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Greater Manchester

Multi-Agency Public Protection Arrangements

Annual Report 2002-3

By Paul Goggins, Parliamentary Under-Secretary for

Community and Custodial provision in the Home Office

As the recently appointed Minister with responsibility for

the MAPPA, I am pleased to introduce this, the second,
annual MAPPA report. It is clear that in the last year
(2002/3) the multi-agency public protection arrangements
(the MAPPA) continued to play an important role in what
remains one of this government’s highest priorities – the
protection of the public from dangerous offenders.

As someone with many years’ experience of working in

the field of child protection, I am particularly impressed by
the important contribution the MAPPA are making to
strengthen collaboration between agencies at a local level
where the focus is on the dangerous offender. These
improvements must, however, impact on the protection of
children. As the tragic death of Victoria Climbie showed,
an effective multi-agency partnership is crucial and the
MAPPA are an important element.

To ensure greater consistency in the MAPPA across the

42 Areas of England and Wales, and to prepare for the
implementation of measures contained in the Criminal
Justice Bill, we published the MAPPA Guidance in April.
Building on good practice, that Guidance clarified the
structure of the operational arrangements as well as the
importance of formal review and monitoring – of which this
annual report is a vital part. The Criminal Justice Bill will
strengthen the MAPPA in two ways. First, it will make the
involvement of other agencies part of the statutory
framework. Second, it will introduce the involvement of lay
people – those unconnected with day-to-day operation of
the MAPPA – in reviewing and monitoring the MAPPA.
Annual reports and this new lay involvement show the
Government’s commitment to explaining how the often
sensitive and complex work of public protection is
The Government is also strengthening the protection of
the public with other measures in the Criminal Justice Bill.
They include new sentences for dangerous offenders to
prevent their release if they continue to be dangerous.
Additionally, the Sexual Offences Bill will tighten up sex
offender registration, introduce a new offence of
‘grooming’, and enable sex offender orders to be imposed
on violent offenders who pose a risk of causing serious
sexual harm – thereby extending sex offender registration
to them.

I commend this report to you and congratulate all the

agencies and individuals who have contributed to the
achievement of the MAPPA locally in your local Area.
The National Picture

This section of the 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 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 on the existing
experience by requiring the police and probation services to
establish arrangements (the MAPPA) for assessing and
managing the risks posed by sexual and violent offenders.
The Act also required the Responsible Authority to publish
an annual report on the operation of those arrangements.
This report, covering April 2002 to March 2003, is the
second annual report.

The importance of partnership

Key to the development of the MAPPA in the past year has

been the closer 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 to be
strengthened further by the Criminal Justice Bill. The Bill will
place a ‘duty to co-operate’ on a wide range of organisations
including local health authorities and trusts; housing
authorities and registered social landlords; social services
departments; Jobcentres; Youth Offending Teams; and local
education authorities. In addition, the Prison Service will join
the police and probation services and become part of the
MAPPA ‘Responsible Authority’.
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 Unit
(PPU). This Unit acts as a central point for advice and,
increasingly, involvement in the management of difficult
cases. These include, for example, 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

MAPPA developments in the next 18 months will also

include the appointment by the Home Secretary of two ‘lay
advisers’ to each Area. The eight Areas of England and
Wales which have been piloting these arrangements since
January (Cumbria, Greater Manchester, Durham, South
Wales, Dorset, Hampshire, Surrey and West Midlands)
report that they add real value. 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 purpose of appointing ‘lay advisers’ is to ensure that

communities understand more of what is done to protect
them and that those involved professionally with the MAPPA
are aware of the views of the community. 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.
MAPPA Offenders

This year the annual report provides a more detailed

breakdown of the number of sexual and violent offenders
who are covered by the MAPPA in your Area. As last year,
the figures include the number of registered sex offenders.
Because sex offender registration is for a minimum of 5
years (and generally for much longer) the figures are
cumulative. This is why they have increased – by 16 per
cent in England and Wales. Only a very small proportion
(about six per cent throughout England and Wales) are
considered to pose such a high risk or management
difficulty that they are referred to the highest level of the
MAPPA – the Multi-Agency Public Protection Panels (the

Figures alone do not, of course, tell the whole story. The

anonymised case studies illustrate the practical work of the
MAPPA, and demonstrate the preventive action which can
be taken. Prior to the MAPPA, action of this kind was mainly
taken by one agency alone, with the effect that on occasion
offenders’ behaviour which might have triggered
preventative action went unnoticed. The multi-agency
approach of the MAPPA helps ensure that if an offender
does breach the condition of the licence under which they
were released from prison or a court order prohibiting
certain activities, then action to enforce the condition or
order and protect the public can be taken more swiftly.

If you are interested in reading the reports of other Areas,

they will be published on the National Probation Service’s
website (under the public
protection section) with all of them being available once the
last Area has published its annual report in September.
1. Introduction

Local arrangements in Greater Manchester began with

a pilot project in Rochdale in 1995. The working
partnership between police and probation was so
successful that Multi-Agency Risk Panels (which were
later re-named Multi-Agency Public Protection Panels)
were set up throughout Greater Manchester two years

The official launch was carried out by the then Home

Secretary, the Rt. Hon. Jack Straw MP, and the
initiative had support at the highest possible
Government level. The Criminal Justice and Court
Services Act 2000 (CJ&CS Act 2000) brought a new
duty on police and probation to make joint
arrangements for the assessment and management of
the risks posed by sexual, violent and other offenders
who may cause serious harm to the public.

The arrangements which were put in place locally in

1997 have been developed and strengthened in recent
years. Protocols between all the agencies concerned
were agreed and signed, with police and probation
taking a lead. Multi-Agency Public Protection Panels
have succeeded in achieving the participation of a wide
range of agencies across the county; these include
housing, social services, health, Victim Support,
prisons, Clerks to the Justices, YOTs and education.

This document will provide further details of the

arrangements made in Greater Manchester and
highlight achievements during 2002-3.

It will also give contact points for any additional

enquiries, including agencies other than police and
2. Key achievements during 2002-3

• Two lay members were appointed to the MAPPA

Strategic Management Group and are helping to
oversee public protection arrangements.

• A media protocol was established by Greater

Manchester Police and Greater Manchester
Probation Service with around 40 local editors and
broadcasters to improve working relationships

• Two probation officers now work alongside police

in the Public Protection Unit to improve the
exchange of information

• In Manchester, Compliance Tenancies – which

involve housing officials undertaking regular visits
- have become a feature of supervision for some

• The Strategic Management Group membership

has extended to include a prison officer and health

• Greater Manchester’s Victim Support and Witness

Service is to have an enhanced role in supporting
vulnerable and intimidated witnesses prior to trial

• The number of registered sex offenders has risen

– as predicted – but excellent work on the part of
all the agencies has ensured that offenders are
well managed and action taken should they
breach or look likely to re-offend

• The number of breaches of Sex Offender

Registration requirements has risen this year, due
to consistent monitoring and proactive work on the
part of the police
3. Who we are and what we do
Police and probation services have responsible behaviour on the part of In Greater Manchester, housing
overall responsibility for ensuring offenders under supervision. providers who have attended
that management arrangements are Housing professionals contribute MAPPPs include local authorities,
in place for all serious violent and significant expertise in placing Housing Associations and staff from
sexual offenders in the community, offenders in suitable accomm- both statutory and voluntary hostels.
as defined in the Criminal Justice odation, both in terms of the
and Court Services Act 2000. offender’s requirements and public Greater Manchester has seven
protection. approved premises (hostels). These
have strict rules and conditions of
Where cases are assessed as being residence, including a strictly
of low or medium risk management Case Study enforced overnight curfew. Together
with 24-hour staffing cover, this
is primarily undertaken by police and Mr A came to the attention of the
probation services. High risk cases allows the rigorous supervision of
police because of his contact with
are managed through Multi-Agency offenders who live there.
a girl under the age of 16. The girl,
Public Protection Panels (MAPPPs). who was receiving assistance from
These arrangements are outlined in Approved premises can be an
Social Services, went missing from
further detail in Section 3. important first step back into the
home. She was later found in the
community for offenders newly
company of Mr A.
Greater Manchester comprises 10 released from prison. They are
Mr A was an associate of a
local authority areas. Each of extremely important for public
registered sex offender but was
these 10 areas – Bolton, Bury, the protection, providing additional
not subject to registration himself.
City of Manchester, Oldham, supervision for offenders who would
He did have previous convictions,
Rochdale, Salford, Stockport, otherwise have to look for
however, with offences of
Tameside, Trafford and Wigan – accommodation elsewhere in the
indecency against young girls
have arrangements in place for community. In a hostel, offenders
going back to the 1980s.
MAPPPs in their locality. can be more closely monitored and
Mr A was interviewed by police but
maintained contact with the girl.
MAPPPs are chaired by either the He was made the subject of
District Manager for the Probation One hostel has specialist provision
MAPPP proceedings and because
Service or a local senior police for offenders with mental health
of his continued contact with the
officer. A countywide protocol, problems. All offer programmes
girl, police applied for a Sex
agreed by all the agencies involved, and extra work which can help
Offender Order.
sets out how MAPPPs are convened reduce offending.
This was granted by the court and
and administered. This serves as a restricted contact with any child
template for all MAPPPs, who may Hostel staff regularly attend
under the age of 16, forbidding him
amend the protocol to suit local MAPPPs to provide vital information
from having children in his car or
needs. on offenders who are current
his home. The order also specified
that he was to have no further
A MAPPP can be requested by any contact with the girl.
agency. Social Services
Police found him collecting the girl
Social Services departments have
from her home just 2 weeks after
All MAPPPs can call upon the primary responsibility for child
the Sex Offender Order was made.
attendance of other agencies within protection matters and staff often
Mr A was arrested and later
the community, such as local have significant valuable information
sentenced to 2 years’ in prison for
authority housing officials and social regarding the family networks that
breach of the Sex Offender Order.
services representatives as required. dangerous offenders have. Their
These agencies fulfil particular roles perspective on the management of
in helping to manage dangerous dangerous violent and sexual
offenders. These are described In Manchester, Compliance offenders can be crucial.
below. Tenancies have become a feature of
the supervision of some offenders. There is often an overlap between
Housing In such cases, the offender must the work of MAPPPs and Area Child
Stable accommodation is extremely agree to additional conditions before Protection Committees, where police
important in ensuring that dangerous being granted a tenancy. These and probation are represented in
offenders are rigorously managed. It may include accepting regular appropriate cases.
can help in the organisation of supervisory visits.
surveillance and encourages
Schools and occasionally Further Appropriate representation at a
Education colleges can be a MAPPP can include a local GP Case Study
valuable aid to the management of and/or specialist psychiatric staff. Mr B is a registered sex offender
younger dangerous offenders. Such who was being visited regularly by
offenders are few, but they have the Some health professionals have the police. On a routine visit, he
potential to cause considerable attended MAPPPs, but it has proved was found to have a pink sock on
disruption in local communities. difficult to secure the consistent his radiator and bikes in his back
Education providers can help to attendance of health service garden.
provide additional monitoring of representatives. This is a matter After a police investigation, he was
offenders attending school or college that was pursued by the county’s found collecting a child from a bus
courses. Strategic Management Group last and had children staying with him.
year but practice is inconsistent. Mr B had befriended a family and
There are a critical few dangerous The organisational structure of the helped to look after the children.
offenders who target children. In health service across the county He confessed to assaulting the two
such cases, action plans to manage makes it difficult to find appropriate children in his home and was
those offenders may require the representation. Further efforts to sentenced to 6½ years in prison.
involvement of education officials, in resolve this issue will be pursued by His confession meant that the
order to protect children and the SMB in the forthcoming year. children were spared from giving
reassure parents. evidence in court.
His case was unusual in that the
Youth Offending Teams Victim Support court granted a Restraining Order
Although dangerous offenders are Greater Manchester Victim Support at the time of sentence. This has
usually adults, there are a few cases and Witness Service is totally the same effect as a Sex Offender
each year where young offenders supportive of the MAPPP process. Order, enabling police to monitor
are assessed as being a danger to Staff from the service have him upon release. He will also be
the public. These cases may well participated in MAPPP meetings in subject to a period of extended
be under the supervision of Youth most districts across the county. supervision, giving police and
Offending Teams (YOTs). YOTs Where Victim Support’s involvement probation greater powers to
can develop intensive supervision is requested at a MAPPP, a staff manage him in the community.
arrangements for such offenders; it member will attend the MAPPP
is vital therefore that in appropriate meeting and will then liase with the
cases YOTs are represented at appropriate victim worker in the
MAPPPs. case.
In Greater Manchester, all MAPPP
Youth Offending Teams themselves Other agencies arrangements are overseen by a
consist of multi-disciplinary teams On occasions, MAPPPs are Strategic Management Board.
(including police, probation, attended by other community Representatives of all the agencies
education and social workers) and agencies and individuals, where they described in this section serve on
are therefore well placed to co- have a particular perspective to add the Board, together with lay
ordinate arrangements to closely to any discussion. In Greater members appointed for the first time
manage these dangerous young Manchester, those attending have in 2002. (For more details, see
offenders. included:- under “Promoting best practice”).
Health issues maybe a significant • Prison officers
factor in managing dangerous • Housing Compliance Officers
offenders. Some offenders have • Staff from the Police’s Domestic
mental health problems which are Violence Unit
identified as needing proper • Probation Service victim liaison
assessment and treatment where officers
appropriate. • An offender’s family members.
For example, dangerous behaviour
can be exacerbated if offenders are
not receiving appropriate medication.
4. How do MAPPPs work?

3.1. In addition to the day-to-day required to attend special may live in their own homes or in
work of the police and probation programmes to help stop them private rented accommodation.
service outlined in this report, committing further crimes. Some live in accommodation
Greater Manchester has developed provided by a registered social
multi-agency assessment landlord (such as a housing
procedures for the assessment and Case Study association or local authority).
management of sexual, violent and A serious sexual and violent Research evidence shows that
dangerous offenders. The offender - no longer under statutory having stable accommodation and
assessment and management of supervision - was being monitored employment is very important in
these offenders is at three levels:- by the police on a Sex Offender reducing the risk of reoffending.
Order. Stable accommodation, at an
(a) Information exchange (for the Reports came through that the man address which is known to the
lower/medium risk cases) see was luring children into his home agencies involved, is also very
par. 3.6 by providing alcohol and allowing important in managing offenders in
(b) Joint police and probation them to smoke cannabis. It became the community.
agreed risk assessment (for clear that his accomodation was
potentially dangerous very unsuitable as there were a lot 3.5. If an offender is sent to prison,
offenders); this could be of children in the vicinity and a further assessment will be carried
described as the high risk group particular young people appeared out if the offender is to be released
see par. 3.7 to be at serious risk. subject to a period of supervision by
(c) Multi-Agency Public Protection At an initial MAPPP meeting, the the probation service. Depending on
Panel meetings, for the critical option of disclosing to their parents the length of the supervision period
few most dangerous offenders was seriously considered. This after release, the offender will be
see par. 3.9 information was shared with the reassessed regarding the level of
These processes are explained offender and he was given the dangerousness whilst in the
more fully below. option to move. community and appropriate public
Within a week, and due to some protection plans will be put in place.
3.2. Initial risk assessments on excellent collaboration between
serious violent and sexual offenders housing, police and probation staff, 3.6. The Criminal Justice and Court
are normally undertaken at the point the man was moved to much more Services Act 2000 defines those
of sentence, via a Pre-Sentence appropriate accomodation. This cases requiring joint assessment
Report. These reports are removed him from the locality of between police and probation
prepared by the probation service, in the children deemed to be at risk. services. In many cases, the
the case of adult offenders; for His new home is in a large block of probation assessment will conclude
offenders under the age of 18, flats for largely single adults and that the risks to the public are low or
reports and risk assessments – and which has a concierge system. The medium. In these cases, the
subsequent supervision - are the police made sure links were in probation assessment will be
responsibility of Youth Offending place with housing staff. communicated to the police. If
Teams. After six months, the offender was police information systems reinforce
deregistered as a MAPPP case; the probation assessment, this will
3.3. Reports assist the court in the man no longer represented the become the agreed joint
determining a suitable sentence and very high level of risk which assessment.
will also be used by the probation MAPPP registration denotes. He
service if the offender is is, however, still being monitored 3.7. In some cases, the probation
subsequently made the subject of a by police through his Sex Offender assessment will suggest the offender
community sentence such as a registration requirements. is potentially a high risk to the public,
Community Punishment Order or or on receipt of the probation
Community Rehabilitation Order. assessment the police may find they
Probation staff have many years of 3.4. Those offenders serving have information that suggests the
experience in working with community penalties continue to live assessment should be higher. In
offenders, many of whom are now and work in our community. They these situations, police and
probation representatives will meet keep in close contact between police personnel and a dedicated
to share information and reach a meetings to ensure the Action Plan Probation Service co-ordinator; all
joint assessment of risk. They will is being implemented appropriately. have received in-depth multi-agency
also draw up an Action Plan to There are currently 155 MAPPP training in offender risk assessment,
manage the risk identified. cases across the whole of Greater management and monitoring. It
Manchester. provides a central point of contact for
3.8. With regard to the critical few liaison with all other agencies
most dangerous offenders, a Multi- In some cases, offenders considered involved in this work across the area
Agency Public Protection Panel will by a MAPPP are not the subject of and with the GMP Force Intelligence
be convened. The chair of the any statutory supervision in the Bureau.
meeting (a probation District community. These tend to be
Manager or a local senior police offenders who were convicted of Following the initial success of the
officer) adheres to agreed protocols serious offences in the past but who unit, it has been confirmed that
regarding the format of the meeting, have not re-offended; their recent increased staffing for the ViSOR Unit
format of minutes and rules behaviour may be of sufficient will be provided by the Probation
regarding confidentiality. All relevant concern, however, to warrant referral Service for the forthcoming year,
agencies are represented at these to a MAPPP. capitalising on the success of the
meetings – including those with joint working arrangements already
particular knowledge relevant to the There are also offenders who are in place.
case. A full information exchange required to register under the Sex
takes place and an Action Plan Offenders Act 1997 who require joint There are now two probation officers
agreed. assessments under the new working alongside police colleagues
arrangements; many were previously in the ViSOR Unit ensuring
In the case of those offenders who monitored only by the police. information exchanges between the
are awaiting release, prison staff will agencies is of a consistently high
sometimes travel to attend the 3.9. In direct response to the standard.
MAPPP in order to provide additional statutory requirements outlined in
information to the Panel. the Criminal Justice & Court 3.10. The ViSOR Unit is responsible
Representatives from the agency Services Act 2000, and following for maintaining the Sex Offender
which will provide accommodation consultation with the Probation Register for Greater Manchester,
for the offender will also attend, Service, Greater Manchester Police and for ensuring the compliance of
alongside local police and probation elected to make a significant those on the register.
staff who will have case commitment towards future work in
management responsibility. this area by the formation of a The number of registered sex
dedicated, centralised ‘Public offenders is expected to rise every
The Panel will work towards an Protection Unit’. year for the next few years.
agreement on the level of risk and
will formulate an Action Plan to The unit, now known as the ViSOR This is because the legislation which
manage that risk. All agencies [Violent and Sex Offender brought about the Sex Offender
represented will be closely held to Registration] Unit, provides a central Register in 1997 did not apply to
account for any tasks to be carried resource and support framework, offenders convicted before that time,
out under the Action Plan. with specific expertise in this field. It unless they were still under
works closely with local police and supervision or in custody. This
Regular review meetings are held, probation officers across Greater means that the numbers will
usually bi-monthly although any Manchester and covers all issues continue to “catch up” for several
agency involved can request an involving the management of sexual, years until a peak is reached.
emergency MAPPP if they feel violent and dangerous offenders.
circumstances have changed;
attendance is given top priority. The ViSOR Unit began work on the
Agencies involved in the case will 1 May 2001, staffed by over 20
5. Disclosure
The power to decide whether to
disclose information about an
Case Study fails to comply with supervision and
his whereabouts become unknown,
An offender living in a hostel
offender rests with the Police. an appeal for information made be
following his release from prison
moved to local authority made through the media. This may
Each MAPPP has Disclosure as a accommodation on a compliance allow them – and the public – to help
specific agenda item. This means tenancy; this involves being visited track down the offender and thereby
that disclosure is considered at regularly by housing compliance protect the public.
every meeting, and a decision made officers. He is the subject of
on each case on its merits. MAPPP proceedings and has been Plans for such a scenario are always
under police supervision. in place, but are rarely needed.
There are many examples of One concern, however, has been There have been no occasions so
disclosure in the day-to-day work of his frequent visits to Manchester far when such disclosure has been
MAPPPs. Where an offender has a city centre. The MAPPP was required in Greater Manchester,
history of sex offences, for example, concerned about the fact that he although this was actively
agencies would ensure that there is was visiting stores of particular considered during 2002.
disclosure to a new partner if there interest to children - the Disney
are concerns about the partner or Store, Gadget Shop, HMV etc. An offender due for release from
any children of the family becoming A new campaign was planned to prison had been refusing to co-
a potential victim. raise awareness amongst retail operate with police and probation. It
staff about the risk that sex was proposed that, should he fail to
Similarly, if a man with a history of offenders might present, comply with the terms of his licence
extreme violence against previous particularly in those stores which and report to the probation service
partners is found to have begun a children tend to frequent. upon release, the media would be
A leaflet has been produced,
new relationship, Police may informed and an appeal issued for
explaining that retail staff can help
disclose details of the man’s information about his whereabouts.
fight crime by being alert to
offences to his new partner. It was felt this would help safeguard
shoplifters and other offenders.
The leaflet has been designed for the public by raising awareness. In
In the very rare cases of predatory general use, so it can be made the event, the man complied fully
sex offenders, there may be available in other major town and kept his release appointment.
disclosure to schools in a particular centres and shopping areas such
neighbourhood. A letter to be used as the Trafford Centre. A new initiative in 2002 was the
in such circumstances has been A series of presentations have also signing of a media protocol between
drawn up. It is intended for use by been given by police and probation police, probation and the local and
Head Teachers to alert parents and staff to raise awareness of sex regional media. This has helped to
carers to the potential danger to offenders in our cities and to advise ensure that the media are better
children; it also provides useful on how to protect the public. aware of how agencies co-operate to
educational information and local The presentations have attracted a manage offenders in the community
contacts. Such a letter has only great deal of interest. They have and how media coverage can both
been needed once in Greater now been given to retail managers, help and hinder their supervision.
Manchester. 40 police officers/sergeants, local The protocol also sets out what
authority staff, and employees at assistance police and probation will
Disclosure rarely means provision of Manchester’s Arndale centre offer to the media in their coverage.
information to the media; it usually (including managers, food court
takes place on a one-to-one basis, and security staff and toilet The protocol was launched to editors
and is handled sensitively by the attendants). The most recent was and journalists In June 2002. Almost
professionals involved. to cinema staff working at the new 40 newspapers and broadcasters
Printworks leisure complex.
have signed up. So far, it has been
Disclosure to the media may happen used very successfully and has
where they may be able to assist The media can play a major role in promoted improved working
public protection by wide coverage helping to alert the public. For relationships between the media,
of an individual case. example, if an offender deliberately police and probation.
6. Supporting victims

There is a network of police Family may be living. The views of victims released back into the community.
Support Units throughout the are reported back and where For this reason, Victim Support staff
Greater Manchester area which appropriate will be taken into have been keen to become involved
support child victims and their account in the offender’s licence. in MAPPPs, in order to properly
families through the process of represent the victim’s interests and
reporting, investigation and The probation service’s remit is perspectives. They aim to work with
prosecution following a crime. limited to provision of information, agencies to assist in fulfilling their
Family Support Units help people but it is recognised that victims are obligations, whilst passing on the
who are victims of domestic violence often anxious and have an ongoing concerns of victims and ensuring
and those children who are subject need for emotional support and that victims are kept fully informed.
counselling. Although the probation
to violence or sexual assaults.
service is unable to provide such During the year, Greater
additional support, it maintains links Manchester’s Victim Support and
The St. Mary’s Sexual Offence
with local Victim Support services. Witness Service has become
Referral Centre, supported by
involved in the Government-led
Greater Manchester Police, is a
Victim Support is a national charity Street Crime Initiative. Witnesses of
national leader in supporting women
for people affected by crime. It is an violent crime have been contacted
and men who have been the victims
independent organisation, offering a and visited and their concerns
of sexual crimes. Counsellors are
free and confidential service, passed on. Some witnesses have
available to talk to in confidence.
whether or not a crime has been been accompanied to court,
reported. Trained staff and increasing their confidence in
Greater Manchester Police have
volunteers at local branches offer criminal justice and helping to
also acquired considerable expertise
information and support to victims, reduce the number of “cracked”
in pursuing criminal investigations
witnesses, their families and friends. trials.
where the victims are unknown or
difficult to reach, for example child
Victim Support provides the Witness Planning is also under way to
victims of internet pornography.
Service, based in every criminal provide an enhanced service to
court in England and Wales, to offer victims and witnesses and a multi-
Greater Manchester Probation Area
assistance before, during and after agency steering group set up to lead
employs a number of Probation
trial. You can also call the Victim this process. The aim is for the
Service Officers who undertake
Supportline – 0845 30 30 900 - for Victim Support and Witness Service
liaison work with victims. This is
information and support and details to have greater involvement in
required under Section 69 of the
of local services and other relevant supporting vulnerable and
Criminal Justice and Court Services
organisations. intimidated witnesses prior to trial.
Act 2000. These staff are based in
district offices and their role is to visit
Greater Manchester Victim Support Victim Support also supports local
those victims of serious violent or
and Witness Services is a charity victims and vulnerable witnesses
sexual offences where offenders are
providing local support and through the court process, through
sentenced to over 12 months’
assistance to victims of crime and to its Witness Service. This service is
vulnerable witnesses. As a charity, available to both adults and children.
its resources are limited; it therefore
Victim Liaison Officers will provide
makes an assessment in each case In Bolton, a Young Witness Support
victims with information about the
in order to direct resource towards Scheme has been in place for some
offender’s sentence, parole eligibility
areas of greatest need. time. This scheme provides support
and any plans for release. They will
also ask the victim if they have any for young victims of crime who are
Where an offence is one of violence required to give evidence in court
views which might affect the
or of a sexual nature, the needs of proceedings.
offender’s licence conditions on
victims are greatly increased. The
release. For example, some
impact upon a victim can be A Support Worker will help prepare
offenders can be forbidden from
substantial, particularly where the the young person for the court by
making contact with victims or from
offender has the potential to be telling them what to expect and
coming into an area where the victim
arranging familiarisation visits. During 2002-3, this scheme was Contact details for Greater
They will also accompany the young extended to offer support to all Manchester Victim Support and
person to court and offer ongoing young witnesses involved in court Witness Service are listed in the
support after the case. proceedings, not just victims. Contacts section at the end of this


7. Promoting best practice

In Greater Manchester, a Multi- Mental Health. Representation has own authority or agency, but bring a
Agency Risk Panel Steering Group been sought from the Crown perspective from their particular area
had already been set up to tackle Prosecution Service; it is hoped that of work. All have working
strategic issues around MARPs and their representative will be able to responsibilities for areas relevant to
their operation. This group, with attend future meetings. MAPPPs.
some changes, then became the
countywide MAPPP Steering Group In addition, Greater Manchester has In the North West police, probation
following the CJ&CS Act 2000. been chosen to pilot a scheme and prisons have tried to model, at a
involving the appointment of Lay strategic level, shared responsibility
The group has now become the Members to its strategic board. for public protection.
Two lay members were recruited
MAPPA Strategic Management
and attended their first meeting in Senior managers from all three
January 2003. They bring a unique agencies meet regularly to look at
perspective to the group and it is the strategic implications and
The group is jointly led by a
hoped that their role will evolve development of MAPP arrangements
Superintendent from Greater during their term of office.
Manchester Police and by an to ensure consistent implementation
Assistant Chief Officer from the of national policy and guidance
The next section describes the early
National Probation Service (Greater across the region.
experiences of one of Greater
Manchester), with the probation Manchester’s lay members.
Assistant Chief Officer in the chair. This work has culminated in an
In January 2003, the chair passed to Membership of the full group will be annual seminar which attracts
the police Detective Superintendent reviewed annually. representatives of other agencies to
for an agreed period of 2 years. emphasise the shared responsibility
Other members of the group include The county of Greater Manchester is for assessing and managing the risk
other police and probation large and because it covers 10 local presented by potentially dangerous
representatives, a local authority offenders. These seminars are an
authority districts, it is not practicable
housing manager, Deputy Chief to seek representatives from all 10 opportunity to update delegates on
Executive of Victim Support, a boroughs. The aim, however, is to national issues and to share best
member of a local Youth Offending practice at a regional level.
achieve countywide coverage from
Team, representatives from amongst the membership. Those
departments of Social Services and appointed to the Steering Group are
Education, a Prison Officer and
not strictly representatives of their
service director for Manchester
8. Being a lay member
Greater Manchester is one of only Shortly after appointment I was I feel that people are being really
eight areas in the country chosen invited to a regional seminar for open and willing to share information
to pilot a lay member scheme. police, probation and other agencies with me. They have shared their
who work with sexual and violent difficulties, such as anomalies in the
In these eight areas, two lay offenders. I was really surprised by law, but they are not complacent.
members have been appointed the status and importance of the They continue to work proactively.
from the general public to the event, with over 100 people
Strategic Management Boards attending committed to this area of I want to know more. Some
which oversee MAPPP work. agencies are not quite as active as
arrangements in the area. others and seem quite passive about
All the lay members – there are 16 of their contribution; I am interested to
us nationally – were invited to attend know why.
One of Greater Manchester’s lay
a training event in Birmingham. This
members has been keeping a
provided an insight into the nature of Professional
journal of her early experiences in sexual offending and a better But not one person has told me: “We
the role. Here, she describes the understanding of issues around have got it right”. Everyone I have
impact the work has made on her Megan’s Law and Sarah’s Law. met has been completely committed
so far…. to the work, acting professionally
As my role develops, I am having all and proactively in all they do. But
“My interest began when I read a kinds of opportunities extended to there is no complacency.
newspaper article about a sex me. I have visited Greater
offender who had stayed in a hotel Manchester Police’s Violent and Sex The police officer I accompanied on
where children were also staying the Offender Registration Unit and been home visits confided: “It feels like
night. My first thoughts – as a parent with the police on home visits to treading water”. There is no let-up.
– were for the children and their convicted sex offenders. I sat in There is a constant re-evaluation of
safety. I was concerned to know their homes and listened as police what is happening; no-one ever sits
what had been done to protect them. elicited information from them. back and congratulates themselves
on doing well.
When I saw the advertisement for Surveillance
lay members, I was intrigued by the I have been to Manchester Prison Although the Annual Report tries to
prospect of not only viewing the and looked at the work undertaken give a full and descriptive view of the
public protection work that takes with offenders. I watched work of the agencies involved in
place but also being given the surveillance personnel at work public protection, it somehow fails to
opportunity to contribute my monitoring drug smuggling. I spent capture the level of commitment and
perspective as a member of the time talking to prison officers on the determination of so many individuals
community. wings where sex offenders are involved in this work. Seeing it first
housed. hand has made it come alive for me.
Rigorous The level of detail involved, sharing
I was really pleased to be appointed A probation officer seconded to work information and knowledge, is rarely
and I am now beginning to value the alongside police on high-risk cases seen.
need for the rigorous process of extends his time - often giving up his
testing that was involved. We went lunch break - to explain and clarify Safety
through six hours of testing, procedures to enable me to better In Greater Manchester, the music
assessment and interviews, to not fulfil my role. I have also attended matches the words: what should
only ensure our objectivity but also MAPPP meetings. happen does actually happen. I feel
our ability to cope with what may be confident in sharing my belief that
a distressing area of work. The Detective Superintendent of what is happening here in
police for public protection is very Manchester definitely enhances the
I am not from a professional proactive in his role, maintaining safety of everyone within our
background, which I hope is useful, contact to ensure that I become community.
and I am happy to be judge on my more competent in role.
ability to look at all aspects of a
9. Statistical Information Number of offenders

i. The number of Registered Sex Offenders (RSOs) in the community on 1278

31 March 2003

The number of RSOs per 100,000 population 49

ii. The number of SOs having a registration requirement who were either 70
cautioned or convicted for breaches of the requirements between 1
April 2002 and 31 March 2003

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

(a) The total number of Sex Offender Orders applied for 4

(b) The total number granted 3

(c) The total number not granted 1

iv. The number of Restraining Orders issued by the courts between 1 April 2
2002 and 31 March 2003 for offenders currently managed within

v. The number of violent offenders and other sexual offenders considered 1682
under MAPPA during the year 1 April 2002 and 31 March 2003 (as
defined by section 68 (3) (4) & (5) CJ & CS Act 2000)
N.B. The figure (right) shows the probation caseload at 31.3.2003 for
those sentenced to 12m or more for violent & sexual offences, minus
the no. of those who are registered sex offenders

vi. The number of “other offenders” dealt with under MAPPA during the 20
year 1 April 2002 and 31 March 2003 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 75

b) MAPPP – violent and other sex offenders 60

c) MAPPP – other offenders 20

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

a) who were returned to custody for breach of licence 25

b) who were returned to custody for breach of a Restraining Order or Sex 6

Offender Order

c) charged with a serious sexual or violent offence 2

• During 2002-3, two cases involved offenders being charged with a further
serious sexual or violent offence whilst the subject of MAPPP

• One of these was a dangerous offender who had been under close
supervision; he was arrested by police within hours of an incident being
reported. He was later sentenced to 8 years’ imprisonment after pleading
guilty to attempted kidnapping. He will be subject to strict and intensive
supervision upon release with an additional 2 years’ supervision in the

• The second case involves a difficult young man with a history of indecent
assaults against women. Only 19, he has not been diagnosed as
mentally ill but has now been referred for psychological assessments. He
appears to live in a fantasy world with little grasp on reality and it has
proved extremely difficult to work with him. Whilst living with his mother,
he committed an offence of indecent assault; he was remanded in
custody but later released on bail. He is currently in prison again, having
twice breached extremely tight bail conditions. Agencies are now looking
towards a Sex Offender Order or Restraining Order as a way of
maintaining tighter control of him in future.

Greater Manchester Probation Area Address Phone

Assistant Chief Officer (Risk Assessment & 6th Floor 0161 872 4802
Management) Oakland House
Talbot Road
Old Trafford
M16 0PQ

Head of PR & Communications (As above) 0161 886 4802

Greater Manchester Police Address Phone

Detective Superintendent (Crime Support Services) Crime Operations Department 0161 872 5050
Bradford Park
3 Bank Street
M11 4AA

Head of the Public Protection Section (As above) 0161 856 6571

Media enquiries Force Headquarters 0161 856 2239

Assistant Director (Corporate Communications) Boyer Street
M16 0RE

Greater Manchester Victim Support and Witness Service Address Phone

Chief Executive/Deputy Chief Executive 153-157 Chorley Street 0161 727 0244
M27 4AE
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