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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 register a child-protection interest in a


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

Maria Eagle MP
Parliamentary Under Secretary of State
Foreword by Paul Kernaghan

I am pleased to introduce Looking to the future, I have a duty to


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

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

ACHIEVEMENTS DCI Mark Ashthorpe, Public Protection and


Offender Management writes:
It has once again been an extremely
busy year which has included the
successful implementation of our
This has been another challenging year
2006/2007 business plan..

for MAPPA in Hampshire and another year in
One area that we felt was of particular which we have tried to improve our capacity
importance was that of training and to protect the public.
raising awareness of the MAPPA
process. During 2006/2007 we hosted The MAPPA Strategic Management Board
five, two day MAPPA Awareness have this year initiated a ‘Serious Case
Events. These events were specifically Review’ process so that all agencies engaged
aimed at multi agency staff who were in MAPPA work can learn lessons on the few
new to the MAPPA arena. We were occasions when MAPPA offenders re-offend.
pleased that we not only had good While it is impossible to completely stop
representation from Police and Probation offenders from re-offending it is important that
officers but also from our partnership we all learn lessons from these cases; the
colleagues in Mental Health, Adult and Serious Case Review process aims to achieve
Children’s Services, Youth Offending just that. MAPPA is a priority for the
Team, Local Safeguarding Children’s government and the Police Service and it is
Board and Group 4 Security. important that we constantly seek to improve
and develop to better protect the people of
The events were extremely well received Hampshire and the Isle of Wight. It is vital
by the partnership agencies and we will that all agencies work together and we are
continue to host these events annually exploring better ways of achieving this
to ensure that all staff new to the MAPPA including looking at the co-location of police
arena are informed of the MAPPA and probation officers
process and of their responsibilities. Mark Ashthorpe

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 2006/2007 has not seen any changes to key
including a lay advisor are selected to staff. Chief Superintendent Matthew Greening
review each case and disseminate their remains as the police representative; Liz Ashton,
findings to the board. Assistant Chief Officer and Director of Offender
Management remains as the probation MAPPA
Following the re-organisation of local lead and chair of the SMB and Bruce Davison,
police and probation structures last remains as the prison area representative.
year, 2006/2007 has been a year of This continuity has allowed us to develop and
consolidation for both services. This improve our practices. David Renouf, Probation
has further enhanced the excellent Area Manager with responsibility for MAPPA,
partnership working that is already in has now been in post for over twelve months,
place. We have been fortunate that David writes:

6
Achievements

help them understand their own responsibilities


within MAPPA. It is only through such
In November 2006 Hampshire understanding that we will achieve good quality
“Probation Area introduced updated and supervision of offenders. For example, other
improved practice guidance to our staff agencies bring expertise in relation to health
working within the MAPPA framework. problems, drugs and alcohol misuse.
This has introduced improved arrange- Their advice is invaluable to the RA agencies
ments for interagency meetings and who are then able to prioritise the balance of
reviewing offenders who are managed information with confidence.
by MAPPA. New guidelines have
increased requirements on information
sharing, risk assessment and risk
management planning, further TECHNOLOGY
strengthening actions that can be taken
to protect victims or potential victims of ViSOR is the largest national
the offenders referred to MAPPA. computer system to be introduced
into police services since the
Hampshire Probation Area has continued establishment of the Police National
to increase its training programme for Computer (PNC).
staff working within MAPPA and It provides a computerised national intelligence
additionally has provided joint training database that can record details of all MAPPA
for Chairs of interagency risk offenders and other people identified as
management meetings and to the staff ‘potentially dangerous’. It has been used by
working in support services who record Hampshire Police for the last 2 years, by the
those meetings. Hampshire Probation end of 2007 the probation and prison services
area therefore is continuing to invest in will also be linked, allowing far greater collabo-
training staff to manage the complex risk ration between the services and providing a
factors presented by many of the offend- further enhanced level of public protection for
ers that are managed within MAPPA. the local community.

As I complete my first year as Probation


Area Manager with lead responsibility for
MAPPA work I remain impressed by the
GREATER PUBLIC INVOLVEMENT
level of skill and dedication that both
Probation, Police and other agency staff
In addition to the two Lay Advisors, the general
bring to the work of protecting individuals
public can be involved in the management of
and communities from potential further
sex offenders by volunteering to be part of the
harm from high risk offenders .
Circles of Support and Accountability scheme.
David Renouf
” 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.
SPREADING THE WORD
Throughout the year key staff within the prison,
probation and police services (known jointly as More information can be obtained about
the Responsible Authority - RA) have given Circles of Support and Accountability from
presentations to staff in other organisations to 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 CATEGORY 3:
criteria before being required Other Offenders
to register.
These are people who have a
Offenders may be required to
conviction somewhere in the past
register for a minimum of two
that indicates they are capable of
years to a maximum of life,
Serious Harm* (for example,
depending on the sentence
grievous bodily harm) and who are
they receive.
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’ MAPPA IN HAMPSHIRE
The Responsible Authority for each The multi agency approach to
area is required to involve other assessing and managing offenders
key agencies in the management who may pose a risk of harm to
of offenders. Although initially others is well established in
the involvement was voluntary, a Hampshire and the Isle of Wight.
statutory duty was placed upon the This dates back to the first
agencies by the Criminal Justice Dangerous Offenders Protocol in
Act 2003. This is important because 1998, when inter-agency meetings
a key part of MAPPA involves the were held on a voluntary basis, and
exchange of information and the subsequently developed into the full
pooling of knowledge and expertise. MAPPA framework.
A key process of the Hampshire
Working together are: MAPPA is the screening of virtually
Youth Offending Teams all cases through an initial information
Jobcentre Plus exchange meeting. This process
Local Education Authorities enables identification of cases
Local Housing Authorities which can be managed safely at
Registered Social Landlords Level 1 – the vast majority – and
simultaneously identifies those
Adult and Children Services
requiring a higher level of multi
Health bodies – e.g. agency intervention at Level 2 or 3.
Strategic Health Authorities,
Primary Care and Primary Care By adopting this method and applying
Trusts, Mental Health Trusts strict criteria for Level 3 cases, we
have ensured that risks are managed
Electronic Monitoring providers
appropriately and, importantly,
that there is no log jam at any level
Further detailed information about
in the process.
MAPPA can be found in the MAPPA
Guidance document contained on the Once an agency has identified a
National Probation Service website: case for inclusion in the process,
the MAPPA provides coordination,
assessment and management
www.probation.justice.gov.uk/
of offenders at the three levels.
output/Page1.asp

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.

10
Understanding MAPPA

Case study 1 Case study 2


Managing mental health problems Return to prison of a sex offender
Background Background
Michael suffered frontal lobe damage to his Tony is a 21 year old man who was convicted
brain from an accident. He finds it difficult to for aiding and abetting attempted suicide,
make decisions and does not understand social unlawful sexual intercourse and intimidation
boundaries and displays highly sexualised of a witness for which he received a 3-year
behaviour. He was found guilty of a serious custodial sentence.
sexual assault and was placed under a When he was 18 he formed a relationship with
guardianship order. He received 24/7 care a 14 year old girl. When the girl had been told
and could not leave his home without the by her parents that she could no longer see
supervision of his carers. him, Tony manipulated her into agreeing to a
suicide pact, which was unsuccessful.
He has previous convictions for indecent
Risk Assessment
Michael has been assessed as posing a assault on two young females and a number
high risk of harm to women and a high risk of minor non-sexual offences.
of violence towards men.
Risk Management Risk Assessment
Michael’s behaviour became increasingly Tony has been assessed as a very high risk
difficult to manage within a community setting of harm to children and adolescent females.
and he was not cooperating with his care plan.
The MAPPA identified that it was no longer Risk Management
viable for Michael to remain within a Whilst in prison he completed a Sex Offender
community setting and that his needs were Group Work Programme. Tony has an eating
best met by a specialist mental health unit. He disorder which is driven by his desire to be
was detained under Section 3 of the Mental slim and he is preoccupied with wanting a
Health Act and moved to a secure setting girlfriend. He is immature and has a desire
where he was placed under a treatment order. to appear ‘boyish’.
In prison Tony claimed to have received mail
Outcome from his former victim, this claim was complete
Michael is now resident at a secure unit where fantasy. A restraining order was put in place
he is receiving specialist treatment that would to prevent him from contacting her. On his
not be available in a community setting. 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
Key Factors in the successful

and his computer seized. Tony also produced


management of this case:

n Prompt identification of an increase in risk hand written letters and e-mails which he
purported had been sent to him by the victim.
n Pro-active approach by the Police to ensure A handwriting expert confirmed that Tony had
the engagement of mental health services
written the letters himself and also that Tony
n Good liaison and cooperation across the had sent e-mails to himself from a relative’s
relevant agencies computer. He was returned to prison.
(continued on Page 12)

11
Understanding MAPPA

Case study 2 continued


Return to prison of a sex offender Risk Management
On her release from prison she was released
He was later released to ‘approved premises’ to a women’s only hostel. Given the small
where his behaviour remained challenging. proportion of female offenders, women only
His manipulative behaviour caused unrest accommodation is not available in all
amongst the other residents and he was counties so it was not possible to relocate
central to a number of bullying incidents. her to Hampshire.
Tony remained evasive regarding a new Hampshire remained involved in the case.
relationship he had formed with a female The MAPPA in Hampshire arranged for mental
who had children. health, fire service, substance misuse workers
and community mental health representatives
Outcome to visit on a regular basis with Hampshire
The MAPPA considered that his non-compli- Probation and Police representation. This
ance of hostel rules and lack of co-operation required a great deal of cooperation and
with his supervisor indicated that he could coordination as representatives were required
re-offend at any time and a recall was initiated. 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
Key Factors in the successful be released to independent accommodation.
management of this case:
n Good exchange of information
Outcome
Shortly before she was due to return to the
across agencies
Hampshire area Jane formed a relationship
n Use of specialists to determine with another female at the hostel. They both
the accuracy of information breached their licence conditions by not
n Strong liaison with victim and returning to the hostel within the time specified.
consideration of needs Both were arrested shortly afterwards and
recalled to prison.
n Prompt recall initiated When she is due for release the same
resources will be provided to assist Jane
with her integration within the community.

Case study 3
Key Factors in the successful
Female Arsonist management of this case:
n Strong interagency co-operation
and commitment
Background
Jane is a 30 year old woman who received a
two year prison sentence for an arson attack n Good communication between the
at her family home. On release from prison she two counties
committed a further arson attack at the same n Supporting the offender in engaging
premises and was recalled. with the appropriate support services
n Demonstrating the resources that
offenders require
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
Working with Victims
WORKING WITH VICTIMS
In addition to the work to manage offenders,
the Government has placed a much greater Case study 4
emphasis upon meeting the needs of victims.
Section 69 of the Criminal Justice and Court
Working with victims
Services Act 2000, amended by the Criminal
Justice Act 2003, places a statutory duty upon
Background
Steven is a 49 year old man who received a 10
the National Probation Service to contact victims year prison sentence for the rape of his daughter
of crime of a sexual or violent nature, to ask if and her cousins. He has been denied parole
they wish to be kept informed and consulted on a number of occasions as he was not consid-
about the release arrangements for the ered safe but is due for release at the end of the
offenders who committed the crime against term of imprisonment.
them and who were sentenced to 12 months
imprisonment or more. Risk Assessment
The Hampshire Probation Area has a He is assessed as presenting a very high risk
dedicated Victim Contact Unit (VCU) working of harm to family members and females.
in close liaison with the MAPPA teams. A unit
representative will attend MAPPA meetings to Risk Management
represent the views and concerns of the victims A number of joint visits by the Probation Officer
and in appropriate cases the victims themselves and Victim Contact Officer to the victims and
can be invited to express their personal views. their families revealed that both families had
These views can significantly influence the risk grown up together and are entwined in the
management decisions of the MAPPA meeting neighbourhood. All of the victims are now young
and inform how the offender will be managed women and are terrified for their safety, as are
and what actions are required to minimise the their mothers and relatives. On these visits the
risk of further harm to the public. families disclosed that Steven had committed a
number of violent and sexual offences against
Should you wish to make contact with the
them all but that they were too frightened to
Victim Contact Unit call 0845 6040150.
report these to the police. The families
Information can be obtained about Victim described Steven as devious and manipulative
Support from www.victimsupport.org and they provided details of his offending behav-
or by calling 0845 30 30 900 iour that had not been previously identified.

Outcome
The information was shared at the MAPPP
Core functions of Victim Contact Unit
n Contact the victim (or victim’s family) to ask which has ensured that:
if they want contact maintained throughout
the sentence and licence period
n During the sentence, keep the victim n Probation officer became more attuned to the
informed of key dates in the sentence offender’s offending behaviour
n Consult the victim and make the victim’s n Licence conditions planned appropriately,which
views known to the supervising officer, included that the offender should not contact the
the prison, the local MAPPA, and, if relevant, victims or their families and extended families and
the parole board
that the offender was excluded from certain areas
n Make recommendations about licence that the victims may frequent
conditions and release plans based on
victim’s views n Risk assessments enhanced by new information
n Advise probation staff and attend MAPP n Local police are aware of the risk and
meetings to advise of victim’s concerns conditions imposed
relevant to the management of offenders
n Keep victim’s informed of any significant n Victim’s addresses flagged on police systems
developments during the sentence or n Provision for the police to install an alarm
after release
n Housing officer aware of victims’ desire to
n Inform victim’s of any measures that can move out of the area
be taken to increase their safety
n Provide victim’s with information about Victim n Victims are kept informed and, therefore,
Support and other local support services 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
Statistics

WHAT DO THE STATISTICS TELL US?

By category of offender

MAPPA Category 1 RSOs Convicted or Cautioned

60 offenders were convicted or cautioned


Registered Sex Offenders
A total of 1190 sex offenders in the for breaching their sex offender registration
community were registered with the requirements.
police during 2006/07. The increase
from 2005/06 to 2006/07 is 6%. This Examples of breaches are:
figure includes those offenders who n failing to register after first being told to;
continue to be on the register from n failing to notify a change of home address;
previous years and who will continue
to be registered for some considerable n failing to notify any travel abroad
.
time to come (the minimum time for
registration is two years, and the
maximum is life). Approximately 40% Sexual Offences Prevention Orders
of sex offenders in Hampshire are
Police were granted 20 Sexual Offences
required to register for life. Therefore
Prevention Orders (SOPOs) during the
the register will continue to show a
reporting period.
year on year increase.
SOPOs are used to prevent an offender from
Table 1 undertaking an activity that would be legal for
any ordinary member of the public, for example,
standing outside school gates, or visiting
Level of Number of

a public swimming pool. The court must be


Management Registered

satisfied that an order is necessary to protect


Sex Offenders
Level 1 867 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.
Level 2 305
Typical examples of the restrictions imposed
by Sexual Offences Prevention Orders are:
Level 3 18

Table 1 illustrates the number of n being in the presence of young girls under
offenders managed at each level. the age of 16 unless an adult is present;
Of the 1190 registered sex offenders; n inviting or allowing any child under the
867 (73%) were managed at level 1, age of 16 into his home;
305 (25.5%) at level 2 and 18 (1.5%) n approaching, enticing or seeking to
at level 3. This distribution of numbers communicate with any child under the
affirms that the allocation of resources
age of 16.
is being utilised appropriately across
the offending population with only the
‘critical few’ offenders being managed Breaching a SOPO can result in a maximum
at level 3. sentence of five years imprisonment.

15
Statistics

MAPPA Category 2
Violent and Other Sex Offenders By level of management

The number of MAPPA Category 2


offenders in the community during the
reporting period has risen by almost 10 MAPPA Offenders managed at
per cent. This figure includes all those
offenders who were released on
Levels 2 and 3

licence during the reporting period The total number of all MAPPA
and has risen because of improved offenders being managed at Level 2
procedures for identifying this group increased from 545 to 801 an increase
and natural annual variations reflecting of 32%. The total number of offenders
historical sentencing patterns. managed at level 3 also showed an
increase from 36 to 50 (28%).
Of the 641 offenders within this
category, 400 (62%) have been man- Of those offenders being managed
aged at Level 2 at some point during at Level 2, 82 offenders (10%) were
the reporting year. The majority of returned to custody for breach of their
these cases will have been managed licence and 8 (1%) of Level 3 cases
at Level 2 during their period of were returned to custody. These are
release from custody when risk factors generally minor infringements, for
tend to be more unstable -for exam- example a failure to report to their
ple, without accommodation or supervising officer at an allocated
employment. However, after careful time, but conditions of a prison
consideration of their risk many will licence are strictly adhered to, and
now have been reduced to Level 1 any violation will result in a return
management. Only twenty four to custody to prevent the opportunity
cases (3%) were managed at the of further offending. A total of eight
highest Level, 3. cases were returned to custody
for breach of a restraining order
Overall, it should be stressed that the or SOPO.
rise in Category 2 cases does not
equate to a dramatic increase in There were no cases supervised at
violent and sexual crime in Hampshire level 2 or 3 that were charged with a
and Isle of Wight, it reflects improved serious further offence.
recording, reporting and management.
While there is no room for
complacency, these statistics do
suggest that MAPPA is being operated
effectively and rigorously in the area
MAPPA Category 3 and that the arrangements play an
Other Offenders important part in protecting the people
living in Hampshire and Isle of Wight.
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
Strategic Management

commitment to risk management meetings -


have been addressed and steps have been
THE STRATEGIC MANAGEMENT
taken to close the gaps in representation
OF MAPPA
The MAPPA Strategic Management Board using the contact through the SMB. This
(SMB) for Hampshire and the Isle of Wight action has resulted in a significant increase
meets four times a year and maintains an in commitment.
active oversight of MAPPA work within the
area. It is made up of senior representatives The SMB recognises the need to integrate
of the ‘Responsible Authority’ and ‘Duty to MAPPA with other public protection procedures,
Cooperate’ agencies providing a channel for for example, safeguarding children. Links with
the transfer of information. Local Safeguarding Children Boards are long
established. This role of the SMB is supported
During the past year the SMB has undertaken by the Local Criminal Justice Board (LCJB),
a series of case reviews to ensure the quality which is made up of the Chief Officers of the
and effectiveness of MAPPA processes and local criminal justice agencies who work
multi agency working. Identified good practice together to reduce re-offending, speed up
is communicated back to the staff and is also justice and improve the confidence of the
used to inform learning and development public in the criminal justice system.
of MAPPA as a whole. Identified areas for The LCJB provides the link to the local Crime
improvement - for example agencies’ 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 PERSPECTIVES ON PARTNERSHIP


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
Lay Advisor
Coordinator and deputy MAPPA Coordinator. I have been a Lay Advisor for four
These posts have proved invaluable, ensuring “years and have been impressed by
the coordination of public protection work the commitment of all partner
across the agencies and supporting the work agencies brought together by the
of the SMB. MAPPA in the interest of public
protection. Sadly, this year has seen
The continued involvement of the two Lay some serious further offences
Advisors on the SMB has also proved committed by offenders subject to
invaluable, bringing a high level of public MAPPA arrangements who have
scrutiny and providing a reality check to the been managed at level 1. Whilst
agencies around the table. Both lay advisors MAPPA can never totally eradicate
have actively participated in the case reviews the risks of further offending I have
asking probing questions and challenging been reassured by the seriousness
perceived best practice. They have also with which these further offences
participated in training and media events have been regarded by MAPPA
helping to promote MAPPA from a lay agencies and the procedures activated
perspective. to discover what, if anything, could
have been done differently with
During the last year the SMB has developed MAPPA. As a member of the newly
a Strategic Business Plan for 2007/08. This formed serious further offence review
is attached to the report as an Annex and will panel I will be in the privileged position
be used to address the key issues that will of being able to ask questions of the
strengthen and help standardise public MAPPA agencies to ensure that the
protection practice across the area. 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
Core functions of the SMB
n Monitoring and evaluating the are working to ensure my safety and
operation of MAPPA that of my young children
n Establishing the connections which

support effective operational work Rachel Mckernan
with other Public Protection Lay Advisor
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
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 This involves determining the role and representation of differ-
rightly placed upon establishing certain minimum requirements ent agencies within the framework. It also includes brokering
that would provide a basis for the effective multi-agency assess- the protocols and memoranda of understanding which formalise
ment and management of risk1. The fact that the success of those roles. While some margin of discretion in defining the role
these arrangements was founded upon the earlier working will be left with Areas, the following core features will be com-
practices between the police and probation developed locally mon to all SMBs:
inevitably meant that those practices varied between Areas.
The second phase of MAPPA development builds upon what (i) monitoring (on at least a quarterly basis)
and evaluating the operation of the MAPPA,
has already been achieved by formalising the practical arrange- particularly that of the MAPPPs;
ments across all Areas in order to introduce greater consisten-
cy in case management. However, this needs to be comple- (ii) establishing connections which support effective
mented by greater rigour and scrutiny in the review and moni- operational work with other public protection
toring of MAPPA. This is the role and purpose of the MAPPA arrangments, such as Local Safeguarding Children
Strategic Management Board (SMB). Boards, local Crime and Disorder Partnerships and
local Criminal Justice Boards;
The SMB will enable the Responsible Authority to discharge (iii) preparing and publishing the Annual Report
those duties imposed by the sub-sections (4) and (5), which (as required by Section 67 (4) and (5)) and
concern the Annual Report; and, more particularly, sub-section promoting the work of the MAPPA in the Area;
(3) of Section 67 of the Criminal Justice and Court Services Act
(2000), which requires that the Responsible Authority in each (iv) planning the longer-term development of the MAPPA
in the light of regular (at least annual) reviews of the
Area must: arrangements, and with respect to legislative and wider
criminal justice changes; and,
"keep the arrangements [i.e. the MAPPA] established
by it under review, with a view to monitoring their (v) identifying and planning how to meet common training
effectiveness and making any changes to them that and developmental needs of those working in the MAPPA.
appear necessary or expedient."
These five core features form the basis of the Hampshire and
This is a broad brief and below are outlined five principal Isle of Wight Area Business Plan
activities of the SMB. Overarching these activities is the role the
SMB has to shape the MAPPA framework within the Area. 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 DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR

a) Ensure the MAPPA ■ Evaluate/review the MAPPA Co-ordination Unit Ongoing DCI – Offender Management ■ Coordination unit to
Co-ordination Unit is fit and ensure it remains fit for purpose Probation MAPPA lead regularly report and update
for purpose and identify line management of work
future needs ■ Secure permanent funding to support completed and issues
the MAPPA Co-ordination Unit roles
arising on a quarterly basis

b) Ensure Duty to ■ Evaluate/review current DTC Ongoing MAPPA SMB Chair ■ Good representation at
Co-operate agency agency representation. SMB meetings recorded
representation at
■ Identify gaps in representation and ■ Monitor attendance and
the SMB extend invitations to agency leads report to SMB every 6 months

■ Redraft the Hampshire and Isle of Wight


c) Ensure current MAPPA Dangerous Offenders Protocol Awaiting MAPPA Co-ordination ■ Publication of revised
and up to date taking into account recommendations publication Unit in liaison with protocol leading to a
protocols/memorandums from the Thematic Inspection and revised of MAPPA other agencies consistent understanding of
of understanding are MAPPA Guidance. Guidance roles and responsibilities
in existence between within the local MAPPA area
the MAPPA Responsible ■ Launch DTC Memorandums of
Authority and DTC agencies Understanding with each DTC agency ■ DTC memorandums
completed and signed off

d) Review the ■ Compare current practice against that MAPPA Coordination ■ Report findings to SMB
advantages/disadvantages of areas where panel arrangements are
of core members on standard in place. DCI Offender Management
MAPPA panels to assess
the potential benefits of core Area Manager MAPPA lead
panels in Hampshire and
Isle of Wight

3 of 6
Hampshire and Isle of Wight Area - MAPPA Business Plan 2007/2008
2. Monitoring and Evaluation Strategy

STRATEGIC AIM DELIVERY PLAN PROGRESS RESOURCE PERFORMANCE INDICATOR

a) Provide quarterly ■ Provide information on attendance at meetings Ongoing MAPPA Coordination Unit ■ Report submitted to SMB
reporting of MAPPA by Duty to Cooperate agencies
■ Measure meetings attended
statistics to the SMB ■ MAPPA population profile by area against performance indicator
■ Spot audit meetings as per agreed
performance indicator using audit template

b) Perform biannual audits ■ Select Level 2 and 3 cases at random April and SMB ■ Findings reported to SMB
of MAPPA Cases 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

c) Review the piloting of the ■ The Responsible Authorities to follow internal Ongoing SMB ■ Outcomes reported to SMB
SFO internal review process 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 ■ Attend relevant boards and meetings MAPPA SMB members ■ Improved liaison and support
LCJBs, LSCBs, CDRPS to promote the work of MAPPA Probation MAPPA lead by other public protection groups
and other public protection DCI – Offender management
■ Provide presentations to key groups
arrangements 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