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 members 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 strengthened 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 represent 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 agencies and across England and Wales in order to further enhance public protection arrangements.

Mr. Terence Grange, QPM, MSc Chief Constable Dyfed-Powys Police

Mrs.Caroline Morgan Chief Officer Dyfed-Powys Probation Area

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

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

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 domestic 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 requirement to register under the act. The statistics contained within this report highlight the fact that there were 101 offenders within this category, managed 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 during 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 DyfedPowys 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 addition, 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 assessment 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 sharpened by the three tier structure of case referral in the MAPPA. Level 1: MAPPA activity at Level 1 usually involves a single agency, most commonly the probation service, managing an offender without the active or significant involvement of other agencies. All offenders within this category will be subjected to a management plan which is agreed by the agencies involved. If the risk posed by an individual increases, then they will be referred to a Level 2 or 3 MAPPA meeting. Level 2: Referral to this level is made where the active involvement of more than one agency is required. Some offenders posing the highest risks can be managed through referral at Level 2 where the management plans are not complex and do not need the commitment of resources at a senior level. Level 2 meetings are called MARAC (Multi-Agency Risk Assessment Conference) meetings in this area. If professional judgement dictates that the offender, although assessed as low or medium risk, warrants attention at a higher level then any agency can request that the offender be assessed at the next level. Level 3: Level 3 activity meetings are known in all Areas as the Multi-Agency Public Protection Panel (MAPPP). The ‘critical few’ cases which are referred to the MAPPPare those of offenders who pose the highest risks of causing serious harm to others or whose management is so problematic that multi-agency co-operation at a senior level is required. The statistical section of this report identifies 15 offend ers who were managed through MAPPA Level 3 meetings in Dyfed-Powys during 2003/4.

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

10. Community Notification
As part of the wider risk management process, one of the strategies that can be used to reduce risk is a community notification. This can be made to individuals, groups or sections of the community. This is only considered in cases where it is deemed to be proportional, justifiable and will reduce the risk posed. It is the role of the MAPPA (level 2 and 3) meetings to recom mend community notifications, based on the careful and rigorous examination of all information shared and the risk management plan developed. However, the ultimate decision to make the disclosure rests with a Chief Police Officer within the Dyfed Powys Police. The Chief Officers of Dyfed Powys Police have authorised community notifications in relation to 14 offenders in the period under review. Over recent years, community notifications have been made within the Dyfed Powys area to a number of bodies, agencies and organisations. These include disclosures to schools, leisure centres, other recreational areas, wardens of housing complexes, railway staff and lifeguards to name but a few.

11. Case Studies
Offender‘A’ A local man, who had been convicted of sexual offences against women, was due to be released on licence following a prison sentence. He would be returning to live in his home area. A meeting under the MAPPA (Multi-Agency Public Protection Arrangements) was convened to assess the risk he posed and develop a risk management plan. Although the risk assessment did not indicate he was a high risk to the general public there was concern regarding the potential risk to young women, especially leaving nightclubs, late at night. As a consequence, a community notification was made to nightclub owners in the area, where it was thought young women were most at risk. The relevant staff were shown a photograph of the man to assist with safeguarding young women attending these venues. Offender‘B’ A convicted sex offender, who had committed offences against children, was due to be released on licence following a period of imprisonment. A MAPPA meeting was held to assess the potential risk and develop a risk management plan. Working closely with the relevant Housing Authority, every effort was made to place the offender in relevant accommodation within that community. Due to the concerns about the risk he posed to children, a community notification was made to schools, youth groups and leisure centres within the community. In addition, proac tive monitoring took place by all the agencies, which identified some conerns in respect of his behaviour within a public place. As a result, the Probation Service made a formal application 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 designated 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 victims 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 provide 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 C/o Police Station Waunlanyrafon Llanelli, Carmarthenshire SA15 3AD Tel. 01554 775187 E-bost : Victim Support Powys Sefton House, Middleton Street, Llandrindod Wells, Powys, LD1 5DG. Ffôn: 01597 825699 E-bost :

13. Statistical Information
i. The number of registered sex offenders on 31 March 2004

No. of Offenders

The number of registered sex offenders per 100,000 population



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



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


(b) The total number granted


(c) The total number not granted



The number of Restraining Orders issued by the courts between 1 April 2003 and 31 March 2004 for offenders currently managed within MAPPA



The number of violent and other sexual offenders considered under MAPPA during the year 1 April 2003 and 31 March 2004 (as defined by section 68 [3], [4] and [5])


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


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

(a) MAPPP- registered sex offenders


(b) MAPPP- violent and other sex offenders


(c) MAPPP- other offenders


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


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


(c) charged with a serious sexual or violent offence


Dyfed-Powys Probation Area ACPO Public Protection Address Dyfed-Powys Probation Service Llangunnor Road Carmarthen SA31 2PD Phone 01267 221567

Dyfed-Powys Police Detective Inspector Public Protection Unit

Address Dyfed-Powys Police, POBox 99, Llangunnor, Carmarthen SA31 2PF

Phone 01267 226370