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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 co-
ordinated 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 If you would like to find out more about
Annual MAPPA Report. It is our hope that MAPPA having read the report please
the report will be read widely and contact:
disseminated because it is vital that the
MAPPA arrangements command growing
David Scott
public understanding and confidence.
Chief Officer
Hampshire Probation Area
Over the past three years we have seen a
Friary House
strengthening of legislative and
Middle Brook Street
administrative arrangements and closer
Winchester
inter agency working than ever before to
Hampshire
protect the public from potentially
SO23 8DQ
dangerous men and women. We wish to
acknowledge the leadership provided by
Paul Kernaghan
NATIONAL
the Strategic Management Group and the
Chief Constable PROBATION
support of the Local Criminal Justice Board
Hampshire Constabulary
and the Chief Officers Group. The active SERVICE
West Hill Road
commitment of two ‘Lay Advisors’ has been for England and Wales
Romsey Road
of considerable benefit and we are pleased Hampshire
Winchester
that Government has announced a national
Hampshire
extension to the initial pilot.
SO22 5DB

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Hampshire & Isle of Wight

Contents

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

NATIONAL
PROBATION
SERVICE
for England and Wales
Hampshire

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Hampshire & Isle of Wight MAPPA Report 2003/04

Introduction

A very small number of individuals in our This is the third annual report about these
community could cause serious harm to arrangements, and covers the year 1st April
others. Some of them are known to the 2003 to 31st March 2004. This report can
police, the probation service, and other be made available in several different
organisations because they have a criminal languages upon request to Hampshire
record. Some are not known because they Probation Area (see last page).
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 NATIONAL
prison service, health service and housing PROBATION
work together with the police and
probation to protect the public from the
SERVICE
for England and Wales
possible harm that these few known high
risk offenders pose.
Hampshire

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Hampshire & Isle of Wight

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

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Hampshire & Isle of Wight MAPPA Report 2003/04

Key achievements this year

Two members of the public have More than 500 staff, representing all the
experienced their first full year of being key agencies, have attended events to hear
involved with the MAPPA.They are lay how the system is expected to work, what
advisors to the agencies who manage the is expected of them and the role they are
arrangements, and they give a valuable expected to play.
perspective from a lay person’s point of
view on whether the public can be The statistics at the back of this report give
confident about the arrangements. They detail on the total numbers involved in
ask questions that many members of the MAPPA this year. The majority of these
public would want to ask. They meet the people are managed under these
staff involved, and they take part in arrangements because they have harmed
checking that the arrangements are other people in the past, but this does not
working as they should be. These lay mean they will do so again. However, just
advisors can be contacted via Hampshire to be as sure as possible, their personal
Probation HQ (see last page). 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
NATIONAL
meet other agencies involved in MAPPA.
PROBATION
“Meeting with other lay members around SERVICE
the country has been a great support, as it for England and Wales
is helpful to see what other areas are Hampshire
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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Hampshire & Isle of Wight

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
NATIONAL MAPPA to diverse groups in the
community. The Co-ordinator will,
PROBATION therefore, contribute to building public
SERVICE confidence in the system and making
for England and Wales people feel safe.
Hampshire

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Hampshire & Isle of Wight MAPPA Report 2003/04

What else has happened this year?

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

part in the case review day, which allowed makes more formal what has already been a Hampshire
me the opportunity to ask questions of those very good relationship among the agencies. A
comment from one of our local housing
involved in managing individual cases. I,
department officers is a good example of
personally, have found myself re-assured that
this:
the risks to the public, myself and my
children are being assessed and managed
effectively and believe that greater public

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Hampshire & Isle of Wight

“A multi-agency public protection panel SP was the victim of a very serious assault
meeting was held concerning a man who by a partner, who was given a two-year
will be released from prison after having prison sentence. Following sentence, a
served a 10-year sentence. The panel victim contact officer contacted SP and
agreed that securing re-housing on his arranged to meet her. Such were the
release would assist in managing the risk concerns over SP’s safety, that the local
police domestic violence co-ordinator also
that he poses to the community. The local
attended the meeting. SP was clear that
housing authority, which was involved in
she was planning to end the relationship
the MAPPP, convened a meeting of partner
with the offender and had fears for her
housing associations which are the housing
future. The victim contact officer was able
providers in the district. All of the partner
to relay those concerns to the MAPPP, and
housing associations agreed to consider the information from the victim gave the
housing the offender on his release from panel a fuller picture on which to base their
prison, to assist in managing risk.” decisions about how the offender would be
managed when he was released from
All agencies are committed to work to prison.
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
What do the
violent crimes being contacted quickly
following the court case, and probation staff
Statistics tell us?
have been able to tell victims about prison The number of registered sex offenders in
sentences and what they mean. The Hampshire and Isle of Wight has increased
Director of Hampshire Probation Area, who by 17.6% (up to 999 from 849). This is a
chairs the Strategic Management Board, also smaller increase than in the previous year
has been involved in putting together a (19%).
document which charts the responsibilities
NATIONAL of criminal justice agencies towards victims An increase is inevitable, because the
number of offenders who have to register
PROBATION of crime. This should improve the flow of
communication among these agencies, as sex offenders on conviction is greater
SERVICE than the number whose period of
thereby improving the service to victims
for England and Wales registration expires each year.
and witnesses of crime.
Hampshire
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,

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Hampshire & Isle of Wight MAPPA Report 2003/04

because registration involves, amongst of their licence. One had started behaving
other things, the offender saying where he in a way that suggested he was beginning to
or she is living. get back into old habits and, therefore, was
at risk of re-offending. He was recalled to
Sex Offender Orders are obtained by the prison to stop this happening.The second
police on application to a court.They place person struck up a friendship with a young
restrictions on the offender to prohibit woman who had a six-month old baby and
access to certain places (eg schools) another older child. He was told to stop
and certain groups of people (eg children). this friendship, but he kept sending her text
The police apply for these orders when it messages and also made it clear that he
is judged necessary to increase protection believed he should be allowed to have
for the public.This year, the police obtained friendships with women who had
nine orders, an increase from four the children. As his original offence was a
previous year.The orders remain in force sexual assault on someone less than 16
for a minimum of five years.Two offenders years of age, he was considered too risky
have recently been taken back to court for to remain in the community. He also was
breaches of Sex Offender Orders and recalled to prison before he had the chance
received sentences of three and four years’ to re-offend.
imprisonment, respectively.The police, in
partnership, will continue to seek orders, The third person is in prison for breaching
where appropriate, as a valuable tool in the conditions of his Sex Offender Order
managing risk and keeping the community by talking to children.
safe.
These low numbers strongly suggest the
The number of “other offenders”, that is MAPP arrangements are working well and
those who do not fall into the registered help communities in Hampshire and the
sex offender or the category for violent Isle of Wight feel safe.
and other sexual offenders, has decreased
this year.These are people whose
behaviour causes concern but they may not
NATIONAL
have current convictions which put them
into the other two categories.The PROBATION
decrease is due to a much more stringent SERVICE
assessment to ensure we only capture the for England and Wales
most high risk offenders.This is a positive Hampshire
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

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Hampshire & Isle of Wight

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

Hampshire Constabulary
Question Number of offenders
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSOs)
i) The number of RSOs living in your Area on 31st March 2004. 999

ia) The number of RSOs per 100'000 head of population. 56

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 19

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. a) 9
b) 9
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. a) 2
b) 2

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
NATIONAL Court Services Act (2000)) living in your Area between
PROBATION 1st April 2003 and 31st March 2004 242

SERVICE
for England and Wales
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? a) 2
Were returned to custody for a breach of a restraining order
or sex offender order? b) 1
Were charged with a serious sexual or violent offence? c) 0
NATIONAL
PROBATION
SERVICE
for England and Wales
Hampshire

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Hampshire & Isle of Wight

Strategic Management Board Agencies

National Probation Service Friary House 01962 842202


Middle Brook Street
Winchester
SO23 8DQ

Hampshire Constabulary West Hill 0845 045 45 45


Romsey Road
Winchester
SO22 5DB

Hampshire County Council l Trafalgar House 01962 847133


Hampshire Social Services The Castle
Winchester
SO23 8UQ

Southampton City Council Southampton City Council 023 80832621


Southampton Social Services Civic Centre
Southampton
SO14 7LY

Portsmouth City Council Portsmouth City Council 023 92841150


Portsmouth Social Services Civic Offices
Guildhall Square
Portsmouth
PO1 2EP

Isle of Wight Social Services 17 Fairlee Road 01983 520600


Newport
Isle of Wight
PO30 2EA

Prison Service The Old Warden’s House 01296 424435


21 Bierton Road
NATIONAL Aylesbury
Bucks
PROBATION HP20 1EH
SERVICE Wessex Youth Offending Team 85 High Street 01962 876100
for England and Wales Winchester
SO23 9AE
Hampshire
NB: Housing departments
are located within the local
authority offices

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NATIONAL PROBATION SERVICE
for England and Wales
Hampshire