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Foreword from Chief Constable, Dyfed-Powys Police

and Chief Officer, Dyfed-Powys Probation Area.

We are pleased to introduce the third annual report for the Dyfed Powys area. The report
explains the process by which agencies work together to protect the most vulnerable mem-
bers of our community from those who pose the greatest risks.

We welcome the introduction of the Criminal Justice Act 2003 which has included the
Prison Service within the ‘Responsible Authority’ for managing offenders and has strength-
ened the ‘MAPPA’ framework by placing the involvement of agencies, such as Social
Services and Health, on a statutory footing.

The Act has also introduced Lay Advisors to the ‘MAPPA’ process and we will be advertis -
ing these posts during the Autumn of 2004. It will be the role of the Lay Advisors to repre-
sent the community and to examine and question the way offenders are managed.

In addition, the introduction of the Sexual Offences Act 2003 on 1st May 2004 provided a
complete overhaul of the legislation in relation to sexual offences. It introduced new
offences, such as ‘grooming’ and closed existing loopholes in the law. A particular new
provision is the introduction of civil orders which place restrictions on the behaviour of
sexual and violent offenders.

Two other new developments have made a significant contribution to the Multi-Agency
Public Protection Arrangements in the Dyfed Powys area during 2003/04 :

• In January 2003 the Dyfed Powys Police introduced an interim version of the Violent
and Sexual Offenders Register ‘VISOR’ across the area. In November 2004 the full
National database is planned to be introduced which will link Police Forces across
England and Wales.

• In April 2003 Dyfed-Powys Probation Area implemented OASys (Offender Assessment


System). This is a comprehensive offender assessment tool using an I.T. database. Later
this year the technology will be enhanced to allow electronic transfer of OASys between
Probation Areas and the Prison Service.

Both these developments will ensure that information is more easily shared between agen-
cies and across England and Wales in order to further enhance public protection arrange-
ments.

Mr. Terence Grange, QPM, MSc Mrs.Caroline Morgan


Chief Constable Chief Officer
Dyfed-Powys Police Dyfed-Powys Probation Area
The National Picture
This section of this report draws attention to the wider context • Health Service bodies
of the operation and development of the Multi-Agency Public • Jobcentres Plus
Protection Arrangements (the MAPPA). • Youth Offending Teams
• Registered Social Landlords which accommodate
The most important work undertaken within the Multi- MAPPA offenders, and
Agency Public Protection Arrangements (MAPPA) is • Electronic Monitoring providers
done locally, led by the police and probation – who act • The appointment by the Home Secretary of two
jointly as the ‘Responsible Authority’ in your Area – and members of the public (‘Lay Advisers’) in each Area
in each of the 42 Areas of England and Wales. to assist in monitoring the effectiveness of the
MAPPA.
The experience and good practice upon which this work
is based, began in the 1990s – most significantly as a Supporting and co-ordinating the development of the
result of the closer working relationship required by the MAPPA throughout the 42 Areas of England and Wales,
Sex Offender Act (1997). The Criminal Justice and is the National Probation Directorate’s Public Protection
Courts Services Act (2000) formalised that relationship and Courts Unit (PPCU). This Unit acts as a central
and built upon the existing experience by requiring the point for advice and, increasingly, involvement in the
police and probation services to establish arrangements management of difficult cases. These include, for exam -
for assessing and managing the risks posed by sexual ple, UK citizens who have committed serious offences
and violent offenders. abroad and return to this country without anywhere to
live. The Unit is also able to provide financial support
The Criminal Justice Act of 2003 which came into effect when the risk management plans make exceptional
on the 5th April 2004 further defines the role of the demands upon local resources.
MAPPA. It required the Chief Officer of Police, the
Probation Board, for each area, and the Prison Service to Involving the public
establish and keep under review the arrangements for During 2004/5 the MAPPA developments will include
assessing and managing the risks posed by “relevant the appointment by the Home Secretary of two ‘lay
sexual and violent offenders” or other offenders who advisers’ to each Area. Lay advisers will contribute to
may cause serious harm to the public. the review and monitoring of the MAPPA which is
These three bodies form the Responsible Authority for undertaken by each Area’s Strategic Management Board
the Multi-Agency Public Protection Arrangements – the work of which you can read more in this report.
(MAPPA). MAPPA provides the framework for the
multi-agency risk assessment and management of high The lay advisers will not ‘represent’ the community in
risk offenders. Other relevant agencies have a statutory the way, for example, that local councillors do, nor will
duty to co-operate with MAPPA. they be involved in operational decision-making. And,
given the sensitivity of much of what the MAPPA does,
In addition, the Responsible Authority is required to especially with the few offenders who pose a very high
publish an annual report on the operation of those risk of serious harm to the public, it is not practicable for
arrangements. This report, covering April 2003 to March the general public to be involved. Lay advisers will
2004, is the third annual report produced by the Dyfed- however, ensure an appropriate and a practical level of
Powys MAPPA area. community involvement.

The importance of partnership The introduction of an element of public scrutiny of this


Key to the development of the MAPPA has been the often complex and sensitive area of public protection
close involvement of other agencies, such as housing, through the appointment of two lay advisers has been
health and social services, working alongside police and carefully and successfully trialed and evaluated. As
probation. The truly multi-agency nature of the MAPPA Home Office Minister Paul Goggins said:
and the collaboration which underpins it, is strength -
ened further by the Criminal Justice Act (2003). The Act “Lay advisers will play a vital role…We are committed
builds on the collaboration and multi-agency work by: to giving them not only an insight into how this work is
carried out but, more importantly, an opportunity to
• Making the Prison Service part of the ‘Responsible question what is being done and why.”
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:

• Local Authority Housing, Education and Social


Services
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
the Sexual Offenders Act (2003) and the 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.

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 prostitu -
tion 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 Violent and Sex Offenders
Register, (VISOR) 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.

The 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 vic-
tims 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 pre-
venting secondary victimisation;
• encouraging more victims and witnesses to come forward; and
• by offering more options to victims and witnesses, including alternatives
to attendance at court.

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

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. Introduction
Local arrangements to assess and manage the risk posed by sexual, violent and other
dangerous offenders commenced in the Dyfed Powys area to coincide with the intro-
duction of the Sex Offenders Act 1997. This led to the Dyfed Powys Police and
Dyfed-Powys Probation Area making joint arrangements for the assessment and man-
agement of registered sex offenders and other dangerous offenders.

These joint arrangements included the development of a protocol between the Police,
Probation and Social Services Departments within the area, and it is these agencies
that formed the core membership of the MAPPA process. This was supported by
other agencies that included the Health Authority, Education and Housing.

The original protocol has been revised and updated to take into account changes in
legislation and developments in risk assessment and management. These included
the requirements of Sections 67 & 68 of the Criminal Justice and Court Services Act
2000 and Sections 325-327 of the Criminal Justice Act 2003, which identified Police
and Probation as the Responsible Authority in relation to MAPPA. The Criminal
Justice Act (2003) includes the Prison Service as the third party in the Responsible
Authority.

In 2003 the Public Protection Unit of the National Probation Service issued Multi-
Agency Public Protection Arrangements (MAPPA) Guidance. The Dyfed Powys
protocol follows this guidance and uses the same principles. The main MAPPA func-
tions are to:

• establish arrangements for assessing and managing the risks posed by sexual and
violent offenders;
• review and monitor the arrangements; and, as part of the reviewing and monitor-
ing arrangements,
• prepare and publish an annual report on their operation.
2. MAPPA Offenders
There are principally three categories of offender who fall within the MAPPA:

Category 1
Registered Sex Offenders (RSOs), that is those sexual offenders required to register under the terms of the Sexual
Offences Act 2003

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

Category 3
any other offender who, because of the offences committed by them (wherever they have been committed) are consid-
ered to pose a risk of serious harm to the public.

To assist with understanding the MAPPA process and to evaluate the statistics, later in the report, it may be helpful to
explain the terms sex offender, violent offender and other dangerous offenders.

a) Registered Sex Offenders


The nature of sexual offending and those responsible for it is The statistics provided within this report indicate that there
often obscured by popular stereotypes which portray the are 232 registered sex offenders living within the Dyfed –
primary danger as being strangers. In reality, this is not the Powys area during the reporting period. This equates to
case as national research indicates that 80% of sexual offend- 47.51 offenders per 100,000 population.
ing occurs in known relationships such as family or other
acquaintances. The number of offenders being managed has grown from
165 in 2001/02 to 199 in 2002/03 to its current level of 232.
Within this definition, the process caters for offenders who It will increase again next year because once convicted the
are required to register under Part 2 of the Sexual Offences majority of sex offenders are required to register for many
Act 2003. This includes everyone who has been convicted or years or even life. This can be seen as a positive indicator as
cautioned for sexual offences as prescribed in the Sex it highlights the largest number of individuals who are man-
Offenders Act 1997. The offences range from unlawful sexu- aged by the Multi-Agency Public Protection Arrangements
al intercourse to rape and offences against children. (MAPPA). Not all of these individuals pose a high risk of
Therefore, the statistics presented later in this report will causing harm to others but their behaviour is monitored
include those adult male offenders who have raped adult regularly.
females, teenage boys who have had unlawful sexual con-
tact with teenage girls under 16yrs of age and of course Prior to the registration, initially required by the Sex
those male and female adults who have sexually abused Offender Act 1997, there was a limit to what agencies could
children. Therefore, it is important to remember that when do to manage these offenders within the community. The
looking at the number of registered sex offenders, that not registration process ensures that the Police and other agen-
all sex offenders can be classed as paedophiles. cies 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.

b) 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 domes-
tic abuse, all types of violent assault, criminal damage or other violent crimes. A small proportion of these offenders
will be individuals convicted of murder or manslaughter. It also includes some sexual offenders who have no require-
ment to register under the act.

The statistics contained within this report highlight the fact that there were 101 offenders within this category, man-
aged through the MAPPA process in Dyfed-Powys, during the reporting period.
c) 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 55 offenders assessed within this category in Dyfed-Powys during the reporting period.

d) Overview
The statistics show that there were a total of 388 offenders managed within the MAPPA process in Dyfed-Powys dur-
ing the year 2003/04. From the categories identified above, you will see that individuals will pose differing levels of
risks dependant on the type of offence(s) committed, the offender and the behaviour being exhibited.

3. Who is responsible for Managing Offenders in the Dyfed-


Powys Area?
The Dyfed Powys Police and Probation Area (now joined by the Prison Service) have a statutory responsibility to
assess and manage the risk posed by sexual, violent and other dangerous offenders. The local Social Services
Departments also play a key role in the Multi-Agency Public Protection Arrangements (MAPPA) process.

Agencies, such as Health, Education, Youth Offending Teams, Housing and other Local Authority Departments have a
duty to co-operate with the MAPPA process and contribute to the risk assessment and management of offenders and
attend multi-agency meetings as appropriate.

Housing authorities can sometimes assist in placing an individual in appropriate accommodation, where available,
and Health can provide a range of general and mental health services and make a major contribution to the risk
assessment and management process in order to prevent harm occurring.
4. How does this work
When an offender is sentenced for a relevant sexual offence the courts provide information to the police indicating
that there is a requirement to register. A marker is placed on the Police National Computer and on VISOR. In addi-
tion, Dyfed-Powys Probation Area staff conduct a risk of harm assessment on all offenders they supervise and will
liaise with the Prison Service in order to inform the risk assessment process.

In cases where an offender is sentenced to a year or more for a violent or sexual offence, or in other cases when the
individual is assessed as posing a high or very high risk of causing serious harm to others, the local Probation
Divisional Manager shares this risk assessment with the local Police Detective Inspector. (Dyfed-Powys Probation
Area uses the Offender Assessment System (OASys) which is a national system that provides a comprehensive assess-
ment of the risk of harm an offender may pose to others).

The Police, Probation and other agencies also identify offenders who come to their notice who they assess as posing a
high risk to others. The Police use the Risk Matrix 2000 assessment system, another nationally approved assessment
tool particularly useful in assessing sexual offenders. These individuals are also referred to the local Police Detective
Inspector.

The initial risk assessment process identifies the level of risk posed by the individual offenders. Dependant on the
assessment, of the level and nature of risk posed, and the resources needed to manage the risk, the case is referred into
the three tier MAPPA process.

5. The Three Levels of MAPPA Operational Activity


The focus on those who present risks of serious harm is (Multi-Agency Risk Assessment Conference) meetings in
sharpened by the three tier structure of case referral in this area.
the MAPPA.
If professional judgement dictates that the offender,
Level 1: although assessed as low or medium risk, warrants
MAPPA activity at Level 1 usually involves a single attention at a higher level then any agency can request
agency, most commonly the probation service, managing that the offender be assessed at the next level.
an offender without the active or significant involvement
of other agencies. All offenders within this category will Level 3:
be subjected to a management plan which is agreed by Level 3 activity meetings are known in all Areas as the
the agencies involved. If the risk posed by an individual Multi-Agency Public Protection Panel (MAPPP). The
increases, then they will be referred to a Level 2 or 3 ‘critical few’ cases which are referred to the MAPPPare
MAPPA meeting. those of offenders who pose the highest risks of causing
serious harm to others or whose management is so prob-
Level 2: lematic that multi-agency co-operation at a senior level is
Referral to this level is made where the active involve- required.
ment of more than one agency is required. Some offend-
ers posing the highest risks can be managed through The statistical section of this report identifies 15 offend -
referral at Level 2 where the management plans are not ers who were managed through MAPPA Level 3 meet-
complex and do not need the commitment of resources ings in Dyfed-Powys during 2003/4.
at a senior level. Level 2 meetings are called MARAC

6. Information Sharing
The MAPPA process relies on the agencies involved being able to pass information freely and quickly in order that
local managers can react to changing circumstances and implement or adapt existing plans to incorporate changing
public protection needs.

The aim of the MAPPA process is to reduce potential harm. All those involved strive to make the most appropriate
decisions possible given the information available to them at that time. However, it is important to note that even the
most diligent efforts of the multi-agency group cannot always prevent serious harm occurring.
7. Specialist Resources
Dedicated Police Public Protection Unit teams are in place throughout the Dyfed-Powys area. The teams have special-
ist officers who are trained in sex offender management, child protection, vulnerable adult abuse and domestic abuse
investigations.

Additional resources have been introduced into the teams and in June 2004 four new Detective Inspector posts will be
included to supervise public protection work.

8. Information Technology
In January 2003, the new Violent and Sexual Offender Register (VISOR) computerised database became fully opera-
tional in the Dyfed Powys Police area. This currently allows for the management of registered sex offenders. This
database will increase the Police’s ability to store, access and share information. This is part of a national develop-
ment and will be extended, to include violent offenders, allowing the monitoring of offenders throughout the UK.

During 2004/05 OASys (Offender Assessment System), used by the Probation Service, will be developed so that the
detailed assessments can be electronically transferred between Probation Areas and the Prison Service. This will
enhance the ability to transfer and update assessments.

9. MAPPA Strategic Management Board


The Dyfed Powys MAPPA Strategic Management Board a) To develop and implement relevant policies and protocols
(SMB) meets four times a year. This group was set up in b) To review and identify any procedural or systems failings,
January 1999 and consists of senior representatives of the which may necessitate policy changes.
Police, Probation, Health Authority, Youth Offending Team c) To receive an account of all cases assessed within the terms
Managers and Social Services Departments within the Dyfed of the MAPPA protocol.
Powys area.
The SMB maintains a positive ownership of multi-agency pub-
The SMB maintains a strategic overview of the MAPPA work lic protection work and supports the MAPPPprocess on a divi-
within the Dyfed Powys area and has the following terms of sional/local authority and area-wide basis.
reference:

10. Community Notification


As part of the wider risk management process, one of the make the disclosure rests with a Chief Police Officer within
strategies that can be used to reduce risk is a community noti- the Dyfed Powys Police. The Chief Officers of Dyfed Powys
fication. This can be made to individuals, groups or sections Police have authorised community notifications in relation to
of the community. This is only considered in cases where it is 14 offenders in the period under review.
deemed to be proportional, justifiable and will reduce the risk
posed. Over recent years, community notifications have been made
within the Dyfed Powys area to a number of bodies, agencies
It is the role of the MAPPA (level 2 and 3) meetings to recom - and organisations. These include disclosures to schools,
mend community notifications, based on the careful and rigor- leisure centres, other recreational areas, wardens of housing
ous examination of all information shared and the risk man- complexes, railway staff and lifeguards to name but a few.
agement plan developed. However, the ultimate decision to
11. Case Studies
Offender‘A’ Offender‘B’
A local man, who had been convicted of sexual offences A convicted sex offender, who had committed offences against
against women, was due to be released on licence following a children, was due to be released on licence following a period
prison sentence. He would be returning to live in his home of imprisonment. A MAPPA meeting was held to assess the
area. A meeting under the MAPPA (Multi-Agency Public potential risk and develop a risk management plan. Working
Protection Arrangements) was convened to assess the risk he closely with the relevant Housing Authority, every effort was
posed and develop a risk management plan. made to place the offender in relevant accommodation within
that community.
Although the risk assessment did not indicate he was a high
risk to the general public there was concern regarding the Due to the concerns about the risk he posed to children, a
potential risk to young women, especially leaving nightclubs, community notification was made to schools, youth groups
late at night. As a consequence, a community notification was and leisure centres within the community. In addition, proac -
made to nightclub owners in the area, where it was thought tive monitoring took place by all the agencies, which identified
young women were most at risk. The relevant staff were some conerns in respect of his behaviour within a public place.
shown a photograph of the man to assist with safeguarding As a result, the Probation Service made a formal application
young women attending these venues. for recall and the offender was returned to prison.

12. Work with Victims


Section 69 of the Criminal Justice and Court Services Act 2000 places a statutory duty upon the National Probation
Service, to contact victims and ask if they wish to be kept informed and consulted about the release arrangements for
violent and sexual offenders sentenced to 12 months custody or more. The Dyfed-Powys Probation Area has a desig-
nated Victim Liaison Officer who undertakes the majority of work with victims.

The Victim Liaison Officer collates the information from the Probation Service, Police and Courts and contacts the vic-
tims of sexual or violent offences or their families within 8 weeks of the offender being sentenced. The main purpose
of this initial contact is to explain the sentence process and ascertain if the victim wishes to be kept informed of
progress of the sentence. This could include the approximate date of release and possible licence conditions.

During this 12 month period, the Victim Liaison Officer has contacted a total of 179 victims who live in the Dyfed
Powys area, 73% of whom wished to be kept informed and consulted about the progress of the sentence imposed.
Victims are also provided with information about Victim Support, SAMM (Support After Murder and Manslaughter),
Cruise and other local support services.

If appropriate, the Victim Liaison Officer will attend Child Protection Case Conferences or MAPPA meetings to pro-
vide the victim perspective and contribute to the risk assessment process.

Victim Support Dyfed and Victim Support Powys serve the area and can be contacted as follows:

Victim Support Dyfed Victim Support Powys


C/o Police Station Sefton House,
Waunlanyrafon Middleton Street,
Llanelli, Carmarthenshire Llandrindod Wells,
SA15 3AD Powys, LD1 5DG.
Tel. 01554 775187 Ffôn: 01597 825699
E-bost : manager@victimsupportdyfed.org.uk E-bost : manager@victimsupportpowys.org.uk
13. Statistical Information No. of Offenders

i. The number of registered sex offenders on 31 March 2004 232

The number of registered sex offenders per 100,000 population 47.51

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


were either cautioned or convicted for breaches of the requirement,
between 1 April 2003 and 31 March 2004 8

iii. The number of Sex Offenders Orders applied for and gained between
1 April 2002 and 31 March 2003

(a) The total number of Sex Offenders Orders applied for 2

(b) The total number granted 2

(c) The total number not granted n/a

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


1 April 2003 and 31 March 2004 for offenders currently managed 0
within MAPPA

v. The number of violent and other sexual offenders considered under


MAPPA during the year 1 April 2003 and 31 March 2004 (as defined 101
by section 68 [3], [4] and [5])

vi. The number of "other offenders" dealt with under MAPPA during the
year 1 April 2003 and 31 March 2004 as being assessed by the
Responsible Authority as posing a risk of serious harm to the public 55
(but who did not fall within either of the other two categories, as
defined by s.67 [2b])

vii. For each of the three categories of offenders covered by the MAPPA
("registered sex offenders", "violent and other sex offenders" and
"other offenders"), identify the number of offenders that are or have
been dealt with by:

(a) MAPPP- registered sex offenders 7

(b) MAPPP- violent and other sex offenders 7

(c) MAPPP- other offenders 1


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

(a) who were returned to custody for breach of licence 3

(b) who were returned to custody for breach of a Restraining Order or 1


Sex Offender Order

(c) charged with a serious sexual or violent offence 1


Contacts

Dyfed-Powys Probation Area Address Phone

ACPO Dyfed-Powys Probation Service 01267 221567


Public Protection Llangunnor Road
Carmarthen
SA31 2PD

Dyfed-Powys Police Address Phone

Detective Inspector Dyfed-Powys Police, 01267 226370


Public Protection Unit
POBox 99,
Llangunnor,
Carmarthen
SA31 2PF