Hampshire & Isle of Wight

Multi-Agency Public Protection Arrangements MAPPA Annual Report 2003/04

NATIONAL PROBATION SERVICE
for England and Wales

Hampshire

Dear Reader MAPPA ANNUAL REPORTS 2003-2004 I am delighted to commend this the third annual report of the Multi-Agency Public Protection Arrangements (the MAPPA) for the 42 police and probation Areas in England and Wales. These arrangements, introduced in April 2001, have made a significant difference to the way the public is protected from the risks posed by sexual and violent offenders. Public protection remains one of this government’s highest priorities and for the second successive year there are clear signs that this multi-agency approach is having a positive impact on reducing further serious re-offending and improving public safety. Each report contains practical examples of how this work is being progressed locally, led by probation and police and undertaken in partnership with a range of criminal justice and social care agencies.While not all offenders pose a risk of serious harm to others, the report illustrates how those who do are identified and managed. As in previous years, the report contains the number of registered sex offenders and violent offenders in your area; and, of those, the number who were managed by referral to the Multi-Agency Public Protection Panel (the highest level of risk management). As the system continues to develop the number of registered sex offenders has increased, as expected, from 21,413 last year to 24,572, and this is because offenders are required to register for at least five years – and many for life. The MAPPA have certainly been a success but there is no room for complacency. In April this year we introduced statutory provisions to strengthen the MAPPA in three important ways. First, the Prison Service join police and probation as the Responsible Authority in each Area. Secondly a range of agencies including health, social services and housing are now required to co-operate with the MAPPA. And finally, the public will have direct involvement in the development and review of the MAPPA in each Area through the appointment of two Lay Advisers by the Secretary of State. While serious offending can never be eliminated completely, the excellent work being coordinated through the MAPPA deserves proper acknowledgement for the benefits it is bringing to public protection. I hope this report will be of interest to you and commend the probation and police for their pivotal role in this work.

Paul Goggins

Hampshire & Isle of Wight

MAPPA Report 2003/04

Foreword
We are pleased to submit/publish our third Annual MAPPA Report. It is our hope that the report will be read widely and disseminated because it is vital that the MAPPA arrangements command growing public understanding and confidence. Over the past three years we have seen a strengthening of legislative and administrative arrangements and closer inter agency working than ever before to protect the public from potentially dangerous men and women. We wish to acknowledge the leadership provided by the Strategic Management Group and the support of the Local Criminal Justice Board and the Chief Officers Group. The active commitment of two ‘Lay Advisors’ has been of considerable benefit and we are pleased that Government has announced a national extension to the initial pilot. If you would like to find out more about MAPPA having read the report please contact:

David Scott Chief Officer Hampshire Probation Area Friary House Middle Brook Street Winchester Hampshire SO23 8DQ Paul Kernaghan Chief Constable Hampshire Constabulary West Hill Road Romsey Road Winchester Hampshire SO22 5DB

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for England and Wales

Hampshire

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Contents
Introduction How do the MAPPA work? Key achievements this year What else has heppened this year? What do the statistics tell us? Statistical Information List of Strategic Management Board Agencies 3 4 5 7 8 10 12

NATIONAL PROBATION SERVICE
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Hampshire

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Hampshire & Isle of Wight

MAPPA Report 2003/04

Introduction
A very small number of individuals in our community could cause serious harm to others. Some of them are known to the police, the probation service, and other organisations because they have a criminal record. Some are not known because they have not yet given any indication that they will cause harm to others. For those who are known, this report describes what happens in Hampshire and the Isle of Wight to manage and reduce the risk of these few people causing serious harm to others. This report is prepared on behalf of Hampshire Constabulary and the National Probation Service – Hampshire Area. These two organisations work together as the Responsible Authority.The role of the Authority is to put arrangements in place to manage people who could be dangerous to others. The arrangements are known as Multi-Agency Public Protection Arrangements (MAPPA); multi-agency because the police and probation service cannot do this work alone. Other organisations, including social services, the prison service, health service and housing work together with the police and probation to protect the public from the possible harm that these few known high risk offenders pose. This is the third annual report about these arrangements, and covers the year 1st April 2003 to 31st March 2004. This report can be made available in several different languages upon request to Hampshire Probation Area (see last page).

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How do the MAPPA work?
The previous two annual reports (still available on police and probation websites) described the setting up of the arrangements across the country, following an Act of Parliament. Quite simply, the arrangements are based on the knowledge that the best way to manage and reduce the risk these few people pose is to share information about them. They probably have been known to a number of agencies; not only police and probation, but also youth offending teams, social services, the prison service, health service, housing and others. The information that some or all of these agencies have is put together to build a picture of circumstances and problems that may have played a part in previous offences. Concern for previous victims is also a central part of this process. Staff know how deeply affected victims and their families can be when they have experienced a dreadful crime. The probation service may be in contact with those victims, keeping them informed about the plans for the person who harmed them in the past, but all the time knowing they may still be very fearful of the future. The offender’s current situation is compared to the past, and an assessment is made as to whether the person is still likely to harm others. The information is shared at a meeting known as a multi-agency public protection panel (MAPPP), where representatives from the different partner agencies come together. The panel also may invite the offender to hear what is being said and give him or her a chance to comment and tell the panel about current circumstances, thoughts and plans for the future. From this, a plan is created to manage the risk. The partner agencies are given tasks to complete, to ensure the offender is monitored and managed with the aim of reducing the risks the offender poses to the bare minimum. All decisions and actions of the panel are recorded and reviewed on a regular basis. The panel continues to meet until the person is no longer considered to be a serious danger to others. This year, 44 people were the subject of a panel. The total population of Hampshire and the Isle of Wight is 1.6m.This shows the number of people who are thought to be a risk of causing serious harm to others is very small. MJ was the victim of a house fire. The perpetrator was a family member. MJ was very frightened about it happening again. She didn’t want any further contact with that person in her family. The MAPPP heard about her concerns from a victim contact officer. Tight restrictions were put on the release licence of the perpetrator. The victim contact officer went on to help MJ move house, which she was keen to do because it made her feel safer. 4

NATIONAL PROBATION SERVICE
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Hampshire & Isle of Wight

MAPPA Report 2003/04

Key achievements this year
Two members of the public have experienced their first full year of being involved with the MAPPA.They are lay advisors to the agencies who manage the arrangements, and they give a valuable perspective from a lay person’s point of view on whether the public can be confident about the arrangements. They ask questions that many members of the public would want to ask. They meet the staff involved, and they take part in checking that the arrangements are working as they should be. These lay advisors can be contacted via Hampshire Probation HQ (see last page). More than 500 staff, representing all the key agencies, have attended events to hear how the system is expected to work, what is expected of them and the role they are expected to play. The statistics at the back of this report give detail on the total numbers involved in MAPPA this year. The majority of these people are managed under these arrangements because they have harmed other people in the past, but this does not mean they will do so again. However, just to be as sure as possible, their personal circumstances and their behaviour is checked regularly, and they are helped to deal with any problems that, if left to get worse, may lead them back to old ways.

One of the advisors said: “It has been an interesting year, settling into the role and adapting to a huge learning curve. There have been vital training opportunities and the chance to meet other agencies involved in MAPPA. “Meeting with other lay members around the country has been a great support, as it is helpful to see what other areas are doing and where we are in the greater scheme of things. I was pleased to find out we are a good way along the path, as a strategic management group, but there are areas of good practice in other areas from which we can learn.”

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Mr T was convicted of serious sexual offences against women many years ago and received a life sentence. He eventually was released from prison, but on a licence for the rest of his life. This means he has to keep in contact with a probation officer and has to tell the officer what is happening in his day-to-day life. For a year or two everything was fine, but, during the summer of 2003, a woman reported Mr T to the police because he was frightening her. His probation officer used the MAPPA to meet with the police and staff from other agencies, to assess whether he was at risk of causing further harm, and, if so, determine what should be done. Mr T was very upset about the accusation and said he had only been trying to form a friendship with a woman. However, he had not told his probation officer about this. He was given a warning by the Parole Board that, if he failed to tell his probation officer about what he was doing and if he caused any further problems to anyone, he would be sent back to prison. Following this incident, staff from the probation service, the police, social services and the housing department met with Mr T regularly and monitored his activities and behaviour. He has been helped to join clubs, where he can learn how to form friendships with groups of people rather than individuals on their own. He appears to have learnt his lesson and, once again, is quite settled. By the Spring of 2004, he was no longer thought to be a risk to anyone else, but his behaviour will continue to be monitored. A MAPPA Co-ordinator has been appointed this year to support the Responsible Authority and the other agencies on a day-to-day basis. The Co-ordinator will be the link among the agencies, a source of advice for staff and will keep the procedures under review to ensure they are up to date. The Co-ordinator will play a role in making these arrangements widely known by, for example, giving presentations on the MAPPA to diverse groups in the community. The Co-ordinator will, therefore, contribute to building public confidence in the system and making people feel safe.

NATIONAL PROBATION SERVICE
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Hampshire

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MAPPA Report 2003/04

What else has happened this year?
The MAPPA are kept under review by a Strategic Management Board. This Board is made up of senior managers from all the key agencies, as well as the two lay advisors (a full list of the agencies is given at the end of this report). The Board has met four times during the year. It has planned how to keep staff well trained and supported; made sure that other key groups, such as the Area Child Protection Committees, know about MAPPA and held a review day, to look at cases in depth and talk to the staff involved, to check that the arrangements are working. One of the lay advisors took part in this review day and talked confidently about what is going on: “My experience as a lay member over the last year has been enlightening to say the least. It has involved fact-finding visits to partner agencies, including probation, police and Albany prison, where I developed an insight into the work of these organisations in assessing the risks posed by potentially dangerous offenders and how those risks will be managed. I have observed an actual MAPPP in progress and was impressed by the commitment of the many partners to public protection via this process. I also took part in the case review day, which allowed me the opportunity to ask questions of those involved in managing individual cases. I, personally, have found myself re-assured that the risks to the public, myself and my children are being assessed and managed effectively and believe that greater public knowledge of these arrangements will enable other local people to be equally re-assured. That said, I see my role as continuing to ask questions that local communities would want to ask of the SMB and ensuring the public has a voice when decisions affecting their safety are being taken at a high level. The lay member initiative allows the public a quality assurance role within the MAPPA process.” The Strategic Management Board has grown in number this year, with new representatives joining us from different social services departments.This shows the commitment all agencies have towards working together to make the people who live in Hampshire and the Isle of Wight feel safer. The prison service is now represented by a member of the Area Manager’s team, rather than a local governor. This means that our local Strategic Management Board is in a good position, since the Prison Service joined the police and probation as part of the Responsible Authority from 1st April 2004. The other agencies have also been getting ready for a change next year. They will have a duty to co-operate imposed on them in 2004/5. However, for this local area, this duty just makes more formal what has already been a very good relationship among the agencies. A comment from one of our local housing department officers is a good example of this:

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“A multi-agency public protection panel meeting was held concerning a man who will be released from prison after having served a 10-year sentence. The panel agreed that securing re-housing on his release would assist in managing the risk that he poses to the community. The local housing authority, which was involved in the MAPPP, convened a meeting of partner housing associations which are the housing providers in the district. All of the partner housing associations agreed to consider housing the offender on his release from prison, to assist in managing risk.” All agencies are committed to work to improve services to victims. Too often, victims feel let down by the system. Speedy communication has been achieved this year between the police and probation service. This has led to victims of serious sexual and violent crimes being contacted quickly following the court case, and probation staff have been able to tell victims about prison sentences and what they mean. The Director of Hampshire Probation Area, who chairs the Strategic Management Board, also has been involved in putting together a document which charts the responsibilities of criminal justice agencies towards victims of crime. This should improve the flow of communication among these agencies, thereby improving the service to victims and witnesses of crime.

SP was the victim of a very serious assault by a partner, who was given a two-year prison sentence. Following sentence, a victim contact officer contacted SP and arranged to meet her. Such were the concerns over SP’s safety, that the local police domestic violence co-ordinator also attended the meeting. SP was clear that she was planning to end the relationship with the offender and had fears for her future. The victim contact officer was able to relay those concerns to the MAPPP, and the information from the victim gave the panel a fuller picture on which to base their decisions about how the offender would be managed when he was released from prison.

What do the Statistics tell us?
The number of registered sex offenders in Hampshire and Isle of Wight has increased by 17.6% (up to 999 from 849). This is a smaller increase than in the previous year (19%). An increase is inevitable, because the number of offenders who have to register as sex offenders on conviction is greater than the number whose period of registration expires each year. Only 19 offenders were cautioned or convicted for registration breach offences last year from the 999 registered sex offenders in the two counties. About 98 per cent of registered sex offenders comply and register as required.This is a very high figure and ensures good monitoring,

NATIONAL PROBATION SERVICE
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MAPPA Report 2003/04

because registration involves, amongst other things, the offender saying where he or she is living. Sex Offender Orders are obtained by the police on application to a court.They place restrictions on the offender to prohibit access to certain places (eg schools) and certain groups of people (eg children). The police apply for these orders when it is judged necessary to increase protection for the public.This year, the police obtained nine orders, an increase from four the previous year.The orders remain in force for a minimum of five years.Two offenders have recently been taken back to court for breaches of Sex Offender Orders and received sentences of three and four years’ imprisonment, respectively.The police, in partnership, will continue to seek orders, where appropriate, as a valuable tool in managing risk and keeping the community safe. The number of “other offenders”, that is those who do not fall into the registered sex offender or the category for violent and other sexual offenders, has decreased this year.These are people whose behaviour causes concern but they may not have current convictions which put them into the other two categories.The decrease is due to a much more stringent assessment to ensure we only capture the most high risk offenders.This is a positive result of our learning each year. Of the 44 most high-risk offenders (referred to as the critical few), none were charged with any further serious sexual or violence offence. However, two were sent back to prison for breaching the conditions

of their licence. One had started behaving in a way that suggested he was beginning to get back into old habits and, therefore, was at risk of re-offending. He was recalled to prison to stop this happening.The second person struck up a friendship with a young woman who had a six-month old baby and another older child. He was told to stop this friendship, but he kept sending her text messages and also made it clear that he believed he should be allowed to have friendships with women who had children. As his original offence was a sexual assault on someone less than 16 years of age, he was considered too risky to remain in the community. He also was recalled to prison before he had the chance to re-offend. The third person is in prison for breaching the conditions of his Sex Offender Order by talking to children. These low numbers strongly suggest the MAPP arrangements are working well and help communities in Hampshire and the Isle of Wight feel safe.

NATIONAL PROBATION SERVICE
for England and Wales

Hampshire

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Hampshire & Isle of Wight

Statistical Information
Required for the reporting period 1st APRIL 2003 - 31st MARCH 2004

Hampshire Constabulary
Question 1. Category 1 MAPPA offenders: Registered Sex Offenders (RSOs) i) The number of RSOs living in your Area on 31st March 2004. ia) The number of RSOs per 100'000 head of population. ii) The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2003 and 31st March 2004 iii) The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2003 and 31st March 2004. iv) The number of interim Sex Offender Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2003 and 31st March 2004. Number of offenders 999 56

19

a) 9 b) 9

a) 2 b) 2

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2. Category 2: violent offenders and other sexual offenders v) The number of violent and other sexual offenders (as defined by Section 68 (3), (4) and (5) of the Criminal Justice and Court Services Act (2000)) living in your Area between 1st April 2003 and 31st March 2004

242

Hampshire

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Hampshire & Isle of Wight

MAPPA Report 2003/04

3. Category 3: Other offenders vi) The number of ‘other offenders’ (as defined by Section 67 (2)(b) of the Criminal Justice and Court Services Act (2000)) between 1st April 2003 and 31st March 2004.

114

vii) The number of Restraining Orders imposed on any MAPPA offenders by the courts in your Area between 1st April 2003 and 31st March 2004. 0

4. MAPPA cases viii) Identify how many MAPPP offenders in each of the three Categories (i.e. (i)- RSOs, (v)- V&O and (vi)- OO above) have been managed through the MAPPP (level 3) between 1st April 2003 and 31st March 2004.

RSO 21 V&O 15 OO 8

ix) Of the cases managed by the MAPPP (i.e.(viii)) between 1st April 2003 and 31st March 2004 how many, whilst still in the MAPPP: Were returned to custody for a breach of licence? Were returned to custody for a breach of a restraining order or sex offender order? Were charged with a serious sexual or violent offence?

a) 2 b) 1 c) 0

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Strategic Management Board Agencies
National Probation Service Friary House Middle Brook Street Winchester SO23 8DQ West Hill Romsey Road Winchester SO22 5DB l Trafalgar House The Castle Winchester SO23 8UQ Southampton City Council Civic Centre Southampton SO14 7LY Portsmouth City Council Civic Offices Guildhall Square Portsmouth PO1 2EP 17 Fairlee Road Newport Isle of Wight PO30 2EA The Old Warden’s House 21 Bierton Road Aylesbury Bucks HP20 1EH 85 High Street Winchester SO23 9AE 01962 842202

Hampshire Constabulary

0845 045 45 45

Hampshire County Council Hampshire Social Services

01962 847133

Southampton City Council Southampton Social Services

023 80832621

Portsmouth City Council Portsmouth Social Services

023 92841150

Isle of Wight Social Services

01983 520600

Prison Service

01296 424435

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Wessex Youth Offending Team

01962 876100

Hampshire
NB: Housing departments are located within the local authority offices

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NATIONAL PROBATION SERVICE
for England and Wales

Hampshire