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 undertaken.

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 MultiAgency 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 MAPPPs). 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 later. 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 probation.

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 offenders The Strategic Management Group membership has extended to include a prison officer and health representation 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 overall responsibility for ensuring that management arrangements are in place for all serious violent and sexual offenders in the community, as defined in the Criminal Justice and Court Services Act 2000. Where cases are assessed as being of low or medium risk management is primarily undertaken by police and probation services. High risk cases are managed through Multi-Agency Public Protection Panels (MAPPPs). These arrangements are outlined in further detail in Section 3. Greater Manchester comprises 10 local authority areas. Each of these 10 areas – Bolton, Bury, the City of Manchester, Oldham, Rochdale, Salford, Stockport, Tameside, Trafford and Wigan – have arrangements in place for MAPPPs in their locality. MAPPPs are chaired by either the District Manager for the Probation Service or a local senior police officer. A countywide protocol, agreed by all the agencies involved, sets out how MAPPPs are convened and administered. This serves as a template for all MAPPPs, who may amend the protocol to suit local needs. A MAPPP can be requested by any agency. All MAPPPs can call upon the attendance of other agencies within the community, such as local authority housing officials and social services representatives as required. These agencies fulfil particular roles in helping to manage dangerous offenders. These are described below. Housing Stable accommodation is extremely important in ensuring that dangerous offenders are rigorously managed. It can help in the organisation of surveillance and encourages responsible behaviour on the part of offenders under supervision. Housing professionals contribute significant expertise in placing offenders in suitable accommodation, both in terms of the offender’s requirements and public protection. In Greater Manchester, housing providers who have attended MAPPPs include local authorities, Housing Associations and staff from both statutory and voluntary hostels. Greater Manchester has seven approved premises (hostels). These have strict rules and conditions of residence, including a strictly enforced overnight curfew. Together with 24-hour staffing cover, this allows the rigorous supervision of offenders who live there. Approved premises can be an important first step back into the community for offenders newly released from prison. They are extremely important for public protection, providing additional supervision for offenders who would otherwise have to look for accommodation elsewhere in the community. In a hostel, offenders can be more closely monitored and managed. One hostel has specialist provision for offenders with mental health problems. All offer programmes and extra work which can help reduce offending. Hostel staff regularly attend MAPPPs to provide vital information on offenders who are current residents. Social Services Social Services departments have primary responsibility for child protection matters and staff often have significant valuable information regarding the family networks that dangerous offenders have. Their perspective on the management of dangerous violent and sexual offenders can be crucial. There is often an overlap between the work of MAPPPs and Area Child Protection Committees, where police and probation are represented in appropriate cases.

Case Study
Mr A came to the attention of the police because of his contact with a girl under the age of 16. The girl, who was receiving assistance from Social Services, went missing from home. She was later found in the company of Mr A. Mr A was an associate of a registered sex offender but was not subject to registration himself. He did have previous convictions, however, with offences of indecency against young girls going back to the 1980s. Mr A was interviewed by police but maintained contact with the girl. He was made the subject of MAPPP proceedings and because of his continued contact with the girl, police applied for a Sex Offender Order. This was granted by the court and restricted contact with any child under the age of 16, forbidding him from having children in his car or his home. The order also specified that he was to have no further contact with the girl. Police found him collecting the girl from her home just 2 weeks after the Sex Offender Order was made. Mr A was arrested and later sentenced to 2 years’ in prison for breach of the Sex Offender Order.

In Manchester, Compliance Tenancies have become a feature of the supervision of some offenders. In such cases, the offender must agree to additional conditions before being granted a tenancy. These may include accepting regular supervisory visits.

Education Schools and occasionally Further Education colleges can be a valuable aid to the management of younger dangerous offenders. Such offenders are few, but they have the potential to cause considerable disruption in local communities. Education providers can help to provide additional monitoring of offenders attending school or college courses. There are a critical few dangerous offenders who target children. In such cases, action plans to manage those offenders may require the involvement of education officials, in order to protect children and reassure parents. Youth Offending Teams Although dangerous offenders are usually adults, there are a few cases each year where young offenders are assessed as being a danger to the public. These cases may well be under the supervision of Youth Offending Teams (YOTs). YOTs can develop intensive supervision arrangements for such offenders; it is vital therefore that in appropriate cases YOTs are represented at MAPPPs. Youth Offending Teams themselves consist of multi-disciplinary teams (including police, probation, education and social workers) and are therefore well placed to coordinate arrangements to closely manage these dangerous young offenders. Health Health issues maybe a significant factor in managing dangerous offenders. Some offenders have mental health problems which are identified as needing proper assessment and treatment where appropriate. For example, dangerous behaviour can be exacerbated if offenders are not receiving appropriate medication.

Appropriate representation at a MAPPP can include a local GP and/or specialist psychiatric staff. Some health professionals have attended MAPPPs, but it has proved difficult to secure the consistent attendance of health service representatives. This is a matter that was pursued by the county’s Strategic Management Group last year but practice is inconsistent. The organisational structure of the health service across the county makes it difficult to find appropriate representation. Further efforts to resolve this issue will be pursued by the SMB in the forthcoming year. Victim Support Greater Manchester Victim Support and Witness Service is totally supportive of the MAPPP process. Staff from the service have participated in MAPPP meetings in most districts across the county. Where Victim Support’s involvement is requested at a MAPPP, a staff member will attend the MAPPP meeting and will then liase with the appropriate victim worker in the case. Other agencies On occasions, MAPPPs are attended by other community agencies and individuals, where they have a particular perspective to add to any discussion. In Greater Manchester, those attending have included:• Prison officers • Housing Compliance Officers • Staff from the Police’s Domestic Violence Unit • Probation Service victim liaison officers • An offender’s family members.

Case Study
Mr B is a registered sex offender who was being visited regularly by the police. On a routine visit, he was found to have a pink sock on his radiator and bikes in his back garden. After a police investigation, he was found collecting a child from a bus and had children staying with him. Mr B had befriended a family and helped to look after the children. He confessed to assaulting the two children in his home and was sentenced to 6½ years in prison. His confession meant that the children were spared from giving evidence in court. His case was unusual in that the court granted a Restraining Order at the time of sentence. This has the same effect as a Sex Offender Order, enabling police to monitor him upon release. He will also be subject to a period of extended supervision, giving police and probation greater powers to manage him in the community.

In Greater Manchester, all MAPPP arrangements are overseen by a Strategic Management Board. Representatives of all the agencies described in this section serve on the Board, together with lay members appointed for the first time in 2002. (For more details, see under “Promoting best practice”).

4. How do MAPPPs work?
3.1. In addition to the day-to-day work of the police and probation service outlined in this report, Greater Manchester has developed multi-agency assessment procedures for the assessment and management of sexual, violent and dangerous offenders. The assessment and management of these offenders is at three levels:(a) Information exchange (for the lower/medium risk cases) see par. 3.6 (b) Joint police and probation agreed risk assessment (for potentially dangerous offenders); this could be described as the high risk group see par. 3.7 (c) Multi-Agency Public Protection Panel meetings, for the critical few most dangerous offenders see par. 3.9 These processes are explained more fully below. 3.2. Initial risk assessments on serious violent and sexual offenders are normally undertaken at the point of sentence, via a Pre-Sentence Report. These reports are prepared by the probation service, in the case of adult offenders; for offenders under the age of 18, reports and risk assessments – and subsequent supervision - are the responsibility of Youth Offending Teams. 3.3. Reports assist the court in determining a suitable sentence and will also be used by the probation service if the offender is subsequently made the subject of a community sentence such as a Community Punishment Order or Community Rehabilitation Order. Probation staff have many years of experience in working with offenders, many of whom are now required to attend special programmes to help stop them committing further crimes. may live in their own homes or in private rented accommodation. Some live in accommodation provided by a registered social landlord (such as a housing association or local authority). Research evidence shows that having stable accommodation and employment is very important in reducing the risk of reoffending. Stable accommodation, at an address which is known to the agencies involved, is also very important in managing offenders in the community. 3.5. If an offender is sent to prison, a further assessment will be carried out if the offender is to be released subject to a period of supervision by the probation service. Depending on the length of the supervision period after release, the offender will be reassessed regarding the level of dangerousness whilst in the community and appropriate public protection plans will be put in place. 3.6. The Criminal Justice and Court Services Act 2000 defines those cases requiring joint assessment between police and probation services. In many cases, the probation assessment will conclude that the risks to the public are low or medium. In these cases, the probation assessment will be communicated to the police. If police information systems reinforce the probation assessment, this will become the agreed joint assessment. 3.7. In some cases, the probation assessment will suggest the offender is potentially a high risk to the public, or on receipt of the probation assessment the police may find they have information that suggests the assessment should be higher. In these situations, police and

Case Study
A serious sexual and violent offender - no longer under statutory supervision - was being monitored by the police on a Sex Offender Order. Reports came through that the man was luring children into his home by providing alcohol and allowing them to smoke cannabis. It became clear that his accomodation was very unsuitable as there were a lot of children in the vicinity and particular young people appeared to be at serious risk. At an initial MAPPP meeting, the option of disclosing to their parents was seriously considered. This information was shared with the offender and he was given the option to move. Within a week, and due to some excellent collaboration between housing, police and probation staff, the man was moved to much more appropriate accomodation. This removed him from the locality of the children deemed to be at risk. His new home is in a large block of flats for largely single adults and which has a concierge system. The police made sure links were in place with housing staff. After six months, the offender was deregistered as a MAPPP case; the man no longer represented the very high level of risk which MAPPP registration denotes. He is, however, still being monitored by police through his Sex Offender registration requirements. 3.4. Those offenders serving community penalties continue to live and work in our community. They

probation representatives will meet to share information and reach a joint assessment of risk. They will also draw up an Action Plan to manage the risk identified. 3.8. With regard to the critical few most dangerous offenders, a MultiAgency Public Protection Panel will be convened. The chair of the meeting (a probation District Manager or a local senior police officer) adheres to agreed protocols regarding the format of the meeting, format of minutes and rules regarding confidentiality. All relevant agencies are represented at these meetings – including those with particular knowledge relevant to the case. A full information exchange takes place and an Action Plan agreed. In the case of those offenders who are awaiting release, prison staff will sometimes travel to attend the MAPPP in order to provide additional information to the Panel. Representatives from the agency which will provide accommodation for the offender will also attend, alongside local police and probation staff who will have case management responsibility. The Panel will work towards an agreement on the level of risk and will formulate an Action Plan to manage that risk. All agencies represented will be closely held to account for any tasks to be carried out under the Action Plan. Regular review meetings are held, usually bi-monthly although any agency involved can request an emergency MAPPP if they feel circumstances have changed; attendance is given top priority. Agencies involved in the case will

keep in close contact between meetings to ensure the Action Plan is being implemented appropriately. There are currently 155 MAPPP cases across the whole of Greater Manchester. In some cases, offenders considered by a MAPPP are not the subject of any statutory supervision in the community. These tend to be offenders who were convicted of serious offences in the past but who have not re-offended; their recent behaviour may be of sufficient concern, however, to warrant referral to a MAPPP. There are also offenders who are required to register under the Sex Offenders Act 1997 who require joint assessments under the new arrangements; many were previously monitored only by the police. 3.9. In direct response to the statutory requirements outlined in the Criminal Justice & Court Services Act 2000, and following consultation with the Probation Service, Greater Manchester Police elected to make a significant commitment towards future work in this area by the formation of a dedicated, centralised ‘Public Protection Unit’. The unit, now known as the ViSOR [Violent and Sex Offender Registration] Unit, provides a central resource and support framework, with specific expertise in this field. It works closely with local police and probation officers across Greater Manchester and covers all issues involving the management of sexual, violent and dangerous offenders. The ViSOR Unit began work on the 1 May 2001, staffed by over 20

police personnel and a dedicated Probation Service co-ordinator; all have received in-depth multi-agency training in offender risk assessment, management and monitoring. It provides a central point of contact for liaison with all other agencies involved in this work across the area and with the GMP Force Intelligence Bureau. Following the initial success of the unit, it has been confirmed that increased staffing for the ViSOR Unit will be provided by the Probation Service for the forthcoming year, capitalising on the success of the joint working arrangements already in place. There are now two probation officers working alongside police colleagues in the ViSOR Unit ensuring information exchanges between the agencies is of a consistently high standard. 3.10. The ViSOR Unit is responsible for maintaining the Sex Offender Register for Greater Manchester, and for ensuring the compliance of those on the register. The number of registered sex offenders is expected to rise every year for the next few years. This is because the legislation which brought about the Sex Offender Register in 1997 did not apply to offenders convicted before that time, unless they were still under supervision or in custody. This means that the numbers will continue to “catch up” for several years until a peak is reached.

5. Disclosure
The power to decide whether to disclose information about an offender rests with the Police. Each MAPPP has Disclosure as a specific agenda item. This means that disclosure is considered at every meeting, and a decision made on each case on its merits. There are many examples of disclosure in the day-to-day work of MAPPPs. Where an offender has a history of sex offences, for example, agencies would ensure that there is disclosure to a new partner if there are concerns about the partner or any children of the family becoming a potential victim. Similarly, if a man with a history of extreme violence against previous partners is found to have begun a new relationship, Police may disclose details of the man’s offences to his new partner. In the very rare cases of predatory sex offenders, there may be disclosure to schools in a particular neighbourhood. A letter to be used in such circumstances has been drawn up. It is intended for use by Head Teachers to alert parents and carers to the potential danger to children; it also provides useful educational information and local contacts. Such a letter has only been needed once in Greater Manchester. Disclosure rarely means provision of information to the media; it usually takes place on a one-to-one basis, and is handled sensitively by the professionals involved. Disclosure to the media may happen where they may be able to assist public protection by wide coverage of an individual case.

Case Study
An offender living in a hostel following his release from prison moved to local authority accommodation on a compliance tenancy; this involves being visited regularly by housing compliance officers. He is the subject of MAPPP proceedings and has been under police supervision. One concern, however, has been his frequent visits to Manchester city centre. The MAPPP was concerned about the fact that he was visiting stores of particular interest to children - the Disney Store, Gadget Shop, HMV etc. A new campaign was planned to raise awareness amongst retail staff about the risk that sex offenders might present, particularly in those stores which children tend to frequent. A leaflet has been produced, explaining that retail staff can help fight crime by being alert to shoplifters and other offenders. The leaflet has been designed for general use, so it can be made available in other major town centres and shopping areas such as the Trafford Centre. A series of presentations have also been given by police and probation staff to raise awareness of sex offenders in our cities and to advise on how to protect the public. The presentations have attracted a great deal of interest. They have now been given to retail managers, 40 police officers/sergeants, local authority staff, and employees at Manchester’s Arndale centre (including managers, food court and security staff and toilet attendants). The most recent was to cinema staff working at the new Printworks leisure complex. The media can play a major role in helping to alert the public. For example, if an offender deliberately

fails to comply with supervision and his whereabouts become unknown, an appeal for information made be made through the media. This may allow them – and the public – to help track down the offender and thereby protect the public. Plans for such a scenario are always in place, but are rarely needed. There have been no occasions so far when such disclosure has been required in Greater Manchester, although this was actively considered during 2002. An offender due for release from prison had been refusing to cooperate with police and probation. It was proposed that, should he fail to comply with the terms of his licence and report to the probation service upon release, the media would be informed and an appeal issued for information about his whereabouts. It was felt this would help safeguard the public by raising awareness. In the event, the man complied fully and kept his release appointment. A new initiative in 2002 was the signing of a media protocol between police, probation and the local and regional media. This has helped to ensure that the media are better aware of how agencies co-operate to manage offenders in the community and how media coverage can both help and hinder their supervision. The protocol also sets out what assistance police and probation will offer to the media in their coverage. The protocol was launched to editors and journalists In June 2002. Almost 40 newspapers and broadcasters have signed up. So far, it has been used very successfully and has promoted improved working relationships between the media, police and probation.

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

arranging familiarisation visits. They will also accompany the young person to court and offer ongoing support after the case.

During 2002-3, this scheme was extended to offer support to all young witnesses involved in court proceedings, not just victims.

Contact details for Greater Manchester Victim Support and Witness Service are listed in the Contacts section at the end of this document.


7. Promoting best practice
In Greater Manchester, a MultiAgency Risk Panel Steering Group had already been set up to tackle strategic issues around MARPs and their operation. This group, with some changes, then became the countywide MAPPP Steering Group following the CJ&CS Act 2000. The group has now become the MAPPA Strategic Management Board. The group is jointly led by a Superintendent from Greater Manchester Police and by an Assistant Chief Officer from the National Probation Service (Greater Manchester), with the probation Assistant Chief Officer in the chair. In January 2003, the chair passed to the police Detective Superintendent for an agreed period of 2 years. Other members of the group include other police and probation representatives, a local authority housing manager, Deputy Chief Executive of Victim Support, a member of a local Youth Offending Team, representatives from departments of Social Services and Education, a Prison Officer and service director for Manchester Mental Health. Representation has been sought from the Crown Prosecution Service; it is hoped that their representative will be able to attend future meetings. In addition, Greater Manchester has been chosen to pilot a scheme involving the appointment of Lay Members to its strategic board. Two lay members were recruited and attended their first meeting in January 2003. They bring a unique perspective to the group and it is hoped that their role will evolve during their term of office. The next section describes the early experiences of one of Greater Manchester’s lay members. Membership of the full group will be reviewed annually. The county of Greater Manchester is large and because it covers 10 local authority districts, it is not practicable to seek representatives from all 10 boroughs. The aim, however, is to achieve countywide coverage from amongst the membership. Those appointed to the Steering Group are not strictly representatives of their own authority or agency, but bring a perspective from their particular area of work. All have working responsibilities for areas relevant to MAPPPs. In the North West police, probation and prisons have tried to model, at a strategic level, shared responsibility for public protection. Senior managers from all three agencies meet regularly to look at the strategic implications and development of MAPP arrangements to ensure consistent implementation of national policy and guidance across the region. This work has culminated in an annual seminar which attracts representatives of other agencies to emphasise the shared responsibility for assessing and managing the risk presented by potentially dangerous offenders. These seminars are an opportunity to update delegates on national issues and to share best practice at a regional level.

8. Being a lay member
Greater Manchester is one of only eight areas in the country chosen to pilot a lay member scheme. In these eight areas, two lay members have been appointed from the general public to the Strategic Management Boards which oversee MAPPP arrangements in the area. One of Greater Manchester’s lay members has been keeping a journal of her early experiences in the role. Here, she describes the impact the work has made on her so far…. “My interest began when I read a newspaper article about a sex offender who had stayed in a hotel where children were also staying the night. My first thoughts – as a parent – were for the children and their safety. I was concerned to know what had been done to protect them. When I saw the advertisement for lay members, I was intrigued by the prospect of not only viewing the public protection work that takes place but also being given the opportunity to contribute my perspective as a member of the community. Rigorous I was really pleased to be appointed and I am now beginning to value the need for the rigorous process of testing that was involved. We went through six hours of testing, assessment and interviews, to not only ensure our objectivity but also our ability to cope with what may be a distressing area of work. I am not from a professional background, which I hope is useful, and I am happy to be judge on my ability to look at all aspects of a case. Shortly after appointment I was invited to a regional seminar for police, probation and other agencies who work with sexual and violent offenders. I was really surprised by the status and importance of the event, with over 100 people attending committed to this area of work. All the lay members – there are 16 of us nationally – were invited to attend a training event in Birmingham. This provided an insight into the nature of sexual offending and a better understanding of issues around Megan’s Law and Sarah’s Law. As my role develops, I am having all kinds of opportunities extended to me. I have visited Greater Manchester Police’s Violent and Sex Offender Registration Unit and been with the police on home visits to convicted sex offenders. I sat in their homes and listened as police elicited information from them. Surveillance I have been to Manchester Prison and looked at the work undertaken with offenders. I watched surveillance personnel at work monitoring drug smuggling. I spent time talking to prison officers on the wings where sex offenders are housed. A probation officer seconded to work alongside police on high-risk cases extends his time - often giving up his lunch break - to explain and clarify procedures to enable me to better fulfil my role. I have also attended MAPPP meetings. The Detective Superintendent of police for public protection is very proactive in his role, maintaining contact to ensure that I become more competent in role. I feel that people are being really open and willing to share information with me. They have shared their difficulties, such as anomalies in the law, but they are not complacent. They continue to work proactively. I want to know more. Some agencies are not quite as active as others and seem quite passive about their contribution; I am interested to know why. Professional But not one person has told me: “We have got it right”. Everyone I have met has been completely committed to the work, acting professionally and proactively in all they do. But there is no complacency. The police officer I accompanied on home visits confided: “It feels like treading water”. There is no let-up. There is a constant re-evaluation of what is happening; no-one ever sits back and congratulates themselves on doing well. Although the Annual Report tries to give a full and descriptive view of the work of the agencies involved in public protection, it somehow fails to capture the level of commitment and determination of so many individuals involved in this work. Seeing it first hand has made it come alive for me. The level of detail involved, sharing information and knowledge, is rarely seen. Safety In Greater Manchester, the music matches the words: what should happen does actually happen. I feel confident in sharing my belief that what is happening here in Manchester definitely enhances the safety of everyone within our community.

9. Statistical Information

Number of offenders


The number of Registered Sex Offenders (RSOs) in the community on 31 March 2003


The number of RSOs per 100,000 population


ii. The number of SOs having a registration requirement who were either 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


(b) The total number granted


(c) The total number not granted


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


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


b) MAPPP – violent and other sex offenders


c) MAPPP – other offenders



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


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


c) charged with a serious sexual or violent offence


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

• 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 Assistant Chief Officer (Risk Assessment & Management)

Address 6th Floor Oakland House Talbot Road Old Trafford Manchester M16 0PQ (As above)

Phone 0161 872 4802

Head of PR & Communications

0161 886 4802

Greater Manchester Police Detective Superintendent (Crime Support Services)

Address Crime Operations Department Bradford Park 3 Bank Street Clayton Manchester M11 4AA (As above) Force Headquarters Boyer Street Stretford Manchester M16 0RE

Phone 0161 872 5050

Head of the Public Protection Section Media enquiries Assistant Director (Corporate Communications)

0161 856 6571 0161 856 2239

Greater Manchester Victim Support and Witness Service Chief Executive/Deputy Chief Executive

Address 153-157 Chorley Street Swinton Manchester M27 4AE

Phone 0161 727 0244

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