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MAPPA Annual Report 2002

1. Introduction

The Criminal Justice and Courts Service’s Act 2000 has sought to enhance public
protection by building upon existing inter-agency arrangements. From April 1, 2001 it
introduced a statutory duty on police and probation services in Hertfordshire to make
joint arrangements for the assessment and management of the risks posed by sexual
and violent offenders, and other offenders who may cause serious harm to the public.
These measures build on earlier legislation and previous work undertaken in
Hertfordshire by both services, working in conjunction with other statutory and
voluntary agencies.

Recognising the need to exchange information and collaborate closely, a working


partnership between police and probation in Hertfordshire began in 1996 when monthly
meetings were introduced to discuss high risk cases. The introduction of legislation
relating to sex offenders in 1997 then led to further and closer co-operation between
the services, and the involvement of other agencies.

Under the terms of the recent Act, a three tier public protection framework has been
established in Hertfordshire. This comprises of the:

Strategic Management Panel: to administer the process at senior management and


inter-agency level across the county. (The role and membership of the Strategic
Management Panel are dealt with in Section 4: Strategic Management Arrangements.)

Multi Agency Public Protection Panels (MAPPPs): Hertfordshire, for the purposes of
public protection, is divided into the three existing police Areas - Eastern, Western and
Central Hertfordshire. A panel has been established in each Area to assess and
oversee the management of offenders who pose a serious risk of harm on a multi-
agency basis.

Area Review Panels: inter-agency review panels have been formed at local level within
each area to monitor the progress of offenders who do not currently meet the criteria
for referral to a MAPPP and/or registration on the Public Protection Register.

The panels were launched at a conference on 1st March 2002 attended by


representatives of all agencies involved. The event provided an opportunity for staff
from every agency in each MAPPP area to meet and engage in discussion. The
afternoon session was devoted to a question and answer forum to clarify any issues
arising.

Under the terms of the MAPPP arrangements, Hertfordshire Probation Area and
Hertfordshire Constabulary are committed to meeting their statutory duty under the Act
and, together with all other agencies involved, are committed to the effective
management of those offenders who pose a risk of serious harm to the public. They
will also seek to work with other organisations in the community which, from time to
time, may have a role to play, and to engage public awareness and support for
measures which might better achieve safer communities. Public protection is a
responsibility for us all.
2. Summary of Roles and Responsibilities
In 2001-2002, the first year of ¾ agree actions proposed by Area ¾ HM Prison The Mount
operation of the Hertfordshire Multi Review Panels representative
Agency Public Protection Panels, the ¾ confirm actions taken are ¾ Manager Youth Offending Team
aim has been to build and adequate to meet the ¾ Probation Service Victim Contact
consolidate the local arrangements, requirements of public protection Officers (when appropriate)
in line with guidance issued by the duties
Secretary of State. ¾ register cases on the Public Remit
Protection Register
A MAPPP has now been established (Probation/Police) To:
in each Hertfordshire police area, ¾ review cases previously
which is chaired by a probation registered and confirm or revoke ¾ consider all cases assessed as
service Director of Operations or, in registration posing a significant risk of harm
cases relating to sex offending, the ¾ ensure implementation of agreed to the public
Area Detective Chief Inspector. action (at each meeting) ¾ ensure comprehensive
Membership of each panel is as ¾ consider need for community information exchange to inform
follows, but any other agency with an disclosure and the community actions/decisions
interest in a specific case may also issues ¾ agree level of risk posed
be invited to attend. ¾ complete record of decision- ¾ agree necessary actions to
making and communicate this to manage risk including
Multi-Agency Public Protection Area Review Panel members contingencies
Panel Membership: ¾ submit information to the ¾ refer cases to the MAPPP which
Strategic Management Panel as meet agreed criteria for
¾ Probation Service Director of required registration on the Public
Operations - chair Protection Register
¾ Detective Chief Inspector – Area Review Panels in each of the ¾ receive progress reports
chairs sex offending cases three police areas monitor all cases, regarding actions taken on
¾ Mental Health and Learning including those placed on the Public cases registered by MAPPP
Difficulties Manager Protection Register, and those that ¾ review cases previously referred
¾ Adult Care Services Managers do not meet the criteria for to the Area Review Panel and
¾ District/Borough Housing registration, but where the offender consider if the risk posed has
Managers has the potential to cause harm if increased/decreased (at each
¾ Prison Service Manager there is a change of circumstances, meeting)
¾ Youth Offending Team Manager eg. failure to take medication. The ¾ ensure implementation of agreed
¾ Community Mental Health Team Area Review Panels also monitor action
Manager offenders whose risk has declined, ¾ record all decisions/actions
¾ Children, Schools & Families so that they no longer qualify for using agreed pro-forma ensuring
Manager registration under the MAPPP that all agencies complete and
¾ Child Protection Unit Manager criteria. sign their section
¾ complete monitoring information
Remit Area Review Panel Membership – as required
¾ submit proforma to MAPPP
To: ¾ Senior Probation Officer - Chair
¾ Police Area Intelligence Officer .
¾ share information on those ¾ Mental Health and Learning
offenders referred Difficulties representative
¾ consider recommendations of ¾ Local Authority Housing
the Area Review Panel and representative
decide on registration

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3. Outline of Arrangements Made
Area Review Panels: The Area At all area review and public Management of the case: Where
Review Panel represents the first protection panel meetings, emphasis the criteria for registration is met, the
stage in the inter-agency risk is placed on a multi-agency MAPPP will place the offender on
management process, and meets on approach, and it is recognised that the Public Protection Register, which
a monthly basis. Each Area Review good communication channels are is held by the probation service.
Panel is chaired by the local Senior essential. An agency may have
Probation Officer for high-risk cases, additional information or can take The action plan drawn up by the
and by a Detective Inspector in action that assists in managing risk. MAPPP will specify the way in
cases involving sex offenders. Eg. An offender convicted of a which the offender is to be
Where deemed necessary, a panel domestic violence offence may be supervised and monitored. It will
meeting can be convened within 24 housed so that he no longer lives in assign responsibility for
hours. close proximity to his victim. implementation of the plan to a
particular agency, which will also be
The Area Review Panel can discuss Assessment of Risk: Levels of risk responsible for reporting back to the
cases brought by any of the partner are assessed using the Offender panel at every meeting. The action
agencies. The panel then develops Assessment System (OASys), plan will also define the roles and
a joint action plan for each specific developed by the Home Office for responsibilities of every other
case. In the most serious cases a use by the National Probation agency involved,
decision will be taken to refer the Service for England and Wales and
case to the MAPPP to consider the Prison Service. OASys identifies The action plan may involve
registration. Where the case is less risk of harm to the public, groups of measures to monitor behaviour, and
serious, monitoring by the Area people who may be at risk, and risks may include police contact. It may
Review Panel will continue and the posed to staff. OASys also identifies also involve provision of resources,
case will remain under review, with risk of harm to the offender, both Eg. Closer supervision of the
the option of a referral to the MAPPP self-harm and risk from others. offender within a probation hostel,
at a later stage if required. In Both the probation service and the and the provision of appropriate
situations where an individual is not prison service now use the OASys treatments, e.g. psychiatric
causing concern at present but has risk assessment procedures. assessment , or attendance on a sex
identified triggers e.g. mental health offender programme, to reduce the
problems, the risk will be reviewed Cases where the person concerned level of risk.
regularly. does not have a criminal conviction
may also be considered. As part of the action plan, agencies
Multi-Agency Public Protection Discussions will be held by the involved in managing a specific case
Panels: Each MAPPP in agency concerned with the local will decide on methods of
Hertfordshire meets every two Senior Probation Officer to decide maintaining close contact between
months to discuss cases which pose whether the case meets the risk meetings to review progress and
the highest risk of harm to others. criteria. The Area Review Panel will react quickly to any changes that
Emergency meetings can also be then decide whether the case merits occur. This may result in the calling
called at 24 hours notice if required. a referral to the MAPPP. of an emergency area review or
A Probation Director of Operations All cases brought before area or public protection panel meeting if
chairs each panel discussion on public protection panels will result in deemed appropriate.
high-risk cases, and a Detective an action plan agreed between all
Chief Inspector chairs sex offender the agencies concerned. A
cases. comprehensive record is kept of all
decisions, including those where no
further action is deemed necessary.

_____________________________________________________________________________________________
4. Strategic Management Arrangements
A Probation Director of Operations ¾ Police/Probation Information To facilitate these arrangements, a
and a Detective Chief Liaison Development Officer Police/Probation Liaison Officer has
Superintendent jointly lead the been appointed, as a joint post,
Strategic Management Panel, to Remit funded by Hertfordshire
oversee management and Constabulary. The liaison officer
administration of the public To: assists with information exchange
protection framework in between agencies, provides a point
Hertfordshire. The panel meets on ¾ gather and monitor information of contact and is responsible for
a quarterly basis and membership is to evaluate the effectiveness of reporting to the Strategic
designed to provide countywide the arrangements Management Panel at each quarterly
involvement from all agencies at the ¾ consider and manage necessary meeting on best practice, training
highest level. resources needs and areas for improvement.
¾ ensure training arrangements for
Membership – staff Police and probation are jointly
¾ contribute to policy development responsible for providing training to
¾ Director of Operations ¾ implement recommendations for ensure staff within all agencies are
(Probation) - Chair action within own organisation aware of their roles and kept
¾ Detective Chief Superintendent, ¾ ensure appropriate informed of developments.
Hertfordshire Constabulary communication within own Members of the Strategic
¾ Director Adult Care Services organisation Management Panel take
¾ Director Children, Schools & ¾ develop a strategy to ensure responsibility for dissemination of
Families appropriate inclusion of victims information within their
¾ Director Mental Health and ¾ develop a strategy for organisations.
Learning Difficulties communication with local
¾ Director of Housing communities about the work of The panel has agreed an action plan
(representing borough/district MAPPP for 2002-2003, which includes
councils) ¾ ensure that each agency has training provision for staff from other
¾ Prison Governor, HMP The internal procedures for the agencies.
Mount effective operation of public
¾ Director Youth Justice Service protection work
¾ Chief Executive Hertfordshire ¾ prepare and publish an annual
Victim Support report

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5. Disclosure
As part of the wider risk Each case will be decided on its case where disclosure has been
management process, one of the merits and will have been discussed used in Hertfordshire:
strategies that may be adopted to as an agenda item at the MAPPP. It
reduce risk is to make notifications to is the responsibility of the panel to A registered sex offender is living in a
individuals, groups, or sections of make a decision on community house where the garden backs on to a
the community, if it is felt this is notification based on careful and primary school. After discussion at the
justifiable. rigorous examination of all available Area Review Panel, the Chief Constable
information. In cases involving sex agrees there should be a limited
Community notifications are only offences, the ultimate decision on disclosure to the school’s headteacher,
made where there is a pressing disclosure rests with the Chief so that the school can monitor the
need, and each decision on whether Constable. situation and report any concerns
or not to disclose has to be justified immediately to police. In addition, the
on the basis of the likelihood of the To date disclosure has been local housing authority which owns the
harm which non-disclosure might undertaken on a limited basis. The property, replaces a low level fence at
otherwise cause. following gives an example of a the end of the garden with a higher
wooden barrier to prevent accidental that the local media may, in certain Responsibility for dissemination of
contact. Police also warn the offender to circumstances, have a valuable role information as background briefings
avoid any contact with children in the to play in the protection of the public. or involving disclosure to the media
vicinity. A protocol between local media and rests with police Corporate
Hertfordshire Constabulary has led Communications, who liaise with
Hertfordshire has been in the to close co-operation on a number of other agencies as appropriate.
vanguard in terms of recognising occasions relating to sex offenders.

_____________________________________________________________________________________________

6. Victims Work
Under the terms of Section 69 of the about the offender’s release. Victim Victim Support provides the Witness
Criminal Justice and Court Services concerns may then be considered Service, based in every criminal
Act 2000 the probation service is when a report on parole is prepared. court in England and Wales, to offer
under a statutory duty to contact assistance before, during and after a
victims to ask if they wish to be Victims may also contact Victim trial. Information and support is also
consulted about prison release Support in Hertfordshire for help and available on the Victim Supportline
arrangements where these involve support. At strategic level, the Chief 0845 30 30 900.
violent or sexual offenders Executive of Victim Support is a
sentenced to 12 months custody or member of the Strategic The Child Protection Unit is
more. Management Panel. responsible for support to children in
Hertfordshire, and may activate a
The probation service in Victim Support is the national charity case to the MAPPP through an
Hertfordshire has a Victim Contact for people affected by crime. It is an allegation of abuse, as well as taking
Unit, which notifies victims within independent organisation, offering a forward cases after conviction.
eight weeks of the sentence being free and confidential service,
imposed that they can decide to whether or not a crime has been The Womens Refuge service also
receive details of the release plan. reported. Trained staff and provides support to victims of
Specialist Victim Contact Officers will volunteers at local branches offer domestic violence, including
then arrange a visit, to explain the information and support to victims, children. It may also bring a case
victim’s right to be given information witnesses, their families and friends. before a panel prior to conviction.
7. Statistical Information Number of Offenders

i. The number of Registered Sex Offenders (RSOs) in the community on 31 200


March 2002 (s68(2) CJ & CS Act 2000

The number of RSOs per 100,000 population 19

ii. The number of Sex Offenders cautioned/convicted for breaches of 9


registration requirements 1 April 2001 – 31 March 2002

iii. The number of Sex Offender Orders 1 April and 31 March

(a) The total number applied for 1

(b) The number granted 1

(c) The number not granted 0

(d) Applications still in progress 0

iv. The number of violent offenders and other sex offenders 1 April 2001 – 31 199
March 2002 (s68(3)(4)&(5) CJ&CS Act 2000)

The number of other offenders 1 April 2001 – 31 March 2002 46


(s67(2)(b) CJ&CS Act 2000)

v. The cost of the local arrangements to include initial set-up costs and staff
hours

National Probation Service - Hertfordshire COST

Staff costs £450

Other costs £700

Hertfordshire Constabulary COST

Staff costs £17,680

Other costs £5,200


Contacts

Hertfordshire Probation Area Address Phone

Director of Operations (MAPPPs) Hertfordshire Probation Area 01992 504444


Headquarters
Graham House
Yeomans Court
Ware Road
Hertford
Herts SG13 7HJ

Hertfordshire Constabulary Address Phone

Head of Crime Management Hertfordshire Constabulary 01707 354602


Headquarters
Stanborough Road
Welwyn Garden City
Herts AL8 6XF

Hertfordshire Victim Support Address Phone

Chief Executive Hertfordshire Victim Support 01707 354626


C/o Police Headquarters
Stanborough Road
Welwyn Garden City
Herts AL8 6XF