Multi Agency Public Protection Arrangements (MAPPA


Protecting the Public
Hampshire & Isle of Wight Annual Report 2006-2007

Ministerial Foreword
These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the Government’s continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the way the MAPPA work. I want to highlight two of them here. Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents will be able to register a child-protection interest in a named individual with whom they have a personal relationship and who has regular unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption that the offences will be disclosed to the parent. Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that robust performance management is in place. To achieve this, we intend to introduce new national standards, which will ensure a consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the standards. We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always room for improvement. I commend this annual report to you as an indication of the commitment, skills and achievements of the professionals, and lay advisers, in managing and monitoring this essential, often difficult area of business.

Maria Eagle MP Parliamentary Under Secretary of State

Foreword by Paul Kernaghan
I am pleased to introduce the 6th Annual Report of the Multi Agency Public Protection Arrangements (MAPPA) in Hampshire and the Isle of Wight. Public expectations in the field of public protection have never been greater and, it is right that we are held accountable for decision-making in this area. However, communities in Hampshire and the Isle of Wight can be confident that public protection arrangements in the two counties are to a high standard where effective joint-agency working, which accords with national guidelines, is demonstrated. In large part this is to the credit of the dedicated members of staff within the Probation and Prison Services and Hampshire Constabulary, as well as other agencies with a duty to cooperate, who supervise, manage and share information in relation to high risk offenders on a daily basis. I recognise that there is always more to be learnt and it follows that such lessons will serve to further improve established mechanisms. To this end, I acknowledge the committed members of the MAPPA Strategic Management Board who oversee this important work throughout the year. Looking to the future, I have a duty to highlight the fact that year on year the number of offenders managed via the MAPPA regime continues to grow. However, there is a direct linkage between that increased demand and the resources allocated to the responsible agencies. Thus, the pressure on the budgets of individual agencies continues to grow. MAPPA are about managing risk and crucially retaining public confidence. I believe there is a need for increased central government investment in this area, coupled with a fundamental recognition that some high risk offenders will inevitably re-offend, notwithstanding the best efforts of the MAPPA regime. Government and society need to recognise that reality, and openly acknowledge that collectively we have agreed to increased risk in the community, in pursuit of policy objectives, many of which are valid and praiseworthy in themselves. The MAPPA regime is not a risk free alternative to imprisonment, and re-offending is equally not an automatic indicator of individual agency failure. In Hampshire and the Isle of Wight we remain committed to delivering a professional service with available resources.

Paul Kernaghan, Chief Constable, Hampshire Constabulary

During this sixth year of multi-agency public protection arrangements we have actively been working on our business plan aimed at continuing to improve the arrangements. We have trained a significant number of staff from a variety of agencies; we have carried out a further two full day audits of casework, and we have established a process to look in detail at cases where serious further offending does occur. We all know that there will be a small minority of cases where serious further offending will occur despite the efforts of all agencies concerned. In these circumstances we want to ensure we have done all that was reasonably possible to do. That is the purpose of our new review process. During this year, we have welcomed a representative from the Local Authority Supporting People team on to the MAPPA Strategic Management Board. This representation will enhance the support we already have from the Local Authorities’ Housing Officers’ Group. We know that re-offending is less likely to happen if prisoners and others maintain their accommodation in the community, or have somewhere to live upon release from prison. The Supporting People team link with social landlords and other accommodation providers, and so this input to our Arrangements is welcomed. We have also seen changes in Local Authority Children’s Services and the establishment of Local Safeguarding Children’s Board this year, and the critical link to public protection has been endorsed through representation on the MAPPA Board by colleagues from Children’s Services. Our Lay Advisors continue to give up their time to give us the benefit of their views and advice, and once again, we express our thanks to these two committed people. Next year we expect the Guidance that instructs us in our work to be updated to enhance public protection even more. We will prepare for this and run another conference to inform staff from all our partner agencies on the ways that we will continue to improve our Arrangements. We are always pleased to have feedback on the format of this report, or to speak about the way in which we work to manage high risk offenders in our community. We welcome any invitations to speak to communities to improve knowledge and confidence in our MultiAgency Public Protection Arrangements. Liz Ashton Director of Offender Management Hampshire Probation Area Chair of the MAPPA Strategic Management Board

6 Achievements
Spreading the Word Technology Greater Public Involvement

8 Understanding MAPPA
Deciding Categories and Levels Agencies with a Duty to Cooperate MAPPA in Hampshire and Isle of Wight I Case Study 1 Managing Mental Health Problems

I Case Study 2 Return to Prison of a Sex Offender

I Case Study 3 Return to Prison of a Female Arsonist

13 Working with Victims
I Case Study 4 Working with Victims

14 Statistics
2006/07 What do they tell us?

17 Strategic Management
Perspectives on Partnership Glossary Contacts

It has once again been an extremely busy year which has included the successful implementation of our . 2006/2007 business plan. One area that we felt was of particular importance was that of training and raising awareness of the MAPPA process. During 2006/2007 we hosted five, two day MAPPA Awareness Events. These events were specifically aimed at multi agency staff who were new to the MAPPA arena. We were pleased that we not only had good representation from Police and Probation officers but also from our partnership colleagues in Mental Health, Adult and Children’s Services, Youth Offending Team, Local Safeguarding Children’s Board and Group 4 Security. DCI Mark Ashthorpe, Public Protection and Offender Management writes:
This has been another challenging year for MAPPA in Hampshire and another year in which we have tried to improve our capacity to protect the public.

The events were extremely well received by the partnership agencies and we will continue to host these events annually to ensure that all staff new to the MAPPA arena are informed of the MAPPA process and of their responsibilities. Our business plan also recognised the impact that serious further offending has on both the victim and their families. The Strategic Management Board in Hampshire has implemented an internal process specifically aimed at reviewing these cases. Members of the board including a lay advisor are selected to review each case and disseminate their findings to the board. Following the re-organisation of local police and probation structures last year, 2006/2007 has been a year of consolidation for both services. This has further enhanced the excellent partnership working that is already in place. We have been fortunate that

The MAPPA Strategic Management Board have this year initiated a ‘Serious Case Review’ process so that all agencies engaged in MAPPA work can learn lessons on the few occasions when MAPPA offenders re-offend. While it is impossible to completely stop offenders from re-offending it is important that we all learn lessons from these cases; the Serious Case Review process aims to achieve just that. MAPPA is a priority for the government and the Police Service and it is important that we constantly seek to improve and develop to better protect the people of Hampshire and the Isle of Wight. It is vital that all agencies work together and we are exploring better ways of achieving this including looking at the co-location of police and probation officers Mark Ashthorpe

2006/2007 has not seen any changes to key staff. Chief Superintendent Matthew Greening remains as the police representative; Liz Ashton, Assistant Chief Officer and Director of Offender Management remains as the probation MAPPA lead and chair of the SMB and Bruce Davison, remains as the prison area representative. This continuity has allowed us to develop and improve our practices. David Renouf, Probation Area Manager with responsibility for MAPPA, has now been in post for over twelve months, David writes:


help them understand their own responsibilities within MAPPA. It is only through such understanding that we will achieve good quality supervision of offenders. For example, other agencies bring expertise in relation to health problems, drugs and alcohol misuse. Their advice is invaluable to the RA agencies who are then able to prioritise the balance of information with confidence.

2006 Hampshire “ In November introduced updated and Probation Area

improved practice guidance to our staff working within the MAPPA framework. This has introduced improved arrangements for interagency meetings and reviewing offenders who are managed by MAPPA. New guidelines have increased requirements on information sharing, risk assessment and risk management planning, further strengthening actions that can be taken to protect victims or potential victims of the offenders referred to MAPPA. Hampshire Probation Area has continued to increase its training programme for staff working within MAPPA and additionally has provided joint training for Chairs of interagency risk management meetings and to the staff working in support services who record those meetings. Hampshire Probation area therefore is continuing to invest in training staff to manage the complex risk factors presented by many of the offenders that are managed within MAPPA.

ViSOR is the largest national computer system to be introduced into police services since the establishment of the Police National Computer (PNC). It provides a computerised national intelligence database that can record details of all MAPPA offenders and other people identified as ‘potentially dangerous’. It has been used by Hampshire Police for the last 2 years, by the end of 2007 the probation and prison services will also be linked, allowing far greater collaboration between the services and providing a further enhanced level of public protection for the local community.

As I complete my first year as Probation Area Manager with lead responsibility for MAPPA work I remain impressed by the level of skill and dedication that both Probation, Police and other agency staff bring to the work of protecting individuals and communities from potential further harm from high risk offenders . David Renouf

In addition to the two Lay Advisors, the general public can be involved in the management of sex offenders by volunteering to be part of the Circles of Support and Accountability scheme.

Throughout the year key staff within the prison, probation and police services (known jointly as the Responsible Authority - RA) have given presentations to staff in other organisations to

Circles of Support and Accountability work with sex offenders in an attempt to help them avoid further offending. Circles consist of four to six volunteers who agree to befriend a sex offender to offer support, advice and guidance and challenge signs of inappropriate behaviour. Hampshire has only recently adopted Circles and currently has one Circle running, with volunteers for a further three. More information can be obtained about Circles of Support and Accountability from

Understanding MAPPA
The Multi Agency Public Protection Arrangements provide a framework for identifying, assessing and managing those offenders in the community whose previous offences or current behaviour suggest they could pose a risk of harm to others. On 1st April 2001 it became a statutory duty for police and probation, and later the prison service, to establish the local MAPPA. There are three categories of offenders who fall within the MAPPA and they are managed at three different levels:

CATEGORY 2: Violent or Other Sexual Offenders These are mainly offenders who have been sentenced to 12 months or more imprisonment for an offence listed in Schedule 15 Criminal JusticeAct 2003. They are not Registered Sex Offenders. The schedule lists offences ranging from murder and rape to violent disorder and voyeurism.

CATEGORY 1: Registered Sex Offenders Put simply, these are people who have committed an offence listed in Schedule 3 of the Sexual Offences Act 2003. Dependent upon their offence they may need to meet other criteria before being required to register. Offenders may be required to register for a minimum of two years to a maximum of life, depending on the sentence they receive. CATEGORY 3: Other Offenders These are people who have a conviction somewhere in the past that indicates they are capable of Serious Harm* (for example, grievous bodily harm) and who are now exhibiting behaviour indicating that there could be a current risk of serious harm.

*Serious Harm – a risk which is life threatening and/or traumatic and from which recovery, whether physical or psychological, can be expected to be difficult or incomplete.


Understanding MAPPA
All MAPPA offenders must be assessed and reviewed regularly regarding their potential to harm others. Commensurate with that risk assessment they are managed within a three-tier system.

LEVEL 3: Multi Agency Public Protection Panels (MAPPP)

This level is reserved for those cases assessed as being the ‘critical few’ – predominantly offenders who have been assessed as the highest risk. They are managed by Multi Agency Public Protection Panels (MAPPP) consisting of senior officers from the required agencies working together because of the complexity of the case and/or the unusual resource commitments required. Offenders who pose a low risk may also be managed at this level due to the likelihood of media scrutiny and/or public interest.

LEVEL 2: Local inter-agency risk management
Level 2 risk management is used where the active involvement of more than one agency is required, but where either the level of risk or the complexity of managing the risk is not so great as to require referral to the Level 3. Cases may be referred to Level 2 after having been managed at Level 3 when, for example, the seriousness of risk or complexity has diminished.

LEVEL 1: Ordinary Risk Management

At this level the offender can be managed by ‘normal’ agency activity. For example, a registered sex offender who receives a community order will receive home visits from the local police and attend regular appointments with the local probation officer. Information will be shared by the agencies, however they will not necessarily come together to meet unless concerns are raised regarding the risks posed by the offender. The vast majority of offenders referred to MAPPA are managed at this level.


Understanding MAPPA

The Responsible Authority for each area is required to involve other key agencies in the management of offenders. Although initially the involvement was voluntary, a statutory duty was placed upon the agencies by the Criminal Justice Act 2003. This is important because a key part of MAPPA involves the exchange of information and the pooling of knowledge and expertise. Working together are: Youth Offending Teams Jobcentre Plus Local Education Authorities Local Housing Authorities Registered Social Landlords Adult and Children Services Health bodies – e.g. Strategic Health Authorities, Primary Care and Primary Care Trusts, Mental Health Trusts Electronic Monitoring providers

The multi agency approach to assessing and managing offenders who may pose a risk of harm to others is well established in Hampshire and the Isle of Wight. This dates back to the first Dangerous Offenders Protocol in 1998, when inter-agency meetings were held on a voluntary basis, and subsequently developed into the full MAPPA framework. A key process of the Hampshire MAPPA is the screening of virtually all cases through an initial information exchange meeting. This process enables identification of cases which can be managed safely at Level 1 – the vast majority – and simultaneously identifies those requiring a higher level of multi agency intervention at Level 2 or 3. By adopting this method and applying strict criteria for Level 3 cases, we have ensured that risks are managed appropriately and, importantly, that there is no log jam at any level in the process. Once an agency has identified a case for inclusion in the process, the MAPPA provides coordination, assessment and management of offenders at the three levels. Here we highlight several cases dealt with during the year which illustrate the high level of intervention and monitoring that is undertaken and the information sharing and support from other agencies, which play such a vital role in underpinning the work of MAPPA.

Further detailed information about MAPPA can be found in the MAPPA Guidance document contained on the National Probation Service website: output/Page1.asp


Understanding MAPPA

Case study 1 Managing mental health problems
Background Michael suffered frontal lobe damage to his brain from an accident. He finds it difficult to make decisions and does not understand social boundaries and displays highly sexualised behaviour. He was found guilty of a serious sexual assault and was placed under a guardianship order. He received 24/7 care and could not leave his home without the supervision of his carers. Risk Assessment Michael has been assessed as posing a high risk of harm to women and a high risk of violence towards men. Risk Management Michael’s behaviour became increasingly difficult to manage within a community setting and he was not cooperating with his care plan. The MAPPA identified that it was no longer viable for Michael to remain within a community setting and that his needs were best met by a specialist mental health unit. He was detained under Section 3 of the Mental Health Act and moved to a secure setting where he was placed under a treatment order. Outcome Michael is now resident at a secure unit where he is receiving specialist treatment that would not be available in a community setting.

Case study 2 Return to prison of a sex offender
Background Tony is a 21 year old man who was convicted for aiding and abetting attempted suicide, unlawful sexual intercourse and intimidation of a witness for which he received a 3-year custodial sentence. When he was 18 he formed a relationship with a 14 year old girl. When the girl had been told by her parents that she could no longer see him, Tony manipulated her into agreeing to a suicide pact, which was unsuccessful. He has previous convictions for indecent assault on two young females and a number of minor non-sexual offences. Risk Assessment Tony has been assessed as a very high risk of harm to children and adolescent females. Risk Management Whilst in prison he completed a Sex Offender Group Work Programme. Tony has an eating disorder which is driven by his desire to be slim and he is preoccupied with wanting a girlfriend. He is immature and has a desire to appear ‘boyish’. In prison Tony claimed to have received mail from his former victim, this claim was complete fantasy. A restraining order was put in place to prevent him from contacting her. On his release from prison an exclusion order was in place to prevent Tony from residing and visiting the area where his former victim lived. On his release he made contact with the victim via web-cam. He was arrested for harassment and his computer seized. Tony also produced hand written letters and e-mails which he purported had been sent to him by the victim. A handwriting expert confirmed that Tony had written the letters himself and also that Tony had sent e-mails to himself from a relative’s computer. He was returned to prison.

Key Factors in the successful management of this case:

the engagement of mental health services relevant agencies

I Prompt identification of an increase in risk I Pro-active approach by the Police to ensure I Good liaison and cooperation across the

(continued on Page 12)


Understanding MAPPA
Case study 2 continued Return to prison of a sex offender
He was later released to ‘approved premises’ where his behaviour remained challenging. His manipulative behaviour caused unrest amongst the other residents and he was central to a number of bullying incidents. Tony remained evasive regarding a new relationship he had formed with a female who had children. Outcome The MAPPA considered that his non-compliance of hostel rules and lack of co-operation with his supervisor indicated that he could re-offend at any time and a recall was initiated. Risk Management On her release from prison she was released to a women’s only hostel. Given the small proportion of female offenders, women only accommodation is not available in all counties so it was not possible to relocate her to Hampshire. Hampshire remained involved in the case. The MAPPA in Hampshire arranged for mental health, fire service, substance misuse workers and community mental health representatives to visit on a regular basis with Hampshire Probation and Police representation. This required a great deal of cooperation and coordination as representatives were required to travel out of area on a regular basis. The continued commitment by agencies resulted in Jane engaging well with all of the agencies and it was felt that she would soon be able to be released to independent accommodation. Outcome Shortly before she was due to return to the Hampshire area Jane formed a relationship with another female at the hostel. They both breached their licence conditions by not returning to the hostel within the time specified. Both were arrested shortly afterwards and recalled to prison. When she is due for release the same resources will be provided to assist Jane with her integration within the community.

Key Factors in the successful management of this case: across agencies

I Good exchange of information

I Use of specialists to determine the accuracy of information I Strong liaison with victim and consideration of needs I Prompt recall initiated

Case study 3 Female Arsonist
Background Jane is a 30 year old woman who received a two year prison sentence for an arson attack at her family home. On release from prison she committed a further arson attack at the same premises and was recalled. Risk Assessment Jane is assessed as presenting a high risk of harm to her immediate family. She has a personality disorder, depression and has alcohol misuse issues. 12

I Strong interagency co-operation and commitment I Good communication between the two counties I Supporting the offender in engaging with the appropriate support services I Demonstrating the resources that offenders require

Key Factors in the successful management of this case:

Working with Victims
In addition to the work to manage offenders, the Government has placed a much greater emphasis upon meeting the needs of victims. Section 69 of the Criminal Justice and Court Services Act 2000, amended by the Criminal Justice Act 2003, places a statutory duty upon the National Probation Service to contact victims of crime of a sexual or violent nature, to ask if they wish to be kept informed and consulted about the release arrangements for the offenders who committed the crime against them and who were sentenced to 12 months imprisonment or more. The Hampshire Probation Area has a dedicated Victim Contact Unit (VCU) working in close liaison with the MAPPA teams. A unit representative will attend MAPPA meetings to represent the views and concerns of the victims and in appropriate cases the victims themselves can be invited to express their personal views. These views can significantly influence the risk management decisions of the MAPPA meeting and inform how the offender will be managed and what actions are required to minimise the risk of further harm to the public. Information can be obtained about Victim Support from or by calling 0845 30 30 900 Should you wish to make contact with the Victim Contact Unit call 0845 6040150.

Case study 4 Working with victims
Background Steven is a 49 year old man who received a 10 year prison sentence for the rape of his daughter and her cousins. He has been denied parole on a number of occasions as he was not considered safe but is due for release at the end of the term of imprisonment. Risk Assessment He is assessed as presenting a very high risk of harm to family members and females. Risk Management A number of joint visits by the Probation Officer and Victim Contact Officer to the victims and their families revealed that both families had grown up together and are entwined in the neighbourhood. All of the victims are now young women and are terrified for their safety, as are their mothers and relatives. On these visits the families disclosed that Steven had committed a number of violent and sexual offences against them all but that they were too frightened to report these to the police. The families described Steven as devious and manipulative and they provided details of his offending behaviour that had not been previously identified. Outcome The information was shared at the MAPPP which has ensured that:

Core functions of Victim Contact Unit I Contact the victim (or victim’s family) to ask I I I I I I I

if they want contact maintained throughout the sentence and licence period During the sentence, keep the victim informed of key dates in the sentence Consult the victim and make the victim’s views known to the supervising officer, the prison, the local MAPPA, and, if relevant, the parole board Make recommendations about licence conditions and release plans based on victim’s views Advise probation staff and attend MAPP meetings to advise of victim’s concerns relevant to the management of offenders Keep victim’s informed of any significant developments during the sentence or after release Inform victim’s of any measures that can be taken to increase their safety Provide victim’s with information about Victim Support and other local support services

I Probation officer became more attuned to the offender’s offending behaviour I Licence conditions planned appropriately,which included that the offender should not contact the victims or their families and extended families and that the offender was excluded from certain areas that the victims may frequent I Risk assessments enhanced by new information I Local police are aware of the risk and conditions imposed I Victim’s addresses flagged on police systems I Provision for the police to install an alarm I Housing officer aware of victims’ desire to move out of the area I Victims are kept informed and, therefore, reassured that steps are in place to manage Steven’s behaviour 13

Statistical Information - 1 April 2006 – 31 March 2007
MAPPA Category 1 Offenders – Registered Sex Offenders (RSOs)
The total number of registered sex offenders living in Hampshire and Isle of Wight on 31 March 2007 Living Living Living Living Living Living in in in in in in 1190 315 82 198 193 219 183 67 60

The number of RSO’s per 100,000 head of population

1- Central OCU 2 – Isle of Wight OCU 3 – North and East OCU 4 – Portsmouth OCU 5 – Southampton OCU 6 – Western OCU

The number of sex offenders having a registration requirement who were either cautioned or convicted of breaches of the requirement, between 1 April 2006 and 31 March 2007

The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted (c) full SOPOs imposed by the courts between 1 April 2006 and 31 March 2007 The number of (a) Notification Orders (NOs) applied for (b) interim NOs granted (c) full NOs imposed by the courts between 1 April 2006 and 31 March 2007 The number of (a) Foreign Travel Orders (FTOs) applied for and (b) imposed by the courts between 1 April 2006 and 31 March 2007

(a) 43 (b) 10 (c) 20 (a) 6 (b) 1 (c) 3 (a) 0 (b) 0

MAPPA Category 2 offenders – Violent and Other Sex Offenders (V&OS)
The number of violent and other sexual offenders (as defined by section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in Hampshire and Isle of Wight between 1 April 2006 and 31 March 2007 641

MAPPA Category 3 offenders – Other Offenders (OthO)

The number of ‘other offenders’ (as defined by section 325 (2)(b) of the Criminal Justice Act (2003)) living in Hampshire and Isle of Wight between 1 April 2006 and 31 March 2007 The number of offenders in each of the MAPPA categories above who have been managed through Level 3 and through local inter-agency risk RSO management (Level 2) between 1 April 2006 and 31 March 2007 V&OS OthO Of the cases managed at Level 3 or 2 between 1 April 2006 and 31 March 2007 The number who were returned to custody for a breach of licence The number who were returned to custody for a breach of a restraining order or SOPO The number who were charged with a serious sexual or violent offence


Offenders Managed through MAPPA Level 3 and 2



18 24 8

305 400 96

7 1 0

82 7 0


By category of offender

A total of 1190 sex offenders in the community were registered with the police during 2006/07. The increase from 2005/06 to 2006/07 is 6%. This figure includes those offenders who continue to be on the register from previous years and who will continue to be registered for some considerable time to come (the minimum time for registration is two years, and the maximum is life). Approximately 40% of sex offenders in Hampshire are required to register for life. Therefore the register will continue to show a year on year increase. Table 1 Level of Management Level 1 Level 2 Level 3 Number of Registered Sex Offenders 867 305 18

MAPPA Category 1 Registered Sex Offenders

RSOs Convicted or Cautioned 60 offenders were convicted or cautioned for breaching their sex offender registration requirements. Examples of breaches are: I failing to register after first being told to; I failing to notify a change of home address; I failing to notify any travel abroad . Sexual Offences Prevention Orders Police were granted 20 Sexual Offences Prevention Orders (SOPOs) during the reporting period.

Of the 1190 registered sex offenders; 867 (73%) were managed at level 1, 305 (25.5%) at level 2 and 18 (1.5%) at level 3. This distribution of numbers affirms that the allocation of resources is being utilised appropriately across the offending population with only the ‘critical few’ offenders being managed at level 3.

Table 1 illustrates the number of offenders managed at each level.

SOPOs are used to prevent an offender from undertaking an activity that would be legal for any ordinary member of the public, for example, standing outside school gates, or visiting a public swimming pool. The court must be satisfied that an order is necessary to protect the public from serious harm before granting the order. The minimum period of time for a full order is five years, with a maximum of life. Typical examples of the restrictions imposed by Sexual Offences Prevention Orders are:

I being in the presence of young girls under
the age of 16 unless an adult is present; age of 16 into his home;

I inviting or allowing any child under the I approaching, enticing or seeking to
communicate with any child under the age of 16.

Breaching a SOPO can result in a maximum sentence of five years imprisonment.


MAPPA Category 2 Violent and Other Sex Offenders The number of MAPPA Category 2 offenders in the community during the reporting period has risen by almost 10 per cent. This figure includes all those offenders who were released on licence during the reporting period and has risen because of improved procedures for identifying this group and natural annual variations reflecting historical sentencing patterns. Of the 641 offenders within this category, 400 (62%) have been managed at Level 2 at some point during the reporting year. The majority of these cases will have been managed at Level 2 during their period of release from custody when risk factors tend to be more unstable -for example, without accommodation or employment. However, after careful consideration of their risk many will now have been reduced to Level 1 management. Only twenty four cases (3%) were managed at the highest Level, 3. Overall, it should be stressed that the rise in Category 2 cases does not equate to a dramatic increase in violent and sexual crime in Hampshire and Isle of Wight, it reflects improved recording, reporting and management. By level of management

MAPPA Offenders managed at Levels 2 and 3 The total number of all MAPPA offenders being managed at Level 2 increased from 545 to 801 an increase of 32%. The total number of offenders managed at level 3 also showed an increase from 36 to 50 (28%). Of those offenders being managed at Level 2, 82 offenders (10%) were returned to custody for breach of their licence and 8 (1%) of Level 3 cases were returned to custody. These are generally minor infringements, for example a failure to report to their supervising officer at an allocated time, but conditions of a prison licence are strictly adhered to, and any violation will result in a return to custody to prevent the opportunity of further offending. A total of eight cases were returned to custody for breach of a restraining order or SOPO. There were no cases supervised at level 2 or 3 that were charged with a serious further offence.

MAPPA Category 3 Other Offenders The total number of Category 3 offenders has decreased from 137 during 2005/06 to 104 during 2006/07. This demonstrates that the Responsible Authority is applying stringent assessment processes to identify these cases and divert resources appropriately. 16

While there is no room for complacency, these statistics do suggest that MAPPA is being operated effectively and rigorously in the area and that the arrangements play an important part in protecting the people living in Hampshire and Isle of Wight.

Strategic Management
The MAPPA Strategic Management Board (SMB) for Hampshire and the Isle of Wight meets four times a year and maintains an active oversight of MAPPA work within the area. It is made up of senior representatives of the ‘Responsible Authority’ and ‘Duty to Cooperate’ agencies providing a channel for the transfer of information. commitment to risk management meetings have been addressed and steps have been taken to close the gaps in representation using the contact through the SMB. This action has resulted in a significant increase in commitment.

During the past year the SMB has undertaken a series of case reviews to ensure the quality and effectiveness of MAPPA processes and multi agency working. Identified good practice is communicated back to the staff and is also used to inform learning and development of MAPPA as a whole. Identified areas for improvement - for example agencies’

The SMB recognises the need to integrate MAPPA with other public protection procedures, for example, safeguarding children. Links with Local Safeguarding Children Boards are long established. This role of the SMB is supported by the Local Criminal Justice Board (LCJB), which is made up of the Chief Officers of the local criminal justice agencies who work together to reduce re-offending, speed up justice and improve the confidence of the public in the criminal justice system. The LCJB provides the link to the local Crime and Disorder Reduction Partnerships that have

continued over

Hampshire LSCB

Surrey & Borders Partnership NHS Trust

Prison Service

Hampshire Probation Service

Hampshire Constabulary

Wessex Youth Offending Team


Lay Advisors

Hampshire Magistrates Courts

SMB Representatives

New Forest District Council

MAPPA Coordinator Basingstoke and Dean Borough Council Isle of Wight Children’s Services

Portsmouth Children’s Services Hampshire Partnership NHS Trust Southampton Children’s Services & learning

Hampshire Adult & Children’s Services


Strategic Management
continued from Page 17

diverse membership in local communities and, as the name implies, tackle crime and disorder. The SMB supports the joint funding that provides for the appointment of the MAPPA Coordinator and deputy MAPPA Coordinator. These posts have proved invaluable, ensuring the coordination of public protection work across the agencies and supporting the work of the SMB. The continued involvement of the two Lay Advisors on the SMB has also proved invaluable, bringing a high level of public scrutiny and providing a reality check to the agencies around the table. Both lay advisors have actively participated in the case reviews asking probing questions and challenging perceived best practice. They have also participated in training and media events helping to promote MAPPA from a lay perspective. During the last year the SMB has developed a Strategic Business Plan for 2007/08. This is attached to the report as an Annex and will be used to address the key issues that will strengthen and help standardise public protection practice across the area.


Lay Advisor
Lay “I have been a beenAdvisor for four years and have impressed by the commitment of all partner agencies brought together by the MAPPA in the interest of public protection. Sadly, this year has seen some serious further offences committed by offenders subject to MAPPA arrangements who have been managed at level 1. Whilst MAPPA can never totally eradicate the risks of further offending I have been reassured by the seriousness with which these further offences have been regarded by MAPPA agencies and the procedures activated to discover what, if anything, could have been done differently with MAPPA. As a member of the newly formed serious further offence review panel I will be in the privileged position of being able to ask questions of the MAPPA agencies to ensure that the procedures in place are the best they can be for ensuring public safety. Having had a real insight into the workings of MAPPA over the last four years I feel far more confident that people from many different agencies are working to ensure my safety and that of my young children Rachel Mckernan Lay Advisor

Core functions of the SMB


Monitoring and evaluating the operation of MAPPA Establishing the connections which support effective operational work with other Public Protection arrangements Preparing and publishing the annual report and promoting the work of the MAPPA Planning the longer term development of MAPPA Identifying and planning how to meet training and developmental needs



Glossary of Terms
Duty to Cooperate. A statutory duty placed upon some agencies to work with MAPPA Foreign Travel Order. A civil order that can be applied for by the police to prevent certain sex offenders from travelling abroad Local Criminal Justice Board. A top level strategic board comprising of all the Criminal Justice agencies Local Education Authority Multi Agency Public Protection Arrangements. The statutory arrangements for managing risk posed by violent and sexual offenders Multi Agency Public Protection Panel. This is the highest level of management within MAPPA, consisting of senior officers from key agencies Memorandum of Understanding Notification Order. A civil order that can be applied for by the police to place an offender, convicted of sexual offences abroad, onto the Sex Offenders Register National Offender Management Service. The evolving single service designed to include responsibility for both the HM Prison Service and the National Probation Service National Probation Service. Consisting of 42 probation areas, each run by its own board. Offender Assessment System. A national system for assessing the risk and needs of an offender Operational Command Unit Police National Computer. Holds records of past offences Prolific and Other Priority Offender. An offender who is responsible for a disproportionately large amount of crime Public Protection Unit. A national unit, which has oversight of MAPPA and very high risk offenders. Locally each police OCU has a PPU to manage dangerous (violent and sexual) offenders, PPOs, child protection and domestic abuse Responsible Authority for MAPPA. Consists of police, probation and prison service Risk assessment method used for sex offenders Registered Sex Offender Strategic Management Board for MAPPA. Comprises of the 3 ‘Responsible Authority’ agencies, plus representatives from Duty to Cooperate agencies Serious Further Offence. Service Level Agreement Sexual Offences Prevention Order. A civil order that can be applied for by the police to prohibit an offender from undertaking a certain activity Sex Offender Treatment Programme Victim Contact Officer. Employed by the probation service to keep victims of sexual and violent crime informed about key dates in a sentence and enable victims to comment on release arrangements Violent and Sex Offender Register. A national database, shared by police, probation and prisons, for recording and sharing information about sexual and violent offenders Youth Offending Team























This report has been produced by the Responsible Authority in conjunction with board members of the MAPPA SMB. For further information contact:

MAPPA COORDINATION UNIT Alresford Police Station Station Road Alresford SO24 9JG Tel. 02380 604762 Email. HAMPSHIRE PROBATION AREA Director of Offender Management Friary House Middle Brook Street, Winchester SO23 8DQ Tel. 01962 842202 Internet. HAMPSHIRE CONSTABULARY Chief Superintendent Community Safety Unit Police Headquarters West Hill, Winchester SO22 5DB Tel. 0845 045 45 45 Internet: HM PRISON SERVICE Head of Social Inclusion Strategy Unit SE1 Area Office The Old Wardens House 21 Bierton Road, Aylesbury Bucks HP20 1EN Tel. 01296 390674 HAMPSHIRE VICTIM SUPPORT & WITNESS SERVICE Area Office 77 Leigh Road, Eastleigh SO50 9DQ Tel. 02380 611177

Email: Internet: Victim Support Helpline: 0845 30 30 900

This report has been published online on: and on the Hampshire Area Probation website: http:/ and on the Hampshire Constabulary website:

Some printed copies are available and arrangements can be made for translations etc when requested.
Design & Artwork aha Email


Hampshire and Isle of Wight Area Multi Agency Public Protection Arrangements Strategic Management Board Business Plan 2007/08

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Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
The purpose of the Strategic Management Board (SMB) – Home Office MAPPA Guidance v1.3
In the first phase of MAPPA development the emphasis was rightly placed upon establishing certain minimum requirements that would provide a basis for the effective multi-agency assessment and management of risk1. The fact that the success of these arrangements was founded upon the earlier working practices between the police and probation developed locally inevitably meant that those practices varied between Areas. The second phase of MAPPA development builds upon what has already been achieved by formalising the practical arrangements across all Areas in order to introduce greater consistency in case management. However, this needs to be complemented by greater rigour and scrutiny in the review and monitoring of MAPPA. This is the role and purpose of the MAPPA Strategic Management Board (SMB). The SMB will enable the Responsible Authority to discharge those duties imposed by the sub-sections (4) and (5), which concern the Annual Report; and, more particularly, sub-section (3) of Section 67 of the Criminal Justice and Court Services Act (2000), which requires that the Responsible Authority in each Area must: "keep the arrangements [i.e. the MAPPA] established by it under review, with a view to monitoring their effectiveness and making any changes to them that appear necessary or expedient." This is a broad brief and below are outlined five principal activities of the SMB. Overarching these activities is the role the SMB has to shape the MAPPA framework within the Area. This involves determining the role and representation of different agencies within the framework. It also includes brokering the protocols and memoranda of understanding which formalise those roles. While some margin of discretion in defining the role will be left with Areas, the following core features will be common to all SMBs: (i) monitoring (on at least a quarterly basis) and evaluating the operation of the MAPPA, particularly that of the MAPPPs; establishing connections which support effective operational work with other public protection arrangments, such as Local Safeguarding Children Boards, local Crime and Disorder Partnerships and local Criminal Justice Boards; preparing and publishing the Annual Report (as required by Section 67 (4) and (5)) and promoting the work of the MAPPA in the Area;



(iv) planning the longer-term development of the MAPPA in the light of regular (at least annual) reviews of the arrangements, and with respect to legislative and wider criminal justice changes; and, (v) identifying and planning how to meet common training and developmental needs of those working in the MAPPA.

These five core features form the basis of the Hampshire and Isle of Wight Area Business Plan

Initial Guidance (March 2001). Home Office

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Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
1. MAPPA Development Strategy

a) Ensure the MAPPA Co-ordination Unit is fit for purpose and identify future needs

■ Evaluate/review the MAPPA Co-ordination Unit and ensure it remains fit for purpose ■ Secure permanent funding to support the MAPPA Co-ordination Unit roles


DCI – Offender Management Probation MAPPA lead

■ Coordination unit to regularly report and update line management of work completed and issues arising on a quarterly basis

b) Ensure Duty to Co-operate agency representation at the SMB

■ Evaluate/review current DTC agency representation. ■ Identify gaps in representation and extend invitations to agency leads



■ Good representation at SMB meetings recorded ■ Monitor attendance and report to SMB every 6 months

c) Ensure current and up to date protocols/memorandums of understanding are in existence between the MAPPA Responsible Authority and DTC agencies

■ Redraft the Hampshire and Isle of Wight MAPPA Dangerous Offenders Protocol taking into account recommendations from the Thematic Inspection and revised MAPPA Guidance. ■ Launch DTC Memorandums of Understanding with each DTC agency

Awaiting publication of MAPPA Guidance

MAPPA Co-ordination Unit in liaison with other agencies

■ Publication of revised protocol leading to a consistent understanding of roles and responsibilities within the local MAPPA area ■ DTC memorandums completed and signed off

d) Review the advantages/disadvantages of core members on standard MAPPA panels to assess the potential benefits of core panels in Hampshire and Isle of Wight

■ Compare current practice against that of areas where panel arrangements are in place.

MAPPA Coordination DCI Offender Management Area Manager MAPPA lead

■ Report findings to SMB

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Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
2. Monitoring and Evaluation Strategy

a) Provide quarterly reporting of MAPPA statistics to the SMB

■ Provide information on attendance at meetings by Duty to Cooperate agencies ■ MAPPA population profile by area ■ Spot audit meetings as per agreed performance indicator using audit template


MAPPA Coordination Unit

■ Report submitted to SMB ■ Measure meetings attended against performance indicator

b) Perform biannual audits of MAPPA Cases

■ Select Level 2 and 3 cases at random ■ Use representatives of the SMB as panel members ■ Feedback findings to the SMB for action

April and October 2007

SMB MAPPA coordination Unit MAPPA case managers

■ Findings reported to SMB and action agreed and implementation monitored ■ Feedback provided to case managers

c) Review the piloting of the SFO internal review process

■ The Responsible Authorities to follow internal SFO procedure ■ The RA and SMB representatives to convene when a SFO case has been identified


SMB Probation MAPPA lead DCI – Offender Management

■ Outcomes reported to SMB following a comprehensive and robust analysis of MAPPA offenders who go on to commit a serious further offence ■ Learning points taken forward to improve and develop the MAPPA process

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Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
3. Communication and Strategic Partnerships Strategy

a) To prepare and publish an Annual Report

■ Prepare and publish an Annual Report following guidance issued by the Public Protection Unit

Draft Reports to be submitted June 2007 Annual Report published October 2007

MAPPA Co-ordination Unit MAPPA Case Managers SMB Media Services/Communication Managers

■ Successful publication of report

b) To provide a basic understanding of MAPPA to offenders

■ Prepare and publish a leaflet providing basic information concerning categories and levels of management through MAPPA and how it is likely to affect the offender

MAPPA Co-ordination Unit Media Services

■ Leaflet published and distributed to offenders

c) To provide a basic understanding of MAPPA to other Criminal Justice Agencies, voluntary sector and public groups

■ Prepare and deliver presentations as required to diverse groups ■ Prepare promotional material to communicate the work of MAPPA ■ Circulate the Annual Report ■ Coordinate and deliver MAPPA Conference ■ Develop a MAPPA website which would be available to the public


MAPPA Co-ordination Unit

■ Improved and wider understanding of MAPPA in other linked areas ■ Number of presentations attended reported to SMB

d) Develop/review communication strategies for individual MAPPA cases or issues

■ Responsible Authority communication managers to liaise and produce clear and effective media strategies for MAPPA cases as required ■ Identify opportunities to work constructively with the media to improve public understanding


Responsible Authority Communication Managers

■ A clear media strategy produced

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Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
3. Communication and Strategic Partnerships Strategy

e) Effective links with LCJBs, LSCBs, CDRPS and other public protection arrangements

■ Attend relevant boards and meetings to promote the work of MAPPA ■ Provide presentations to key groups ■ Request funding to support the work of MAPPA

MAPPA SMB members Probation MAPPA lead DCI – Offender management MAPPA Coordination unit

■ Improved liaison and support by other public protection groups ■ Evidence of links provided by SMB members ■ Successful application of funding for MAPPA Conference

4. Training Strategy

Identify and deliver any local training needs to the Responsible Authorities, Duty to Cooperate agencies, voluntary agencies and lay advisors

To provide ongoing training as and when required by utilising the appropriate training resources


SMB MAPPA Coordination Unit

■ Record of delegates ■ Record of feedback

Glossary of Terms
CDRP DCI DTC HMIC HMIP LCJB LSCB Crime and Reduction Partnerships Detective Chief Inspector - Police Duty to Co-operate Her Majesty's Inspectorate of Constabularies Her Majesty's Inspectorate of Probation Local Criminal Justice Board Local Safeguarding Children Board MAPPA MAPPP RANSG SFO SMB ViSOR Multi Agency Public Protection Arrangements Multi Agency Public Protection Panel Responsible Authority National Steering Group Serious Further Offence Strategic Management Board Violent Offender and Sexual Offender Register

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