSOR is the Violent and Sex Offender Register, and currently focuses on Sex Offenders but eventually will hold critical information on

Sexual Offences Act 2003
This new legislation increases the powers of the Police in relation to many sex offenders and also brings in new offences which require registration, The new offences bring into

Carl Docking – SSD Durham “As a Child Care Social Worker I have been impressed by the MAPPPs I have attended – they bring together agencies that are not normally involved and pull together risk management plans that are clear and structured”.

Comments of Lay Advisor
“As Lay Advisor on the Strategic Management Board, I am able – as an ordinary member of the public – to play a full part in the review of MAPPA, and its strategic oversight. Through interaction with other Board Members, I see, at first hand, how the Multi Agency Public Protection Arrangements in County Durham and Darlington make an important contribution to strengthening collaboration between agencies. I have witnessed at first hand excellent inter agency cooperation, leading to informed and timely preventative action being taken. Such an effective multi agency partnership is crucial to the delivery of good public protection. In December I took part in a Regional Training Day, where representatives from SMBs throughout the North East learned more about the role of the Strategic Management Board within the wider context of MAPPA. Examples of best practice were discussed,

and ways suggested in which members could work together more effectively to maximise the benefits of good information sharing. The event was very useful in highlighting ways that positive progress can be made in meeting some of the challenges posed by public protection issues. Sitting on the Strategic Management Board also means I can participate in wider discussions about public protection issues, of concern to us all. The Huntley case in Soham last year, for example, brought to the attention of the public the need for additional and clearer guidance to criminal justice agencies about the implications of the Data Protection Act on the retention and use of criminal conviction and local intelligence. The forthcoming Home Office Review on data protection procedures is therefore most welcome, and hopefully will address the need to eliminate the current confusion about how to interpret and apply the Act.

An extensive evaluation of the Lay Advisor pilot schemes has highlighted key lessons in terms of recruitment, training, the need for clarity about the role and the kind of support that Lay Advisors need. Along with all the other Lay Advisors, I was given full opportunity to contribute to the findings of the final report. The report acknowledges that the pilot MAPPA Lay Advisor scheme has critically informed the development of arrangements to implement the MAPPA Lay Advisor provisions of the Criminal Justice Act. As a result, the national roll out of the Lay Advisors Scheme will undoubtedly benefit. Although lay representation onto the strategic level of multi agency public protection has gone some way towards giving public access to the work of the statutory agencies, it is my belief that communities need to have a much greater understanding of what is done to protect them. The public needs to be informed of the work of MAPPA, so that people can have more understanding of

how sensitive and complex public protection work can be. Only more openness and encouragement for informed debate can lead to a reduction in ill-informed speculation and comment fed by fear. I would therefore like to see the SMB, in the next year, start to meet the challenge of extending public information into public education. Only then can members of the public begin to understand the real nature of risk in the community and what protective and preventative actions are possible, both by public agencies and themselves. By doing so, we can begin to realise what is surely a shared objective of preventing re-offending, and minimising the risk of serious harm to the public caused by certain known offenders”.
Chris Cumming I would be pleased to receive your views and comments – either from a community group or an individual. Contact address [in writing only] to Chris Cumming, Lay Advisor, c/o National Probation Service County Durham, HQ, Forest House, Aykley Heads Business Centre, Durham DH1 5TS.

Comments of Strategic Partners
This year we have included some comments from members of the Strategic Management Board, which we hope will help you understand the part they can play in coming together to address public protection. However please remember we all depend on your contributions to make this a really effective working relationship. This year the Police had a call from the public about a man who had behaved inappropriately in a public house. They were not reporting an offence, but rather someone who had discomforted customers and staff. Checks were made and the call resulted in a man being returned to custody within a short period of time. You can make a difference.

Paddy Fox – HMP Frankland “For some time HMP Frankland has had good local information sharing partnerships with the Police and Probation Service and the risk management model proposed by the new Order has underpinned those arrangements”.

Alison Walton – SSD Darlington “Darlington Social Services views the MAPPA process as a critical component of the Child Protection framework. The Child Protection Co-ordinator attends all MAPPA meetings relating to adults and families living in the council area. Information is exchanged to both reduce the risk of further offending and to protect children”.

Statistical Information
The Annual Report in 2004 provides more detailed breakdown of information about offenders considered under MAPPA than we had last year. You will see some numbers have risen significantly and it is important to understand the reason for this.
MAPPA ANNUAL REPORTS STATISTICAL INFORMATION Required for the reporting period 1st APRIL 2003 - 31st MARCH 2004
The statistical information you will be required to publish in next year’s report will be the same as this year – but simplified in respect of the Category 2 MAPPA offenders. We consulted widely about the simplified Category 2 figure and believe it will be much easier to collate and more meaningful.


Type your area name here:NPS County Durham
Question 1. Category 1 MAPPA offenders: Registered Sex Offenders (RSOs) i) The number of RSOs living in your Area on 31st March 2004. This is information principally held by the police and is a snapshot of RSOs on 31/3/04. It should NOT include RSOs in prison. 265
number of offenders

ia) The number of RSOs per 100'000 head of population. (This figure will be calculated centrally by NPD) ii) 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


Only those cautions that have actually taken place and breaches that have been successfully completed during the reporting period should be counted iii) The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2003 and 31st March 2004. iv) The number of interim Sex Offender Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2003 and 31st March 2004. 2. Category 2: violent offenders and other sexual offenders. a) b) a) b) 0 0 0 0

v) 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 your Area between 1st April 2003 and 31st March 2004


You should include in this figure only those Category 2 offenders who are living in your Area during the reporting period. You should NOT include, as previously required, those Category 2 offenders who are still in custody. Care must also be taken NOT to include here any Category 1 offenders. 3. Category 3: Other offenders vi) 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. This figure cannot include any offenders who are included in either the Category 1 or 2 (i.e. (i) and (v) above) vii) The number of Restraining Orders imposed on any MAPPA offenders by the courts in your Area between 1st April 2003 and 31st March 2004.



This figures should only include orders issued under section 5A of the Sex Offender Act 1997(as amended by the Criminal Justice and Court Services Act 2000) and to offenders living in the community 4. MAPPP cases (viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (i)- RSOs, (v)- V&O and (vi)- OO above) have been managed through the MAPPP (level 3) between 1st April 2003 and 31st March 2004. RSO V&O OO 6 5 0

This figure is the ‘critical few’. The criteria for referring a case to the MAPPP are defined in MAPPA Guidance as those in which the offender: · is assessed under OASys as being a high or very high risk of causing serious harm; AND · presents risks that can only be managed by a plan which requires close 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, 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. ix) Of the cases managed by the MAPPP (i.e. (viii)) between 1st April 2003 and 31st March 2004 how many, whilst still in the MAPPP: Were returned to custody for a breach of licence? Were returned to custody for a breach of a restraining order or sex offender order? Were charged with a serious sexual or violent offence?

a) b) c)

1 0 0

For these purposes a serious sexual and violent offence is one of the following (i.e. the same offences as used to trigger reporting in the National Probation Service as a ‘serious further offence’: q Murder; q Attempted murder; q Arson (where there is an intent to endanger life); q Manslaughter; q Rape; q Kidnap/abduction or attempted kidnap/abduction. q Any other very serious violent or very serious sexual offence, armed robbery (defined as robbery involving a firearm), assault with a deadly weapon or hostage taking. q Any other violent or sexual offence where the offender/ offence is likely to attract significant media interest or which raises wider issues of national interest.

County Durham Probation Area Sue Hine Assistant Chief Officer Address NPS County Durham Forest House Aykley Heads Business Centre Durham DH1 5TS Phone 0191 3839083

Durham Police Ian Scott Detective Chief Superintendent

Address Durham Constabulary Aykley Heads Durham DH1 5TT

Phone 0191 3864929

County Durham

List of Abbreviations


Area Child Protection Committee Multi Agency Public Protection Arrangements Multi Agency Public Protection Panel Risk Management Meeting Mental Disordered Offender National Health Service National Probation Directorate Northumbria Sex Offender Programme Group Primary Care Trust Strategic Management Board Public Protection Unit Violent Offender & Sex Offender Register Youth Offending Service