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 con-
cerned. 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.
Introduction
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 Multi-
Agency Public Protection Arrangements.
Liz Ashton
Director of Offender Management
Hampshire Probation Area
Chair of the MAPPA Strategic
Management Board
 Contents

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

n Case Study 1
Managing Mental Health Problems
n Case Study 2
Return to Prison of a Sex Offender
n Case Study 3
Return to Prison of a Female Arsonist

13 Working with Victims

n Case Study 4
Working with Victims

14 Statistics
2006/07
What do they tell us?

17 Strategic Management
Perspectives on Partnership

Glossary

Contacts

ACHIEVEMENTS
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.
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
6
Achievements
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 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:

In November 2006 Hampshire
“Probation Area introduced updated and
improved practice guidance to our staff
working within the MAPPA framework.
This has introduced improved arrange-
ments 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 offend-
ers that are managed within MAPPA.
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
” Circles of Support and Accountability work with
SPREADING THE WORD
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
Achievements
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.
TECHNOLOGY
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 collabo-
ration between the services and providing a
further enhanced level of public protection for
the local community.
GREATER PUBLIC INVOLVEMENT
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.
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
www.ccjf.org/whatcanido
7
 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. CATEGORY 2:
On 1st April 2001 it became a statutory Violent or Other Sexual Offenders

These are mainly offenders

duty for police and probation, and later

who have been sentenced to

the prison service, to establish the

12 months or more imprisonment

local MAPPA.

for an offence listed in Schedule 15

There are three categories of offenders
Criminal JusticeAct 2003. They are
who fall within the MAPPA and they are
not Registered Sex Offenders.
managed at three different levels:

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.

8
 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.

9
 Understanding MAPPA
AGENCIES WITH A
‘DUTY TO COOPERATE’
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
Further detailed information about
MAPPA can be found in the MAPPA
Guidance document contained on the
National Probation Service website:
www.probation.justice.gov.uk/
output/Page1.asp
10
MAPPA IN HAMPSHIRE
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.
 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.
Key Factors in the successful
management of this case:
n Prompt identification of an increase in risk
n Pro-active approach by the Police to ensure
the engagement of mental health services
n Good liaison and cooperation across the
relevant agencies
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.
(continued on Page 12)
11
 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-compli-
ance 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.
Key Factors in the successful
management of this case:
n Good exchange of information
across agencies
n Use of specialists to determine
the accuracy of information
n Strong liaison with victim and
consideration of needs
n 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
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:
n Strong interagency co-operation
and commitment
n Good communication between the
two counties
n Supporting the offender in engaging
with the appropriate support services
n Demonstrating the resources that
offenders require
 Working with Victims
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.
Should you wish to make contact with the
Victim Contact Unit call 0845 6040150.
Information can be obtained about Victim
Support from www.victimsupport.org
or by calling 0845 30 30 900
Core functions of Victim Contact Unit
n Contact the victim (or victim’s family) to ask
if they want contact maintained throughout
the sentence and licence period
n During the sentence, keep the victim
informed of key dates in the sentence
n 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
n Make recommendations about licence
conditions and release plans based on
victim’s views
n Advise probation staff and attend MAPP
meetings to advise of victim’s concerns
relevant to the management of offenders
n Keep victim’s informed of any significant
developments during the sentence or
after release
n Inform victim’s of any measures that can
be taken to increase their safety
n Provide victim’s with information about Victim
Support and other local support services
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 consid-
ered 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 behav-
iour that had not been previously identified.
Outcome
The information was shared at the MAPPP
which has ensured that:
n Probation officer became more attuned to the
offender’s offending behaviour
n 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
n Risk assessments enhanced by new information
n Local police are aware of the risk and
conditions imposed
n Victim’s addresses flagged on police systems
n Provision for the police to install an alarm
n Housing officer aware of victims’ desire to
move out of the area
n Victims are kept informed and, therefore,
reassured that steps are in place to manage
Steven’s behaviour
13
 Statistics
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 1190
and Isle of Wight on 31 March 2007
Living in 1- Central OCU 315
Living in 2 – Isle of Wight OCU 82
Living in 3 – North and East OCU 198
Living in 4 – Portsmouth OCU 193
Living in 5 – Southampton OCU 219
Living in 6 – Western OCU 183
The number of RSO’s per 100,000 head of population 67
The number of sex offenders having a registration requirement who
were either cautioned or convicted of breaches of the requirement, 60
between 1 April 2006 and 31 March 2007
The number of
(a) Sexual Offences Prevention Orders (SOPOs) applied for (a) 43
(b) interim SOPOs granted (b) 10
(c) full SOPOs imposed by the courts between 1 April 2006 and 31 March 2007 (c) 20

The number of
(a) Notification Orders (NOs) applied for (a) 6
(b) interim NOs granted (b) 1
(c) full NOs imposed by the courts between 1 April 2006 and 31 March 2007 (c) 3
The number of
(a) Foreign Travel Orders (FTOs) applied for and (a) 0
(b) imposed by the courts between 1 April 2006 and 31 March 2007 (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 641
Isle of Wight between 1 April 2006 and 31 March 2007
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 104
1 April 2006 and 31 March 2007
Offenders Managed through MAPPA Level 3 and 2
The number of offenders in each of the MAPPA categories above who have
been managed through Level 3 and through local inter-agency risk
LEVEL 3 LEVEL 2

management (Level 2) between 1 April 2006 and 31 March 2007 RSO 18 305
V&OS 24 400
OthO 8 96
Of the cases managed at Level 3 or 2 between 1 April 2006 and 31 March 2007 LEVEL 3 LEVEL 2
The number who were returned to custody for a breach of licence 7 82
The number who were returned to custody for a breach of a restraining 1 7
order or SOPO
The number who were charged with a serious sexual or violent offence 0 0

14

WHAT DO THE STATISTICS TELL US?
By category of offender
MAPPA Category 1
Registered Sex Offenders
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 Number of
Management Registered
Sex Offenders
Level 1 867
Level 2 305
Level 3 18
Table 1 illustrates the number of
offenders managed at each level.
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.
Statistics
RSOs Convicted or Cautioned
60 offenders were convicted or cautioned
for breaching their sex offender registration
requirements.
Examples of breaches are:
n failing to register after first being told to;
n failing to notify a change of home address;
n failing to notify any travel abroad
.
Sexual Offences Prevention Orders
Police were granted 20 Sexual Offences
Prevention Orders (SOPOs) during the
reporting period.
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:
n being in the presence of young girls under
the age of 16 unless an adult is present;
n inviting or allowing any child under the
age of 16 into his home;
n 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.
15

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 man-
aged 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 exam-
ple, 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.
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
Statistics
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.
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

commitment to risk management meetings -

THE STRATEGIC MANAGEMENT
OF MAPPA
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.
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’
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.
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 Hampshire
Prison Wessex
Probation Constabulary
Surrey & Service Youth
Service G4S
Borders Offending
Partnership Team
Hampshire NHS
Trust Lay Advisors
LSCB

Hampshire
Magistrates
New Forest
Courts
District
SMB Representatives Council

MAPPA
Coordinator Portsmouth
Children’s
Services
Basingstoke Isle of Wight
and Dean Children’s
Borough Hampshire Southampton
Hampshire Services
Council Partnership Children’s
Adult &
NHS Trust Services
Children’s
Services & learning

17
 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.
Core functions of the SMB
n Monitoring and evaluating the
operation of MAPPA
n Establishing the connections which
support effective operational work
with other Public Protection
arrangements
n Preparing and publishing the annual
report and promoting the work of
the MAPPA
n Planning the longer term
development of MAPPA
n Identifying and planning how to meet
training and developmental needs
18
PERSPECTIVES ON PARTNERSHIP
Lay Advisor
I have been a Lay Advisor for four
“years and have been 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
 Glossary

Glossary of Terms

Duty to Cooperate. A statutory duty placed Prolific and Other Priority Offender.
DTC upon some agencies to work with MAPPA PPO An offender who is responsible for a
disproportionately large amount of crime

Foreign Travel Order. A civil order that can

be applied for by the police to prevent Public Protection Unit. A national unit,
which has oversight of MAPPA and very high
FTO
certain sex offenders from travelling abroad
risk offenders. Locally each police OCU has a
PPU
PPU to manage dangerous (violent and
Local Criminal Justice Board. A top level sexual) offenders, PPOs, child protection
strategic board comprising of all the Criminal and domestic abuse
Justice agencies
LCJB

Responsible Authority for MAPPA.

RA Consists of police, probation and prison service
LEA Local Education Authority

Multi Agency Public Protection Arrangements. RM2000 Risk assessment method used for sex offenders
MAPPA The statutory arrangements for managing risk
posed by violent and sexual offenders Registered Sex Offender
RSO

Multi Agency Public Protection Panel. Strategic Management Board for MAPPA.
MAPPP This is the highest level of management SMB Comprises of the 3 ‘Responsible Authority’
within MAPPA, consisting of senior officers agencies, plus representatives from Duty to
from key agencies Cooperate agencies

MOU Memorandum of Understanding SFO Serious Further Offence.

Notification Order. A civil order that can be Service Level Agreement

applied for by the police to place an offender,
SLA
NO
convicted of sexual offences abroad, onto the
Sex Offenders Register Sexual Offences Prevention Order. A civil order
that can be applied for by the police to prohibit
SOPO
National Offender Management Service. an offender from undertaking a certain activity
The evolving single service designed to
include responsibility for both the HM Prison
NOMS
Service and the National Probation Service SOTP Sex Offender Treatment Programme

Victim Contact Officer. Employed by the

National Probation Service. Consisting of 42 probation service to keep victims of sexual
probation areas, each run by its own board.
NPS
and violent crime informed about key dates
VCO
in a sentence and enable victims to comment
on release arrangements
Offender Assessment System. A national system
for assessing the risk and needs of an offender
OASys
Violent and Sex Offender Register. A national
database, shared by police, probation and pris-
Operational Command Unit ons, for recording and sharing information about
ViSOR
OCU
sexual and violent offenders
Police National Computer.
Holds records of past offences
PNC
YOT Youth Offending Team

19
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.
mappa@hampshire.pnn.police.uk

HAMPSHIRE PROBATION AREA

Director of Offender Management
Friary House
Middle Brook Street,
Winchester SO23 8DQ
Tel. 01962 842202
Internet.
http://probation.hants.gov.uk

HAMPSHIRE CONSTABULARY
Chief Superintendent
Community Safety Unit
Police Headquarters
West Hill,
Winchester SO22 5DB
Tel. 0845 045 45 45
Internet: www.hampshire.police.uk

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: victimsupport@victimsupport-hiow.org.uk
Internet: www.victimsupport.org
Victim Support Helpline: 0845 30 30 900

This report has been published online on: www.probation.justice.gov.uk/output/Page1.asp

and on the Hampshire Area Probation website: http:/probation.hants.gov.uk
and on the Hampshire Constabulary website: www.hampshire.police.uk
Some printed copies are available and arrangements can be made for translations etc when requested.

Design & Artwork aha Email aha.uk@btinternet.com

 Hampshire

Hampshire and Isle of Wight Area

Multi Agency Public Protection Arrangements
Strategic Management Board

Business Plan 2007/08

1 of 6
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 assess-
ment 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 arrange-
ments across all Areas in order to introduce greater consisten-
cy in case management. However, this needs to be comple-
mented by greater rigour and scrutiny in the review and moni-
toring 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 differ-
ent 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 com-
mon to all SMBs:
(i) monitoring (on at least a quarterly basis)
and evaluating the operation of the MAPPA,
particularly that of the MAPPPs;
(ii) 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;
(iii) 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
1
Initial Guidance (March 2001). Home Office
2 of 6
 Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
1. MAPPA Development Strategy
STRATEGIC AIM
a) Ensure the MAPPA
Co-ordination Unit is fit
for purpose and identify
future needs
b) Ensure Duty to
Co-operate agency
representation at
the SMB
c) Ensure current
and up to date
protocols/memorandums
of understanding are
in existence between
the MAPPA Responsible
Authority and DTC agencies
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
DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR
■ Evaluate/review the MAPPA Co-ordination Unit Ongoing DCI – Offender Management ■ Coordination unit to
and ensure it remains fit for purpose Probation MAPPA lead regularly report and update
line management of work
■ Secure permanent funding to support completed and issues
the MAPPA Co-ordination Unit roles
arising on a quarterly basis
■ Evaluate/review current DTC Ongoing MAPPA SMB Chair ■ Good representation at
agency representation. SMB meetings recorded
■ Identify gaps in representation and ■ Monitor attendance and
extend invitations to agency leads report to SMB every 6 months
■ Redraft the Hampshire and Isle of Wight
MAPPA Dangerous Offenders Protocol Awaiting MAPPA Co-ordination ■ Publication of revised
taking into account recommendations publication Unit in liaison with protocol leading to a
from the Thematic Inspection and revised of MAPPA other agencies consistent understanding of
MAPPA Guidance. Guidance roles and responsibilities
within the local MAPPA area
■ Launch DTC Memorandums of
Understanding with each DTC agency ■ DTC memorandums
completed and signed off
■ Compare current practice against that MAPPA Coordination ■ Report findings to SMB
of areas where panel arrangements are
in place. DCI Offender Management
Area Manager MAPPA lead
3 of 6
 Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
2. Monitoring and Evaluation Strategy
STRATEGIC AIM
a) Provide quarterly
reporting of MAPPA
statistics to the SMB
b) Perform biannual audits
of MAPPA Cases
c) Review the piloting of the
SFO internal review process
DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR
■ Provide information on attendance at meetings Ongoing MAPPA Coordination Unit ■ Report submitted to SMB
by Duty to Cooperate agencies
■ Measure meetings attended
■ MAPPA population profile by area against performance indicator
■ Spot audit meetings as per agreed
performance indicator using audit template
■ Select Level 2 and 3 cases at random April and SMB ■ Findings reported to SMB
October 2007 MAPPA coordination Unit and action agreed and
■ Use representatives of the SMB as
MAPPA case managers implementation monitored
panel members
■ Feedback provided
■ Feedback findings to the SMB for action
to case managers
■ The Responsible Authorities to follow internal Ongoing SMB ■ Outcomes reported to SMB
SFO procedure Probation MAPPA lead following a comprehensive and
DCI – Offender Management robust analysis of MAPPA
■ The RA and SMB representatives to convene
offenders who go on to commit
when a SFO case has been identified
a serious further offence
■ Learning points taken
forward to improve and
develop the MAPPA process
4 of 6
 Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
3. Communication and Strategic Partnerships Strategy

STRATEGIC AIM DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR

a) To prepare and publish ■ Prepare and publish an Annual Report Draft Reports to MAPPA Co-ordination Unit ■ Successful publication
an Annual Report following guidance issued by the Public be submitted MAPPA Case Managers of report
Protection Unit June 2007 SMB
Media
Annual Report Services/Communication
published Managers
October 2007

b) To provide a basic ■ Prepare and publish a leaflet providing basic MAPPA Co-ordination Unit ■ Leaflet published and
understanding of MAPPA information concerning categories and levels of Media Services distributed to offenders
to offenders management through MAPPA and how it is likely
to affect the offender

c) To provide a basic ■ Prepare and deliver presentations as required Ongoing MAPPA Co-ordination Unit ■ Improved and wider
understanding of MAPPA to diverse groups understanding of MAPPA
to other Criminal Justice in other linked areas
Agencies, voluntary sector ■ Prepare promotional material to communicate
the work of MAPPA ■ Number of presentations
and public groups
attended reported to SMB
■ Circulate the Annual Report
■ Coordinate and deliver MAPPA Conference
■ Develop a MAPPA website which would be
available to the public

d) Develop/review ■ Responsible Authority communication managers Ongoing Responsible Authority ■ A clear media
communication strategies to liaise and produce clear and effective media Communication Managers strategy produced
for individual MAPPA cases strategies for MAPPA cases as required
or issues ■ Identify opportunities to work constructively with
the media to improve public understanding

5 of 6
 Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
3. Communication and Strategic Partnerships Strategy

STRATEGIC AIM DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR

e) Effective links with
LCJBs, LSCBs, CDRPS
and other public protection
arrangements
■ Attend relevant boards and meetings MAPPA SMB members ■ Improved liaison and support
to promote the work of MAPPA Probation MAPPA lead by other public protection groups
DCI – Offender management
■ Provide presentations to key groups
MAPPA Coordination unit ■ Evidence of links provided by
■ Request funding to support the work of MAPPA SMB members

■ Successful application of
funding for MAPPA Conference

4. Training Strategy

STRATEGIC AIM DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR

Identify and deliver any To provide ongoing training as and when required Ongoing SMB ■ Record of delegates
local training needs to the by utilising the appropriate training resources MAPPA Coordination Unit
■ Record of feedback
Responsible Authorities,
Duty to Cooperate agencies,
voluntary agencies and
lay advisors

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

6 of 6