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Reporting on the Multi-Agency Public Protection Arrangements in Essex

Annual Report
2005- 2006
From the Minister: Gerry Sutcliffe

Making our communities safer and reducing re-offending is our highest priority
and one of our biggest challenges. That is why the work undertaken through
these multi-agency public protection arrangements (MAPPA) is so important.
The supervision and management of sexual and violent offenders who pose the
highest risk of serious harm, whether in the community or in custody, is
complex and challenging; and is an aspect of public service where the public
rightly expects all reasonable action to be taken.

Although we have made significant progress in the last five years with the
development of MAPPA across England and Wales, the review this year of a
number of tragic incidents where people have been murdered or seriously
injured reminded us of the importance of reviewing performance, improving
practice and learning lessons. It is vital that these tasks are undertaken by the
probation, police and prison services, as well as by those other agencies that
contribute to the assessment and management of offenders. The publication of
MAPPA Business Plans by each Area in this year's annual reports offers a helpful
and necessary programme of local development and review and must lead to
enhanced practice. It will be essential that this progress is transparent and
shared with local communities.

In addition to this, however, it is important that no opportunity is missed to

consider other measures that will further enhance public safety. That is why we
are undertaking the Child Sex Offender Review, to look at how a particular
group of offenders, who provoke anxiety for many, are best managed in the
community. The review is consulting a wide range of practitioners and key
stakeholders including the MAPPA lay advisers, and will report around the end
of the year.

Finally, in commending this report to you, I want to take the opportunity to

thank all those involved locally in working with sexual and violent offenders, or
in ensuring that these arrangements are fit for purpose. Where MAPPA is
working well it is based on maintaining high professional standards and
effective multi-agency collaboration in the delivery of robust risk management
plans. While it is not possible to eliminate risk entirely, where all reasonable
action is taken the risk of further serious harm can be reduced to a minimum
and fewer victims will be exposed to repeat offending.

Gerry Sutcliffe MP
Parliamentary Under Secretary of State
for Criminal Justice and Offender Management

Since its inception in 2000, the Multi-Agency Public Protection Arrangements (MAPPA)
have progressed from strength to strength, delivering their fundamental objective, that of
safeguarding the public from the threat posed by sexual and violent offenders in Essex, while
focusing on the needs of the victim.

Thanks to the close co-operation of the many agencies that form MAPPA in the Essex area,
the vast majority of public citizens are largely unaware of the often complex and difficult
management of offenders that takes place every day. It is a testament to the skills of the many
individuals involved in the MAPPA process that ordinary people have little or no idea of the
strict protective measures in place, or that they can go about their business safe in the
knowledge that experts are working tirelessly to ensure that any potential threat from such
offenders is minimised. The importance of partnership in MAPPA's continuing success 4 What is MAPPA
cannot be overstated. Sharing the job

Under the direction of the police and probation service a whole host of key agencies are now 6 Under MAPPA’s wing
signatories to MAPPA. Each one brings the expertise that is vital in drawing up effective risk Domestic Abuse gets the
management procedures for offenders. treatment

As from April this year, the Prison Service became a key player, jointly charged with police 7 The programme for
and probation in managing arrangements for offenders. To maximise our chances of success,
risk management must start in prison, not on release.
8 Keeping the victim safe
In the past, whenever an investigation has pinpointed that serious offences could have been
prevented, what emerges is that the communication and co-operation between key agencies 10 Case: In a prison cell
has been in some way deficient. What MAPPA has meant is that such communication is
vastly improved. We are very efficient in the way we support each other in tackling the risk
posed by offenders while maintaining the true focus of this process – the victims and their 13 I speak for the public
A lay member speaks
needs. We do not forget that this work is both victim focused and offender driven. The
multi-agency arrangements are designed to ensure that the safety of victims or potential
victims is paramount. 13 Moving offenders away

None of us involved in this process would be foolish enough to suggest we can eliminate risk 14 What risk?
The three tiers
entirely. What we have now is a more comprehensive picture of who is in our community,
and crucial information about them; information that didn't exist previously and, perhaps 16 Case: Abuse, then fury
more importantly, was not shared.

We can assure people in Essex that we are not soft on offenders. We also want offenders to
18 Risk Plans
What’s in them
know they will be dealt with fairly in accordance with the legislation currently in place.
20 Case: he wouldn’t give
Keeping the public informed is something we want to make a priority: assuring the ordinary up
person in the street, for instance, that the vast majority of sex offences are carried out against
victims already known by the offender and not by an opportunist. Making clearer, also, the 22 Case: Give and take
context in which we are working, and the realities of which all communities need to be Moving offenders away from
aware. victims

Looking to the future, we would like to think that if any serious incidents did occur during 24 Case: four years on
the MAPPA process, we could demonstrate that we had done everything within our power to
prevent it happening and that it was not down to poor practice. We want everyone in Essex
to feel that the safety arrangements we make are sound, make sense, and have their best 26 Registration
interests, and those of their families, at the heart of what we do.

Mary Archer
27 MAPPA: the reality
Roger Baker Nigel Smith
Chief Officer of Probation Governor HMP Chelmsford
Chief Constable 28 Strategic Management
the Business Plan

35 Contacts
Making Public Protection work
The greater the collaboration between
agencies, the more effective is Public
Protection. Local arrangements for
closer working on difficult cases were
developed in Essex during the 1990s.

Making formal arrangements locally

In 1997, a police initiative in setting up
an agreement to discuss joint arrange-
ments for managing a few specific
cases, produced a new, successful
working relationship between
IS Probation, Police and Social Services.

The first MAPPPs
Arrangements for Multi-Agency Public
Protection Panels (MAPPPs) were
confirmed in 2001, when the Police
and Probation Services in Essex signed
the first MAPP protocol. They were
sooned joined as signatories by the
Social Services bodies in the county.
Since then, the agencies signed up to
play their part in protecting the public
include Learning and Social Care,
Health, Statutory and Voluntary
Housing, Youth Offending Services, and
importantly, the Prison Service, which
has become a Responsible Authority
alongside Probation and the Police.

Not just on paper

The Multi-Agency Public Protection
Arrangements, now known as MAPPA,
are far from a paper protocol. They set
out to make co-operation and plan-
ning for dangerous offenders both a
duty and a regular practicality.

Including others who can help

Representatives from other non -
signatory agencies are called in when
their contribution will add to
protection planning.

Harmful crime Agencies across the
county have a duty to
co-operate and to share
Managing risk
in hostels
information, under the

- sharing the job

Hostels, known as Approved
Multi-Agency Public Premises (APs) form an
important part of the MAPPA
Protection Arrangements system for protection, and
provide an enhanced level of
supervision for certain offenders.

This is the safest, most controlled

accommodation option available
Dangerous offenders are every- and is significantly safer and
where – in very small numbers. more effective than allowing
The undetected, as well as those potentially high-risk offenders to
already convicted of serious disperse into the community, as
offences. We need to manage they could well do. They are not
them and reduce the harm they subject to any term of imprison-
can do, through a variety of ment. Bed and breakfast, local
strategies, which must also authority housing, and privately
include increasing public aware- rented flats offer much less
ness of the way communities can secure forms of accommodation.
help themselves.

Such has been the success of

MAPPA – the Multi-Agency Public
Protection Arrangements – that agencies in
Essex have a much clearer understanding of
their own roles, and those of others, in
combining to manage the serious offender.
Domestic Abusers, Sex Offenders and other
violent people are being contained through a
meticulous system which enables all
agencies to contribute to the management meetings, in each large Essex town, work
package for each offender. extremely hard on individual cases to
maximise the amount of protection they
This is small comfort to the public when the APs are not specialist treatment
provide. 99.4% of Probation supervisees
centres for sex offenders. Any
comparatively few re-offend. People are assessed as high-risk do not re-offend.
offender referred to an AP is
understandably horrified, both at the nature assessed for risk before being
of the offence, and at the failure of the Achieving the public’s complete under- admitted. Where an offender is
authorities to provide complete protection. standing of the impressive job done subject to MAPPA, the risk assess-
Logic tells us that there is no system in the through the MAPP Arrangements, but also ment takes in the views of other
world which will provide total safety, but the realities of the context in which they local agencies, so each referral
personnel attending the monthly MAPPA work, will be a long-term task. can be subject to other levels of
scrutiny before a decision
99.4% of Probation is taken.
supervisees assessed
as high-risk Public protection measures in APs
do not re-offend include standard curfews,
extended curfews on the order of
the court, Parole Board, or the AP
Explaining the job:
MAPPA Manager Manager; stringent internal and
Allan Taplin; external security measures,
MAPPA Lay including CCTV coverage,
Member John alarmed exits and restricted
Downing; a window openings; electronic
Probation monitoring facilities; regular visits
by police public protection
Alun Gower;
Lay Member officers; on-site drug testing;
John Blaize monitoring and recording of
and incoming mail; routine
Asst. Chief observation and recording of
Constable residents’ behaviour, and a
robust enforcement system,
talk to Dave including the facility to initiate
Monk on fast-track recall to prison.
BBC Essex


Under MAPPA’s wing....

another type of crime receives
the MAPPA treatment
MAPPA has proved its Probation’s new Integrated Domestic Abuse Programme (IDAP) requires a full
assessment of the risks posed to partners. To do a comprehensive job on this vital
worth with dangerous piece of work, there is a need for all agencies to take part. It was decided to use
offenders. the extremely effective Information Exchange process already existing within MAPPA
for this purpose. All cases involving the IDAP programme would be drawn into this
Not automatically
Level 1 meeting.
included in MAPPA’s
oversight, however, As with other offenders, a monthly Information Exchange meeting is held in each
of the six Probation offices to carry out a full risk assessment on the offender and
were offenders to identify any specific risks to victims or potential victim. The 'Core' Group
convicted of domestic attending these meetings:

abuse – a different kind

• MAPPA Manager
of violence, but lethal • Local Senior Probation Officer
nonetheless. • Police Public Protection Unit Officer
• Local Police Domestic Violence Liaison Officer
• Probation Woman Safety Officer - represents victim
The inclusion of IDAP cases into
MAPPA explains the significant • IDAP Programme Facilitator
overall growth in referrals over the • Children & Young Persons Service (Social Services)
past year. As a result the MAPPA
Business Plan includes a review of
current practices and resources The meetings follow the same format for any other offender referred to the MAPPA
to ensure continuing process but in this instance the victim issues are brought to the meeting by the
protection for victims, and
Women’s Safety Worker as opposed to the Probation Victim Liaison Officer.
sharp risk management.

Potential for disaster

During the course of the year 213 IDAP offenders were discussed at MAPPA, of which 19 were
considered of such significant risk that they were referred to a Local Risk Management Meeting
(Level 2). Almost all of the offenders were living in the community, so the potential for further
An average of
harm to their victims was high. In many cases comprehensive plans had to be put in place to two women
prevent this which included:
every week are
• Enforcement of a 'restraining order'. killed by their
• Installation of Police panic alarms.
abusers in
• Contingency plans to remove potential victims to a safe place.
• Ensuring adequate child protection measures were in place and/or making Child Protection a domestic
Referrals to the Children & Young Persons Service.
• Continuing liaison between all agencies outside of the regular MAPPA meetings.
• Strict enforcement of the terms of the Community Sentence and speedy 'breaching' of
offenders for non compliance.
Success can only come if the offender Offenders who are responsible for Domestic
Violence do it to control a situation, or their
learns to accept responsibility for his use of partner’s actions, thoughts, or feelings. And
it’s part of a pattern, not a one-off accident.
abusive behaviour, to recognise the People who stand any chance of changing must get to

intentions behind it, and the impact it has grips with serious contradictions in their thinking.
For the male domestic abuser using instrumental violence
on his partner and family. against a female, the Integrated Domestic Abuse
Programme uses ‘joined-up’ services to deal with the
problem, and relies on inter-agency management – MAPPA
being a key player – as well as work done with the victims
themselves. Women’s Safety Workers keep the victim
informed, consult her, assess the risk she faces, and check
on her safety. She will eventually decide if her life is safer;
if she can ever trust the man again.
Much will depend on his progress with IDAP, which will
target various factors: his distorted thinking; his emotional

I ntegrated D omestic A P buse rogramme

awareness; the social skills he lacks, such as assertive
behaviour, negotiation and conflict resolution, as well as
coping, non-controlling behaviours. He must learn the
techniques of stopping and thinking before
acting, anticipating stressful events, and
using both his own newly developed
internal resources, and external
Y networks of support to
PH draw on when in a

Making and/or carrying out threats Making her afraid by using looks,
to do something to hurt her; actions, gestures; smashing things;
threatening to leave her, commit destroying her property; abusing
suicide, report her to welfare; pets; displaying weapons.
making her drop charges; USING
USING making her do
ECONOMIC illegal things
Putting her down; making her feel
bad about herself; calling her names;
Preventing her from getting or keeping a job; making her think she’s crazy; playing mind
making her ask for money; giving her an
allowance; taking her money; not letting her
know about or have access to family income.
POWER games; humiliating her; making her feel guilty



Treating her like a servant; making all the

CONTROL Controlling what she does, who she sees
and talks to, what she reads, where she goes;
big decisions; acting like the “master of limiting her outside involvement; using
the castle”; being the one to define jealousy to justify actions.
men’s and women’s roles.
Making her feel guilty about the Making light of the abuse and
children; using the children to relay not taking her concerns about it
messages; using visitation to harass seriously; saying the abuse didn’t
her; threatening to take the happen; shifting responsibility for
The children away. abusing behaviour; saying
she caused it.
Duluth PH
Power YS
and Control S

a graphic illustration used in IDAP
Under MAPPA’s wing....
another type of crime receives
the MAPPA treatment....

Offering emotional and practical

support to traumatised victims
takes patience, tact, and clarity of
Keeping the victim safe
Apart from the women they can
immediately help, there are those
in danger to whom Women’s
Domestic Abuse Safety Workers offer assistance,
is a regular killer. gently, patiently, for months before
getting a tentative response, or, as
Women’s Safety in the case of Rosalind, a sudden
emergency call.
Workers are required
by Probation’s Aged 38, Rosalind had experienced
Integrated Domestic serious domestic violence since her
early 20s. A high-powered business
Abuse Programme to woman with countless injunctions
keep in touch with the and hospital visits behind her, she
felt shame at being able to
victim and keep her
manage people at work, but not
informed of progress. her own life. After a year of
They consult her, occasional secret telephone
contacts, her WSW received a
assess the risk she frightened call requesting
faces, and check on immediate help. Serious violence
had occurred again. Three hours of
her safety.
talking resulted in admittance to a
Refuge. Even this was not
Police Domestic sufficient to hold the woman:
she was back at home soon
Violence Liaison afterwards.
Officers have an The job continues of
building up the victim’s self-
equally important part
esteem sufficiently that she can
to play, both in make good decisions for herself.
ensuring the woman’s Information
WSWs maintain contact with
safety and in some of the people who have been
implementing MAPPA moved out-of-county by the Police
Domestic Violence Liaison
Officers. One such woman uses
her worker as the only source of
Probation’s Victim good information about her
seriously dangerous ex-partner,
Contact Unit currently on the Probation
represents the victim’s programme.
Important joint work
views in non-domestic
Close work with the Police has been
violence cases. fruitful, both in ensuring a woman’s
safety, and in feeding important
information to those working directly
All come under the with the offender. Equally important
MAPPA aegis. are contributions from a WSW at a
Multi-Agency Public Protection
meeting during the planning process
for managing a dangerous abuser.

Trust are women not only in the county, but Hours of work
A Women’s Safety Worker needs the living elsewhere in the UK or abroad Unstinting dedication to the job, long
commitment and compassion which who owe their new-found autonomy and hours: (“When people are relying on you
makes her trusted by the women who safety to her hard work. for immediate assistance, you can’t say
find it difficult to share their pain with Care needed I'll do that next week,” says Dee) – along
anyone. “We help these people to know they can with their contribution to preventing
Dee Wood, who was in at the beginning regain some control in their lives,” says re-offending, make WSWs vital
of this initiative in Essex, spends many Dee. “Even then, we have to be careful contributors to MAPPA.
an hour either on the phone or in person for the victim: in asserting control, she “Sharing of information and making
helping women to face the issues which can be in more danger – when her partner the necessary plans together is plain
could lead to greater safety. In the short notices the difference, and doesn’t like it. common sense,” says Dee.
time she has been doing this job there Safety planning is a must.”


In a prison cell,
because his
attitude caused

He became infatuated with his Licence period – four months – would would boost the existing court
victim following a casual meeting. follow his release. Restraining Order, which remains in
After that, he wouldn’t leave her alone. The case was referred to a MAPPA Level place indefinitely. In addition, the Police
He started to stalk her, staying close to 2 meeting (Local Risk Management). agreed to install a panic alarm.
her, phoning her, and his continuous, The Probation Offender Manager knew ....and further...
frightening harassment was not prevented he still posed a risk: he had no concerns MAPPA also decided that he should be
by a short prison sentence, or a for his victim and was still fixated. accommodated at Probation Approved
Restraining Order. He used every MAPPA decides Premises, so his movements could be
opportunity to get in touch with her. The victim was represented at the LRMM monitored. The plan included a night-
What would he do next? by the Probation Victim Contact Unit. time curfew and reporting back to the
Following further offences, he was They requested that MAPPA ensure that Premises at two-hourly intervals: he
sentenced to 21 months’ imprisonment. there were conditions inserted into his would have no time to try to visit the
However, he’d been remanded in Licence of non-contact, and an Exclusion area where his victim lived.
custody for a while, so his release date Zone, to prohibit his entering the area Questions over attitude: recall
was due only two months later. A short in which she lived. Such provisions Only four weeks after his release, his

Fixated on his victim,
he posed a continuing

Offender Manager could see that he was Changes

depressed as a result of the stringent However, this time, his attitude toward Text harassment is
controls in place. He also appeared to be his victim appeared to have changed against the law.
blaming the victim, harbouring dramatically. He spoke of how he now
continued resentment towards her. Risk wished to move on, get on with his life. Save the messages; do
had therefore increased. Probation He successfully completed the remaining not reply to them, and
licence period without mishap, and has report it to the police.
recalled him to prison.
relocated far away from his victim.
MAPPA ready to react again
He was released on the date his Licence Phone companies can
The Restraining Order still exists, and also offer help, so contact
would have expired, had he remained at MAPPA will respond again if it is ever yours to discuss and to
large. In view of the recall, his Licence necessary. ask for a new number.
period was extended by three months.
The same restraints were agreed at the
MAPPA planning meeting.

“In Essex, sharing vital
information took place before
MAPPA came into being.
The arrangements we have
made since MAPPA’s inception,
however, have contributed more
than the public will ever know
to their safety.”
Eric Aryee
Assistant Chief Officer, Probation
Chair of MAPPA Strategic Management Board

“Over the last year MAPPA has

contributed significantly to the
identification of many children at
risk, and the development of
effective child protection plans for
them.We take our responsibility to
contribute to the MAPPA
processes very seriously.”
Sue Hadley
Head of Child Protection and Safeguarding
Essex County Council

“It is good to work with professionals

who are resolved to protect the public
and work with victims. We are adding
to the MAPPA resource to ensure that
each Basic Command Unit has a
Monitoring Officer to work as a team
with the Probation Offender Manager.”
Bob Chatterton
Detective Chief Inspector - Intelligence
Essex Police

I speak for
the public
in Essex.....
The public is represented on
MAPPA’s Strategic
Management Board.

Two lay members speak up for

Essex when decisions are
made at the highest level.

One of them, John Downing,

talks about the job.....

Lay advisers to the Essex MAPPA Strategic

“ Management Board were formally appointed in

June of 2005 and so a full year has passed upon
which we can reflect, and review our progress.
At the Strategic Management Board.... John Downing (left)

In truth, coming into the MAPPA process as “outsiders”, we

were both apprehensive about the levels of co-operation
I was pleased to be invited by the SMB onto a working group
earlier this year which had been given the task of developing
needed between the Police, Probation, Prison Services and a the Essex MAPPA business plan for 2006/07. Hopefully my
host of other agencies for the Public Protection Arrangements previous business expertise was of some use to the group.
to be effective. We can, however, confidently report that the Our final plan has recently been adopted by the SMB and we
co-operation between every agency is extremely strong and now have a strong strategy for ensuring that we can grow and
we believe that the success of Essex MAPPA is largely down adapt for the foreseeable future.
to this.

Apart from the quarterly SMB meetings, we have also been It would be wrong for us to miss this opportunity to thank the
attending Information Exchange meetings at local Probation MAPPA Manager Allan Taplin and his team for all their hard
Offices. It is gratifying to observe detailed offender work and dedication over the last year……a job very well
management plans being put together in such a professional done.
and consistent way, with everyone working hard to prevent
re-offending and give full and continued support to victims.
i ”
What Risk?
A three-tier system used country-
wide ensures that the most
dangerous offenders receive the
greatest degree of scrutiny and
oversight, and that other less
serious offenders are correctly
filtered out.
There were 713 MAPPA referrals

this year: a 65% increase on the
previous year. Domestic Abusers
account for a good part of this
additional work.

Of the 713 referrals, 636 of them

remained at Level 1 – the lowest
risk. 64 were at Level 2, and 13 at
the highest level.

Increasing numbers demonstrate

the cumulative nature of these
statistics: MAPPA will still be
managing many of last year’s
cases, as well as those who have
recently been caught and

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The vast majority of cases remain at Level 1:

Information Exchange
Probation brings cases due for release from prison or convicted by
the courts and made subject to community supervision; the Prison
Service identifies ‘relevant offenders’ on reception, or those who are
scheduled for release. The Police hold the Sex Offender Register.
Other agencies aware of cases bring them also.
9 out of 10 offenders
Decisions will be made about the level of risk and whether more than referred to MAPPA stay at
one agency is needed to manage it. If there is risk causing concern, this lowest level of risk
the case will be dealt with as Level 2, or, in the case of the critical
few, a Level 3 Multi-Agency Public Protection Panel Meeting will be

Abuse, then
cold fury
Domestic Abuse takes
different forms: all with
the aim of controlling
a partner

After his partner
made allegations of
serious sexual and
physical assault, he
went for broke.

While awaiting trial for the needed to deal with. In the during the day would prevent
assaults, and already months before his release, a hurried visit to Essex.
subject to the court’s bail MAPPA held a number of Threat of further prison
conditions not to return to meetings, at Level 2. He was escorted to the
the family home, he went Concerns raised Approved Premises on
there, piled up clothes, His partner had mental health release, by Probation staff,
furniture and other items problems and his daughter who explained the plan and
near the window and set was living with foster parents. conditions he was facing.
fire to them. Social Services raised concerns Should he not comply, a
Damage at the MAPPA meeting about return to prison was likely.
No-one was hurt, but the fire contact with the daughter on Given the extended licence
caused extensive damage to release from prison: he had period, until 2012, this could
both his property and that of told his case manager that he mean a long time in prison.
his neighbours on both sides. hoped to live with his child. Emergency
Not on register Potential targets At first, he appeared very
When he appeared in Crown The main risk would be to his compliant. Two months later,
Court on the Arson charges, previous partner. He had however, he did not return to
he was sentenced to four offended against her on at the hostel on time. Probation
years, with an extended least three occasions. Also at applied for his licence to be
licence of 6 years. The original risk was the child, and most revoked.
charges of sexual and probably, her carers too. Protection set up
common assault against his Keeping him away Although his partner had re-
partner were left to lie on Finding him a placement at located while he was in
file. This meant that he Probation Approved premises prison, and it was unlikely he
could not be placed on out of the area, to prevent any knew where she was, steps
the Sex Offender contact with his partner or the were immediately taken to
Register. child, was the first priority. protect her, and her daughter.
No parole Licence conditions were The Probation Victim Liaison
He became eligible to planned to prevent him from Officer and Divisional Police
apply for parole 18 having any direct or indirect Domestic Violence Officer
months later, given the contact with either of them. made contact, and agreed a
long period he’d been An exclusion zone around protection plan with her.
in prison awaiting trial where they lived was also Recall to prison
for Arson. Parole was important. The police were tasked with
refused, however. He Police agree disclosure finding and arresting him.
was due out in six Disclosure of his photo to the Within hours, he was found at
months, even so, foster parents was agreed by a relative’s address. He said he
which led his Probation the Police: they needed to be panicked when he realised he
Offender Manager to able to recognise him, just was late for his return. He was
refer his case immediate- in case. arrested and returned to
ly to MAPPA Information No time to visit prison, where he currently
Exchange, and thereafter to Finally, a night-time curfew remains.
a Level 2 Local Risk and a requirement to report
Management meeting. There back to the Approved
were a number of issues they Premises every two hours


Risk Management Plans:

What’s in them?
Who makes them?
There have been hundreds of cases referred to MAPPA since the
arrangements were formalised. All will need careful attention, at whatever
level of meeting they are dealt with.
This case illustrates a simple Risk Management Plan which needs
involvement from the two main actors in MAPPA: Police and Probation.

His victim was 13.

He was young too, but not that young. Given his new status, Probation would
take on his Licence after his release,
while the Police would monitor him as
Convicted of a number of less serious a Registered Sex Offender.
offences, he had been supervised by the
Youth Offending Team. He then indecently The plan:
assaulted the young teenager. An aggravating • Probation Victim Contact Unit to liaise with
factor was his attempt to interfere with the victim and her parents to discuss
witnesses prior to the court case. He received suitable Licence conditions, including
12 months Youth Custody. prevention of contact either directly or
indirectly with the victim and her immediate
Prior to his release, his case was referred to • An exclusion zone around the victim’s
the lowest level of meeting, the MAPPA address and where she attends school
Information Exchange. It was decided that • Probation Offender Manager and Police
this was a case for more than one agency’s Monitoring Officer to assess suitability of
involvement, and therefore was at Level 2. proposed release address.
The IE members put together the Risk • Offender Manager to remind him of the
Management Plan, and avoided a referral to a requirement to register as a Sex Offender at
further planning meeting. his local police station within 3 days of his
• Police to undertake a monitoring visit within
14 days of release, and thereafter at
monthly intervals for an initial period.
• Police and Probation to continue to liaise
outside of the Information Exchange
process, and also arrange joint monitoring

Many cases are discussed at Level 1

Information Exchange Meetings, and are
then treated as a Level 2 at that meeting,
with full Multi-Agency Risk Management
Essentially a Level 2 case from the
beginning, this one will feature as an IE,
and not Level 2, in this year’s statistics.

Less of a risk to grandchildren
A retired Maths teacher, aged his wife, produced real concerns for many of as periodic surveillance. However, the family
66, had been giving private the MAPPA members. Just as he had hindered and delayed the process, reluctant
lessons to young girls. He minimised his offending, placing the blame to co-operate. MAPPA decided that until
sexually assaulted them, then on his victims, it was apparent that his wife such times as a full assessment and focussed
tried to intimidate them into not shared his views. Added to this, she work was completed, he would not be
frequently cared for their three young allowed to return to the family home.
acting as witnesses at his trial.
grandchildren who lived nearby, and their He is a risk
A repeat of previous offences
This was not the first time he had offended father seemed to collude in relation to his A subsequent piece of work by the Social
in this way: something similar happened own father’s offending. The risk to the Services Department confirmed the fears
eight years before. This time he was children was considered to be too great. within MAPPA that he could pose a risk to
sentenced to four years’ imprisonment, with Not allowed home his grandchildren or any other child he came
nine years’ extended supervision on release. Arrangements were made for him to be into contact with. The family were informed
He was banned for life from working with accommodated on release at Probation that until these areas had been addressed
children. Approved Premises, until Social Services satisfactorily, he could not return home.
Preparation could complete their checks on the risk he Continuing oversight
Some months before his release, his case posed. He has now moved out of Approved
was referred to MAPPA, to start the Family not co-operating Premises into independent living. Police and
planning process for managing him on his Licence conditions prevented him from Probation both visit him to ensure he
return home. having any unsupervised contact with remains at his address. He will stay there
Home checks throw up a problem children, in addition to specific conditions until the risk he poses appears to have been
A first move, to check out his proposed regarding previous victims. Visits by Police eliminated or can be properly managed.
release address, the home he shared with monitoring officers were arranged, as well


Determined to
harm her,
he would not
give up

There are significant re-victimisation issues surrounding

many domestic abuse cases. MAPPA must always bear
these in mind when planning to manage a perpetrator

The victim was in the early Partner with parents Combined work Prison
stages of pregnancy. As he As part of the risk manage- MAPP Arrangements came Still he tried to harrass his
assaulted her, he jumped ment plan, the Police into play: it was decided that partner, making unsolicited
on her tummy, claiming the Domestic Violence Liaison Police and Probation would phone calls to her from the
child wasn’t his. Officer was tasked to contact combine to deal with the prison, until liaison with the
Previous abuse the partner. It was discovered problem. The Police warned prison establishment stopped
The ensuing Court Order, for him about his behaviour. Soon him phoning.
Common Assault, soon threw afterwards Probation took While he was on remand, his
up more information about He jumped on him back to court, in breach partner gave birth to a little
the man’s habits. His partner her tummy, boy. He finally appeared in
of his order. The court allowed
had sustained considerable Crown Court four months
claiming the order to continue.
abuse before eventually after his arrest, and was
reporting it to the police. her child He wasn’t prepared to stop,
sentenced to 10 months
Probation referred the case to imprisonment. However, he
the MAPPA Information
wasn’t his however. Two months later, had served time on remand,
Exchange. he committed a further and was released almost
Fear offence: that of criminal damage immediately.
The meeting heard that his that she had moved back in to his partner’s property. Re-arrest
partner had just left him, but with her parents. However, When arrested, he committed He was arrested again as a
was still getting unsolicited their address was near his, three further offences of result of the harrassment of
telephone calls from him, and and he was fully aware of assaulting police officers. He his partner from the prison,
was very frightened. their location. was remanded in custody. and sentenced to a further

28 days. A Restraining Order months’ in prison. Further
was made at the same time. He came out charges of kidnapping were
Panic alarms discontinued through a lack
MAPPA had tasked the of prison, and of evidence.
Domestic Violence Liaison waited only a
officer to maintain contact Further work needed
with his partner, keeping her
day before He still poses a risk to his
fully aware of what was snatching partner. MAPPA will keep his
happening. Arrangements their son case under review, and in
were made for police panic view of the imminence of
alarms to be fitted both in her further offences, he will be
property and that of her the police immediately subject to a Level 3 MAPPP in
parents. responded. He was arrested preparation for his return
Snatch close by. The little boy was from prison.
When released from custody, returned to his mother,
he waited for one day only uninjured, but distressed.
before he went to his partner’s No evidence for kidnap
house and, when she opened A subsequent conviction of
the door, holding her baby Harassment, Breach of a
boy, he snatched the child Restraining Order and
and ran off. The victim Common Assault led to a
pressed the panic alarm and sentence of a further 18


This happened


The MAPP Arrangements provide the opportunity to remove a dangerous offender from the county,
in the knowledge that they will be under similar surveillance in another MAPPA area. This reciprocal
understanding, ensuring extra protection when needed, must be carefully prepared for. MAPPA
personnel will often visit another area, to discuss, explain and help set up the management strategy.

Moving an offender
from one county to
another to enhance
safety: it reduces
the risk, shares out
the responsibility.

He was brought

last year: What to this county

because he
posed a risk to
an individual

happened victim elsewhere.

Essex exports
offenders to

other counties
for the same

A man was sentenced to 6 years’ imprisonment in 2001 for offences of indecent assault
and kidnap of a 17-year-old young woman: a stranger attack which could have been far
more serious had it not been for the intervention of the public. He had a previous
conviction for a similar offence and was suspected of having committed others that could
not be proved. He was still considered to pose a significant risk.

A Level III Multi-Agency Public Protection Panel meeting was convened to produce the risk
management plan. He posed a serious risk to vulnerable victims in his home area. We agreed
transfer of the case to Essex in the overall interest of public protection. He has no ties in any
other part of the country and he has a local connection to Essex: his father and son live locally.
Meetings were held with the MAPPA representative from the home area, to build up a picture of
the offender, and to agree the plan:

• A requirement for him to reside where directed.

• Licence conditions to prevent him from having access to or working with children.
• Curfew conditions.
• Regular testing for alcohol consumption.
• A requirement for him to register with the local Police as a Registered Sex Offender.
• Regular monitoring by the Police Public Protection Unit and monitoring visits by the Police and
Probation Case Manager.

It was recognised that it would not be possible for him to attend the Thames Valley Sex Offender
Groupwork Programme. The short duration of his licence would prevent him from completing it, and there
were doubts as to his level of understanding and whether he would be able to fully comprehend it. Instead,
the Case Manager was tasked to undertake 'one to one' work in order to give him techniques to prevent him

Before his period of supervision with the Probation Service came to an end, the Housing Liaison Officer
assisted him in finding privately rented accommodation in another area. Nonetheless, before he was allowed to
move in, both Police and Probation carried out an assessment as to its suitability.

At the end of the statutory period of Probation supervision, he was offered voluntary contact with the Probation
Service as a means of re-enforcing the techniques that he had learned to prevent re-offending. Although they are not
required to do so after a Licence is completed, serious offenders can and will avail themselves of this extra help. After
a period of time, however, he broke off contact with the Probation Service. He will remain on the Sex Offender
Register indefinitely and the police will continue to monitor him regularly, bringing the case back to MAPPA if they
need to, irrespective of the end of his involvement with Probation.

Still managing a four-
year old case
He was referred to
MAPPA in 2002,
and still needs
regular oversight.
Not all cases fit neatly into a
Children who are already contact with children and residence as
directed by the Probation Service. Having
vulnerable can be easy prey
registered as a sex offender with the police,
for sex offenders. She was 8 he was subject to monitoring visits.
years old, and living in a hotel
used for housing homeless He was reasonably compliant to start with.
families and individuals. There were no immediate issues with his
behaviour initially. However, within 2 or 3
months staff were not satisfied that he was
He saw his chance, was nice to her, and
making efforts to deal with his alcohol
invited her into his room to help with his
problem. After a written warning, Probation
video. He had a similar conviction of
recalled him to prison.
indecent assault 15 years previously, the
victim being his little sister.
He appealed the decision to recall twice; the
A heavy drinker, his alcohol consumption Parole Board refused his appeals and he
acted as a disinhibitor to offending. This stayed in prison until last year – which
time, he blamed his new victim. “She would have been the end of his Licence
started it,” he said, claiming the child was period. The Parole Board extended it by six
older than her years, and that she indicated months, to allow time for the Probation
her interest in him. He went to prison for Service to be involved in his resettlement.
two years in 2001.
During his time in prison, he had completed
On release, his Licence conditions included the Extended Sex Offender Treatment
attendance at the Sex Offender Treatment Programme. It demonstrated that he still
Programme; dealing with his alcohol posed a significant threat to young girls if he
misuse; not to work or have unsupervised became friendly with a family.

This time only two weeks after his release,
he started drinking heavily, and was again
recalled to prison. On his subsequent
release, there could be no more Probation
involvement: the Licence period would have
finished for good.

MAPPA, including Probation, continued its

oversight, however, and held a number of
Level 2 planning meetings in the build-up to
his release. A Local Authority accepted
responsibility for the housing issues, and
working in conjunction with MAPPA, identified
accommodation in a Housing Project.

Within weeks of his release, the Police

decided to make a limited disclosure to
schools in the local vicinity, and to go the
the courts for a Sex Offender Prevention
Order, which will act in a similar way to
Probation’s Licence conditions.

He is subject to single agency management

now, by way of Police monitoring and Sex
Offender Registration. MAPPA will continue
its oversight of his case.

How much at risk

are our children?

Sex offending is rare. The

vast majority of children will
not come into contact with
anyone wishing to harm

The likelihood of an offence

being committed with a child
is overwhelmingly greater
within the family – a father,
grandfather, uncle, step-
parent, for instance. These
account for the majority of
sex offences before the
courts. A family friend can
also disarm a young child
into feeling safe with them.

Offences are committed by

someone taking the time and
trouble to “groom” the child
with gifts and friendship. The
case of a child being
snatched or pounced upon is
fortunately very rare.

The numbers: they continue to register
Numbers accumulate as more offenders appear in court.

Whether for major or minor offending: all must register

Category 1 MAPPA offenders: Registered Sex Offenders (RSOs))

i. The number of Registered Sex Offenders living in Essex on 31 March 2006 802

The number of RSOs per 100,000 head of population 49

The number of RSOs by BCU: i) South Western, ii) South Eastern, iii) Eastern, iv) Western, v) Central SW 183, SE 157,
E 168, W 110, C 184

The number of sex offenders having a registration requirement who were

either cautioned or convicted for breaches of the requirement, between April 1
2005 and March 31 2006 38

The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) (a) 34
interim SOPOs granted and (c) full SOPOs imposed by the courts between (b) 2
April 1 2005 and March 31 2006 (c) 33

The number of (a) Notification Orders applied for (b) interim Notification (a) 2
Orders granted and (c) full Notification Orders imposed by the courts between (b) 2
May 1 2005 and March 31 2006 (c) 2

The number of Foreign Travel Orders (a) applied for and (b) imposed by the (a) 0
courts between May 1 2005 and March 31 2006 (b) 0

Category 2: Violent offenders and other sexual offenders (V&OS)

The number of violent and other sexual offenders (as defined by Section 327
(3),(4) and (5) of the Criminal Justice Act (2003) living in Essex between April 1
2005 and March 31 2006 240

Category 3: Other Offenders (OthO)

The number of other offenders (as defined by Section 325 (2)(b) of the
Criminal Justice Act (2003) living in Essex between April 1 2005 and March 31
2006 27

Offenders managed through Level 3 (MAPPP) and Level 2 (local inter-agency management)

The number of offenders in each of the three categories above: (a) RSOs, Level 3 Level 2
(b) violent and other offenders and (c) other offenders, who have been (a) 8 (a) 13
managed through the MAPPP (level 3) and through local inter-agency risk (b) 4 (b) 25
management (level 2) between April 1 2005 and March 31 2006. (c) 1 (c) 26

Of the cases managed at Level 2 or 3 between April 1 2005 and March 31 2006, how many,
while managed at that level:

Level 3 Level 2
were returned to custody for breach of licence 2 8

were returned to custody for breach of a restraining order or sex offences

prevention order 0 0

were charged with a serious sexual or violent offence 0 0

MAPPA: the reality

Fact: Fact:

A third of the working year No-one at the highest level

is devoted to MAPPA of risk committed a further
case planning serious offence
The Information Exchange process was used for the
Eighty days were spent planning the management of timely identification of the ‘critical few’ offenders
MAPPA cases this year – a third of the working year. considered to pose a significant and imminent risk to the
No calculation has been made about the work put in by public on their return to the community from prison.
the agencies, between each MAPPA meeting, to In the main, offenders were referred to IE four to six
implement the plans they have all agreed for each months prior to release, and subsequently discussed at a
individual. full Level 3 MAPPP meeting. The ensuing risk manage-
ment plan was implemented prior to, and post, release.
13 offenders were discussed at MAPPPs. Some were
later recalled for breaching licence conditions – the
Fact: Probation Service acts swiftly in these cases, and the
infringements can be very minor ones. None had
committed a further serious offence.
Registrations are up
The number of sex offenders required to register with
the Police continues to grow. This year, the figure was Fact:
802. When the first MAPPA Annual Report was
published, the figure was 365. This is NOT a massive
escalation in offending – the numbers accumulate as The numbers managed at
newly-convicted offenders are added to the register.
Many will be subject to the restrictions of registration for Level 2 are lower
the rest of their lives.
The number of cases discussed at Level 2 (Local Risk
The Police have a continuing responsibility to monitor Management Meetings) decreased from 84 in 04-05 to
these people far beyond the period of their Probation only 64 in 05-06. What has become apparent is that a
supervision. If they fail to comply with registration significant number of cases discussed at the first level
requirements, they face up to 5 years’ imprisonment. (Information Exchange) have been given similar priority,
and have similar multi-agency risk management plans,
to those at level 2.

The effect of this is that the statistics do not reflect the

Fact: significant amount of effort, dedication and allocation of
resources that has taken place this year.

Sex Offences Prevention Whether an individual is discussed at Level 1 Information

Exchange, or at Level 2 Local Risk Management meet-
Orders are up ing, is to a large extent unimportant. The crucial factor
is whether or not an appropriate Risk Management Plan
The number of SOPOs imposed by the courts in Essex is in place and implemented.In Essex, our Information
was 33 during the year, compared to a previous year’s Exchange process meets this objective, and allows far
total of 8. more offenders to be referred to MAPPA than otherwise
would be the case.
Aimed at preventing sex offenders from doing anything
which could trigger their own offending (preventing
someone from going to a swimming pool, or places The Essex MAPPA Business Plan for 2006-07
where children congregate, for instance), SOPOs are of includes reviewing current practices to more
significant benefit in safeguarding children. What would accurately reflect the Level 2 status of some cases.
normally not be an offence to enter a park, would be so The effect of this is that next year’s Annual Report
if a SOPO was in place to prevent it, and the offender will probably show a significant increase in these
could face up to 5 year’s imprisonment. Level 2 Local Risk Management cases.
Strategic Management Board - Planning for MAPPA

The role
To evaluate the operation of MAPPA in Essex.

To ensure robust links for information-sharing are

established with key agencies and structures (for instance
the Area Child Protection Committee) so as to enhance
MAPPA’s performance.

To monitor information-sharing processes

To secure appropriate resources which ensure the multi

agency public protection arrangements can be delivered to
a consistent and high standard.

To review local arrangements to make sure they reflect any

wider legislative or criminal justice or public protection


To approve and publish the MAPPA Annual Report and also

to confirm a supporting media strategy.

To take forward the development and delivery of a long

term MAPPA training strategy in conjunction with the
Eastern Region.

To review cases considered at Level 2 or Level 3 under

MAPPA, where a serious further offence takes place.
The membership
Thereafter to identify the learning and action points to
ensure that multi-agency working and the public protection • Assistant Chief Probation Officer • The Directors of North Essex Mental Health
arrangements are continually improved and reviewed. Partnership NHS Trust and South Essex Partnership Trust
• Assistant Chief Constable (Providers of Mental Health Services)
To review the quality of delivery of MAPPA, ensuring
adequate information is available to offenders, service users • Essex Police Director of Intelligence • Senior Manager Essex Job Centre Plus
and the public, taking into account ethnicity, gender,
disability, sexuality, class and age. • Senior Officer to represent Social Services • Prison Governor, HMP Chelmsford
(Essex, Southend or Thurrock)
To review and update the Protocol to ensure that it complies • Regional Manager, Essex Victim Support
with the national guidance issued periodically by the Home • Senior officer to represent YOT (Essex
Office. Southend or Thurrock) • Two co-opted members representing Essex PCTs

• Two lay advisors • MAPPA Manager

• A representative of the Essex Housing Officers group

MAPPA Strategic Business Plan 06-07
Essex Multi-Agency Public Protection Arrangements are established in accordance with Sections 325-327 Criminal Justice Act 2003, and Section 69 Criminal Justice
& Court Services Act 2000 for the purpose of assessing and managing the risks posed by sexual, violent and other dangerous offenders who may cause serious
harm to the public, taking particular account of the needs and concerns of victims.

This Business Plan identifies forward planning priorities for action by the Essex MAPPA Strategic Management Board (SMB) aimed at achieving outcomes of:

• Protection of the public, especially victims, children, vulnerable adults and additional 'at risk' persons

• Controlled criminality, and the reduction of crime and re-offending

• Community safety

• Offenders’ awareness of the effects of crime on victims and the public

• Public confidence in the criminal justice system and the public protection activity of agencies

• Compliance with the human rights of victims, offenders and communities

• Services and process compliant with agencies’ diversity principles and policies.

The Essex MAPPA Business Plan has been developed in the light of the practices The specific aims of the Essex MAPPA Business Plan will be to address the
and procedures that have evolved over recent years and additionally the four following areas:
Strategic Management Board have taken into account the following
1. MAPPA Development.
• Managing Sex Offenders in the Community – a Joint Thematic Inspection by
2. Monitoring & Evaluation.
3. Communication & Strategic Partnerships.
• Strengthening Multi-Agency Public Protection Arrangements – Home Office 4. Training.
Development & Practice Report 45.

• Probation Circular - 88/2005 MAPPA National Business Plans.

MAPPA Development

Strategic Aim Delivery Plan Milestones Resource Outcome

To ensure compliance of Essex • SMB to identify changes in National • Publication of MAPPA MAPPA Development National Guidance
Arrangements with the revised National Guidance and compare with current National Guidance Team. (MAPPA reviewed and any
MAPPA Guidance. practice in Essex (Apr/May 2006) Manager, Probation, necessary changes
• SMB to consult with ‘Duty to Co-oper- • Identify significant Police & ‘Safeguards’ implemented.
ate’ Agencies locally. changes and present Representatives and a
findings to SMB (July Lay Adviser).
• Implement change as

To review current MAPPA resources to • Review role, job descriptions & grading • Complete Review (July Police & Probation Roles reviewed and
ensure sufficiency in the light of of MAPPA Manager & MAPPA 2006). recommendations
significant increase in MAPPA referrals. Administrators to ensure appropriateness • Present to SMB (July implemented.
and consistency with other Areas 2006).
Regionally & Nationally. • Implement Changes
(September 2006)
• Review the current process of
'Information Exchange' meetings in • Complete review of Police & Probation Only High Risks
relation to RSOs & IDAP Cases to ensure current practice. (July cases are referred
appropriateness. 2006). to formal arrange-
• Identify options for ments but also to
change in practice. (July Police & Probation have processes in
2006) place to share
information on all
relevant offenders.
Monitoring and Evaluation

Strategic Aim Delivery Plan Milestones Resource Outcome

• To develop a system to enable the SMB • Establish a system to capture relevant Process for data capture MAPPA Manager Transparent,
to monitor and analyse MAPPA data. in place May 2006 defensible and
performance through the following key • Present to SMB for agreement accurate
areas: • Review risk assessment process to Present to SMB information,
• Analysis of risk management thresholds establish whether high/very high risk September 2006 available for
at Levels 1, 2 & 3 offenders are nominated appropriately. public scrutiny.
• Attendance and level of co-operation of • If nomination process unsatisfactory, Review ongoing SMB to feedback to
agencies at Levels 1, 2 & 3 develop and implement new system relevant agencies for Quarterly report to
• Diversity profile of offenders at Levels 2 (potential link to training strategy) additional training if be provided to SMB
&3 • Review attendance at MAPPA meetings necessary
• Performance to be recorded in the and, if necessary, identify and invite
Annual Report new attendees

For the SMB to improve the process for • Draft Terms of Reference for the Draft Terms of KG Lessons learned to
handling serious case reviews and serious Performance Review Group. Reference to be lead to improved
further offences through the establish- presented to SMB April MAPPA Manager public safety.
ment of a Performance Review Group. 2006
SMB Learning points
from Serious Case
Reviews to be
included in
2006/07 MAPPA
Annual Report
Communication and Strategic Partnerships

Strategic Aim Delivery Plan Milestones Resource Outcome

• The Respnsible Authority for MAPPA, Agree distribution audience JAN 07 SMB meeting MAPPA Manager and Increased staff and
with the SMB and the Lay Advisors, to - Data /information collation On-going Probation’s public understand-
publish and distribute an Annual Report. - Preparation of Report Feb/March 07 Communications ing about, and
- Press release TBC by Home Office Manager confidence in
- Distribution of Report As above Financial cost MAPPA.

Develop a longer term communication • To Target the following Audiences: RAs, Draft Communication MAPPA Development A multi-agency
strategy. DTCs, staff, Legislators, Media, Service Strategy to be prepared Team and Probation's staff group who are
Users, and Communities. by March 2007 Communication fully aware of the
Manager MAPPA methods
• To give the following message: and that have a
Information about the role and workings professional confi-
of MAPPA. How it works, what it does, dence of their role
what you can do as part of it. within it. Increased
confidence in the
• To use the following methods: a web- MAPPA processes
site, conference, training, articles in ‘own among communi-
organisations’ newsletters, MP seminars, ties in Essex.
approach TV/radio with a story to use,
leaflets, Annual report.

The SMB to ensure a process is in place Regular Public Protection Meetings for In place by July 2006 SMB member + staff Improved public
to support consistent sharing of guidance staff from relevant agencies to be from relevant agen- protection through
and good practice to all staff working chaired by a member of the SMB. cies. increased profes-
within MAPPA. sional confidence
and consistency
amongst staff.

Strategic Aim Delivery Plan Milestones Resource Outcome

To conduct a training needs analysis of • Consultation with MAPPA practitioners Training pack
the MAPPA arrangements in Essex. • Reference to the National resource pack assembled and in
place to support
local training

Deliver Essex MAPPA conference • To plan and organise MAPPA SMB Raise MAPPA
conference to disseminate current awareness.
developments and promote shared good MAPPA Development
practice Group. Shared good prac-
tice in relation to
legislative develop-
ments that support

Develop long term training strategy to • Preparation of strategy document Training strategy
deliver appropriate training to existing • Consultation with MAPPA practitioners published
and new practitioners within the MAPPA • Reference to National resource pack
arrangements Include MAPPA train-
ing within current
joint agency train-
ing courses.
Deliver an Induction
session for new
MAPPA practition-
Contacts Allan Taplin, Essex MAPPA Manager
01245 452767

Eric Aryee ACO

National Probation Service - Essex Area
01376 501626

John Broughton ACC

Essex Police
O1245 491491

Sue Hadley
Essex Social Care and Learning Services
01245 492211