Annual Report 2003/4

for England and Wales


MAPP Annual Report 2003/4

Multi-agency Public Protection

Gloucestershire Area

1. Introduction
This is the third annual report covering Gloucestershire’s Multi-agency Public Protection Arrangements. (MAPPA). These arrangements have developed into a highly effective process that allows some of the most difficult and problematic offenders to be managed in a way that helps to protect the public and improves safety for our communities. This year saw the introduction of more officers within the police to support the MAPPA process. These officers have added to the professional way the agencies involved protect the public, and have provided closer monitoring and supervision of offenders. These arrangements will continue to develop through 2004/05. The Prison Service is now a MAPPA ‘responsible authority’ – sharing joint statutory responsibility for these arrangements with the Police and Probation Service. Lay advisors will join the Strategic Management Board in 2005 and bring a different perspective and experience to the work of the Board. The Criminal Justice Act 2003, also introduces a ‘duty to co-operate’ with the MAPPA, for Housing Authorities, Registered Social Landlords, Social Services, Primary Care Trusts, Jobcentre Plus, Youth Offending Services and others. This legislation essentially formalises and extends the good practice Gloucestershire has been undertaking for some time. This report offers the local communities of Gloucestershire the opportunity to see how the management of high-risk offenders is carried out on their behalf. This difficult and sensitive task builds on the very best principles of partnership working to ensure the overriding principles of community safety are maintained.

Timothy Brain Chief Constable, Gloucestershire Constabulary

David Chalmers Governor, HMP Gloucester

Yvette Ball Chief Officer, Gloucestershire Probation Area

2. Key Achievements
Arrangements to assess and manage the risks posed by sexual, violent and other offenders who may cause serious harm to the public have been in place in Gloucestershire for some years. This early work provided the foundations for the Multi-Agency Public Protection Arrangements and the Multi-Agency Public Protection Panel meetings which have now been in place since 2002. The Multi-Agency Public Protection Arrangements (MAPPA) is overseen by a Strategic Management Board. The Board has Chief Officer representation from all the agencies involved:Police Probation Prison Housing Health Youth Offending Service Social Services Additionally the Area Manager of Gloucestershire Victim Support is a Board member. Two lay advisors will be joining the Board in 2005. The purpose being to bring a different perspective and experience to the work of the Board. Sections 67 and 68 of the Criminal Justice and Court Services Act which came into force on 1st April 2001, conferred a statutory duty on the Police and Probation Service to undertake work with other agencies to protect the public from three categories of offenders:Category 1 Registered Sex Offenders Category 2 Violent and other sex offenders Category 3 Other offenders assessed as posing a risk of serious harm. The Criminal Justice Act 2003 additionally made the Prison Service a Responsible Authority alongside Police and Probation, and placed a duty to co-operate with the arrangements on other agencies involved. Arrangements are firmly in place within Gloucestershire to ensure that agencies work together to assess and manage the relevant offenders. Good communication between agencies is the critical ingredient of sound risk assessment and risk management. A protocol signed by all the relevant agencies ensures that information is shared in accordance with the statutory duty to share information and the relevant legislation. Initial and ongoing information exchange is essential to the assessment and management of high risk offenders. The Strategic Management Board oversees the work of the Multi Agency Public Protection Panel (MAPPP). The MAPPP is responsible for the management of those offenders assessed as posing the highest risk of serious harm. The panel meets regularly, its membership being, a Detective Chief Superintendent, Assistant Chief Probation Officer, Social Services Field Work Services Manager, Senior Prison Probation Officer, Consultant Psychiatrist, Forensic Psychologist, Housing Manager and Youth Offending Team Manager. The meetings are chaired by the MAPPP Co-ordinator who is a Senior Probation Officer seconded to a jointly funded Police and Probation post. The MAPPP meetings are also attended by staff from the relevant agencies who have direct responsibility for / or input into, the day to day management of the offender. The Probation Service Victim Enquiry Officers attend to ensure information from their contact with the victim / victims family is appropriately shared and considered.

" I have found the MAPP panel meetings to be really effective in helping the Police, Probation, Social Services, Psychiatrists and Psychologists, and others involved with the highest risk cases to work together and make better use of the powers and resources available to us to protect victims and the wider community. The case examples in this report show how complex and challenging these cases are and how the panel is making a positive difference to improve public protection.” Assistant Chief Officer, Gloucestershire Probation Area.

3. The Operation of MAPPA locally
Multi - Agency Public Protection Arrangements include all the measures put in place by the agencies involved to identify, assess and manage those offenders assessed as posing a risk of serious harm. Identification The Police, Probation, Prison and Youth Offending services have procedures in place to ensure that all relevant offenders are identified – this could be at the point of going to Court, of being given a Community or Prison sentence, or being released from custody. Additionally psychiatric services may identify an offender due to be discharged from a special hospital. Assessment This is a process carried out to establish whether the offender is likely to cause serious physical or psychological harm to others. The areas of risk examined are:risk risk risk risk risk risk to to to to to to the public children known adults / relatives staff themselves other prisoners what is the nature of the risk (e.g. physical assault or psychological harm) who is at risk (e.g. partner) under what circumstances (when partner attempts to leave) to identify triggers and patterns of behaviour that would increase the risk The MAPPA processes ensure that the risk assessment is regularly reviewed, as circumstances change. Management The detail of the risk assessment informs the risk management plan. The plan will describe actions that will be taken to monitor the offenders behaviour, attitudes and intentions in order to minimise and manage the risk of serious harm occurring and will include:measures that involve the offender in addressing the causes of offending behaviour and future strategies to manage behaviour. measures designed specifically to protect past or potential victims such as conditions in licence on release from prison that can include:not to contact previous victims not to go to certain areas to live where directed to comply with treatment. measures that individual agencies will take should information be received that the risk is escalating or the offender is not complying with licence conditions. This could result in an immediate return to custody. Critical to both the risk assessment and management process is the information provided by the Probation Service Victim Enquiry Officers who will have offered contact to all victims of a sexual or violent offence, whose perpetrator has been imprisoned for a period of 12 months or more. Their views help shape the release arrangements. Arrangements Those offenders assessed as posing the highest risk of serious harm will be referred to a Multi Agency Public Protection Panel (MAPPP) meeting. Cases fitting any of the following criteria are considered:where there is an imminence of serious harm where unusual resource allocation is required where there are serious community concerns where there are media implications where there is a need to involve agencies not normally involved


The role of the MAPPP is to:share information on those offenders referred to it decide upon the level of risk posed by the offender recommend the action necessary to manage the risk, including any contingencies monitor and ensure implementation of the agreed action plan review the level of risk and the action plan in the light of changes in circumstances or behaviour consider and manage necessary resources

Agencies involved will share information relevant to the risk assessment for example an offender may have one conviction for an assault on their partner, the Police Domestic Violence Unit may have information that there have been other assaults. To inform the risk assessment, nationally validated tools are used as well as individual knowledge and professional assessment of the offender. The outcome of the assessment is to be as specific as possible with regard to:




Whilst the MAPPP deals with those offenders assessed as posing the highest risk of serious harm, similar arrangements exist to assess and manage other offenders who pose a lower risk of serious harm and require multi agency intervention.

These meetings, known as Local Risk Management Meetings (LRMM’s) are again multi agency and involve those who have direct responsibility for the offender or who have been involved in the day to day management.

For example a LRMM on a sex offender required to register with the Police, would involve the Police Public Protection Officer, Supervising Probation Officer, Social Worker and housing provider. The risk assessment and management processes are consistent for all meetings.

Case Example 1
The offender was referred to the MAPPP by the Probation Service. Background Convicted of indecent assaults on young boys Previous convictions for rape and indecent assaults on women both known to him and strangers and domestic violence within relationships Denies most recent offence so has not undertaken prison based Sex Offending Programme Due to be released from prison and suitable accommodation needed to be secured for his release Victim(s) and families very anxious with regard to release One victim currently in care of Local Authority Risk Assessment Very high risk of further sexual assaults on both young boys and physical and sexual assaults on adult women, both known and strangers; psychological harm. Risk increases if in a relationship both to ‘partner’ and any children Concern that offender will not comply with release arrangements Risk Management Plan MAPPP supported application for additional funding to secure accommodation in a specialist hostel. Licence conditions on release to include condition to reside where directed and abide by hostel rules To be subject to tagging and curfew Not be allowed to return to his home town Not be allowed contact with victims / family Victim Enquiry Officer to advise victim(s) of these arrangements Social Worker to discuss plans with victim currently in care of Local Authority Police to advise of security measures available to victims to protect themselves Recall to prison immediately if offender fails to comply Outcome Released to a specialist hostel out of Gloucestershire Required to remain within hostel for specific periods of time during the day, only allowed out with escort initially and subject to curfew from 8.00 pm – 8.00 am. Attended appointments with a psychologist to address offending behaviour Attended appointments with supervising Probation Officer and Police Public Protection Officers Did not contact previous victim(s) / families Did not attempt to return to Gloucestershire Current Position Remained at the hostel successfully for six months and engaged much better than was anticipated in undertaking work to address his offending. Following an incident where he was verbally abusive and threatening to another resident, he was recalled to prison. He will remain subject to supervision on release and the MAPPP continues to manage the case.

Case Example 2
The offender was assessed at a Local Risk Management Meeting Background Convicted of offences of robbery and due to be released from custody Previous convictions for wounding with intent and assaults against both known and unknown victims Previously been detained in a secure psychiatric facility Previous failures to take prescribed medication Alcohol and drug misuse Complied with medication whilst in custody and attended group work programmes to address alcohol and drug misuse Risk Assessment Assessed as posing a high risk of harm of violence to both strangers and known individuals Risk increases when does not comply with prescribed medication and misusing alcohol or drugs Risk Management Plan Accommodation to be obtained that would provide both oversight and support Condition on licence to co-operate with psychiatric services and treatment Condition on licence to participate in programme designed to address offending behaviour (alcohol / drug misuse) Condition of no contact with victim of offence Joint meetings with supervising Probation Officer and Community Psychiatric Nurse and ongoing close liaison Outcome Released to accommodation that would offer support and also oversight of behaviour Complied with reporting arrangements both to Health and Probation Service staff Complied with prescribed medication Voluntary attendance at drug advisory service Current Position Satisfactory completion of period of supervision on licence having co-operated fully with Health and Probation staff and no further offending

“I have found the MAPPP forum extremely valuable in managing high risk cases, it allows officers to feel a shared sense of responsibility and gain support in working with the offenders. It also provides a space to discuss best practice and to engage in a meaningful way with other agencies. The MAPPP meetings have demonstrated on more than one occasion that they can carry out actions which without its support would have been impossible – such as placements in hostels or mental health facilities. Having the experts in managing risk at the same table has enabled us to move forward in risk assessments and putting together interventions to reduce risk.” Senior Probation Officer, Public Protection Team

Case Example 3
The offender was assessed at a Local Risk Management Meeting. Background Convicted of Making Indecent Photo of a Child (downloading indecent images of children from the Internet) Visiting chat room sites pretending to be a teenager (35 years old) Obtained a teenage girl’s home telephone number and arranged to meet her. (Meeting did not occur due to her family’s intervention) Involved in youth work through a local church Sentenced to 3 year Community Rehabilitation Order and to attend Sex Offender Treatment Programme Recently begun a relationship with a woman with a 5 year old child Risk Assessment Assessed as posing a high risk of sexual harm to children, targeting teenage girls via chat rooms Risk Management Required to register as a Sex Offender – will receive unannounced visits at his home address by Police Public Protection Officer Will be subject to regular multi-agency reviews To report weekly to his Probation Officer and commence Sex Offender Treatment Programme. Joint home visits by Police and Probation Officer Social Services Department to make contact with new partner and disclose conviction Police Public Protection Officer to obtain confirmation that youth work at his church has ceased and that he no longer attends the church Outcome Complying with Registration and Supervision requirements On disclosure new relationship was terminated Church confirmed offender had disclosed conviction and no longer attends No computer at his home address Current Position Regular reviews continue, has disclosed regular chat room contact with teenage girls in the past. Does not intend purchasing another computer and is participating in offence focused work.

"In my view the MAPPP in Gloucestershire is proving to be a useful forum in which to share information and experience in order to manage individuals who pose a high degree of risk. From a mental health point of view, there is a psychiatric or psychological aspect to many of the cases. Although only a minority have major mental illness there are high rates of paedophilia and personality disorder in those individuals referred to the MAPPP. In view of this I think it is very useful that a Consultant Psychiatrist and Forensic Psychologist sit regularly on the MAPPP in Gloucestershire.” Consultant Psychiatrist

Statistics Explained
Contained within this Annual Report for 2003/04 is the relevant statistical information regarding MAPPA activity in Gloucestershire.

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

Number of offenders 231 41

i) a) ii)

The number of RSOs living in your Area on 31 March 2004. The number of RSOs per 100,000 head of population. The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April and 31 March 2004.

6 a) 2 b) 1 a) 0 b) 0

iii) The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2003 and 31 March 2004. iv) The number of interim Sex Offender Orders (a) applied for and (b) imposed by the Courts in your Area between 1st April 2003 and 31 March 2004.

The number of registered sex offenders living in Gloucestershire has increased. This number will increase year on year as any sex offender who receives a period of imprisonment of 30 months or more is required to register for life. Case Study 3 is an example of the increasing number of offenders convicted for internet offences as the result of police operations to detect this type of offending. 40 offenders in this reporting year have been required to register following a caution or conviction for possession of indecent photographs or images of children. The new Sexual Offences Act which comes into force on the 1st May 2004, overhauls the many antiquated sexual offences and plugs loopholes in the law. It strengthens the law on rape and on sexual offences against children. It introduces new offences including ‘meeting a child following sexual grooming’, and extends the protection from exploitation in prostitution or pornography to children up to the age of 18.

The Act has also made a number of changes to registration requirements including the length of time an offender has to register change of address (reducing this from 14 days to 3 days), and with regard to arrangements to travel abroad, notice is now required if travelling for 3 days or more. The Act introduces Sexual Offence Prevention Orders, Foreign Travel Orders, Risk of Sexual Harm Orders and Notification Orders. All these orders are designed to increase our ability to manage offenders convicted of sexual offences. The enforcement of sex offender registration and subsequent risk management are deemed priority areas in this arena of policing in Gloucestershire. The aim is to establish a working relationship with offenders in an attempt to eradicate instances of non-compliance. This has to date resulted in impressive levels of co-operation with the individuals concern, and is reinforced with appropriate use of the Criminal Justice System when necessary.

Where concerns are raised either with regard to non-compliance or evidence of increasing risk, action is immediately taken in conjunction with MAPPA agencies. Within the county in this reporting year six offenders breached reporting requirements. Of these, one received a caution, four were convicted (one received a custodial sentence) and one case is still pending. Sex Offender Orders are normally sought when other methods available to engage offenders in the registration process have failed, or there is evidence to suggest that they will continue to seek means to re-offend. Once obtained conditions can be placed on the order preventing contact with children. A breach of such an order can receive a penalty of up to five years imprisonment. Within Gloucestershire this year one sex offender order has been obtained and one application is in process.

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

Number of offenders


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



The number of Violent Offenders and other Sexual Offenders in the county is 70 in this year. Within this category the majority are violent offenders; very few have been convicted of sexual offending.

4. MAPPP Cases
3. Category 3: Other Offenders viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (i) – RSOs, (v) - V & 0 and (vi) - 00 above have been managed through the MAPPP (level 3) between 1st April 2003 and 31st March 2004. ix) Of the cases managed by the MAPPP (i.e. (viii) between 1st April 2003 and 31st March 2004 how many, whilst still in the MAPPP: Were returned to custody for a breach of licence Were returned to custody for a breach of a restraining order or sex offender order Were charged with a serious sexual or violent offence a) b) c) 2 0 0 RSO V&O OO 9 7 0

The number of offenders managed by the Multi-Agency Public Protection Panel has remained consistent. In total 16 offenders have been managed by the MAPPP in this year, 8 of these were new cases, the remaining 8 were MAPPP registered in 2002 / 2003 but continue to be managed and reviewed at MAPPP meetings. These are the small number of offenders who are assessed as posing a ‘very high risk of serious harm’. No offenders managed in this way were charged with a further serious sexual or violent offence. Two were returned to custody for breaching a licence condition, demonstrating that immediate action is taken if there are concerns that risk of serious harm is escalating or an offender fails to co-operate.

5. Strategic Management Board
The Strategic Management Board over sees the Multi Agency Public Protection Arrangements (MAPPA). Key to the development of MAPPA over the last 3 years has been the closer involvement of other agencies such as Housing, Health, Social Services and Victim Support working alongside the Youth Offending Service, Police, Probation and Prison Service. The members of the SMB bring a perspective from their own particular area of work which strengthens the arrangements. SMB members have senior management responsibility for services relevant to the assessment and management of risk within their own organisation. The SMB are required to monitor and review the effectiveness of the arrangements made to assess and manage the risks posed by the relevant offenders. The Board meets quarterly and receives reports on the offenders dealt with by the MAPPP and any particular issues these have raised on which the Board needs to act. All cases dealt with by the Panel have been reviewed to ensure that policies and procedures have been followed and to identify areas for improvement. The Board ensures linkage with other public protection structures in the county. SMB members are also involved with the Area Child Protection Committee, Local Criminal Justice Boards and Crime and Disorder partnerships.

“March 2004 marks the end of my first complete year as a member of this important Board. It has proved to be a very interesting experience, providing a much better insight to the key work conducted by this Board on behalf of the public. Of significance during the year was the involvement of Victim Support in the first joint HMI inspection process. We were the only voluntary agency to be so involved, therefore this was both an honour (in some respects) and a challenge. The challenge being, we also underwent a full audit from our own National Office inspection team, receiving a positive result. It is rewarding to be associated with such a well regarded MAPPA board that received acknowledgements from the joint inspection team for its innovative and progressive actions.” Area Manager, Victim Support, Gloucestershire

“The MAPPA brings a real focus and discipline around the identification, assessment and intervention in respect of this small number of people who pose a real risk to the public. MAPPA uniquely bring together the experience and resources of a range of agencies with a clear focus, that of public safety. This makes MAPPA one of the most effective processes I have been part of.” Assistant Chief Constable, Gloucestershire

1. Online friends might not be who they say they are 2. Don’t give out personal info such as your email or phone number 3. Respect your friends’ privacy 4. Be careful when posting a profile in a chat room 5. Be cautious about meeting face to face


“I have been a police officer for thirty-four years and a statutory partner of MAPPP for the last two years. Throughout this period I have been impressed with the commitment, experience and co-operative working of my fellow members, who are drawn from a wide variety of organisations and groups dedicated to managing the risks posed to the public by individuals living within our communities. MAPPA is partnership working of the very highest level and quality in which the ublic can have confidence and take reassurance from.” Detective Chief Superintendent, Gloucestershire Constabulary

6. Additional Enquiries
Contact details for all Victim Support local offices are shown below:Cheltenham 01242 577476 Cotswold 01285 658350 Forest of Dean 01594 810190 Gloucester 01452 506450 Stroud 01453 751488 Tewkesbury 01684 850448 Crown Court Witness Service 01452 411724 Mags. Court Witness Service 01452 525281 This report provides details of the arrangements made in Gloucestershire. If you would like to make additional enquiries please contact either:Chief Constable Gloucestershire Constabulary, Holland House, Lansdown Road, Cheltenham, Glos. GL51 6QH Tel: 0845 0901234

Chief Officer Gloucestershire Probation Area, Bewick House, 1 Denmark Road, Gloucester. GL1 3HW Tel: 01452 426250

“ I am confident that the MAPPA have made a significant difference to the assessment and management of high risk offenders. Having all the relevant agencies together ensures that information is properly exchanged and that a comprehensive plan can be formulated to manage the identified risks.” Gloucestershire, MAPPP Co-ordinator