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Reporting on the Multi-Agency Public Protection Arrangements in Hertfordshire

MAPPA Annual Report 2006-2007
Designed and produced by www.blindcow.co.uk October 2007

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

Maria Eagle MP Parliamentary Under Secretary of State



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We are pleased to introduce this year’s annual report of the Multi-Agency Public Protection Arrangements (MAPPA) operating in Hertfordshire. While it is not possible to guarantee that no offender will re-offend, that goal is the key purpose of these arrangements. The arrangements work purposefully to manage those offenders who are assessed to still present a risk of causing serious harm but are lawfully living within our communities. MAPPA has been evolving since April 2001 and demonstrates year-on-year developments and a strengthening of procedures and information-sharing across the key agencies. MAPPA is not for the faint hearted; it demands commitment, determination, a resolute approach. Those involved require an ability to stick with addressing complex and challenging behaviour in a way that places public safety at the forefront. At the same time, every effort is made to address the offender’s behaviour to reduce the likelihood of re-offending and supporting their successful resettlement. The protection of the public and known or potential victims is always the highest priority and, where there are known victims, the victim contact staff will be there to ensure their personal perspective and safety is paramount. During 2006/07 the development of the MAPPA business plan has provided an improved framework for further work, and the contribution of our lay advisors, Janet Ball and Tony Keen, has been very valuable and appreciated. There remains a significant challenge to improve and raise public awareness and understanding of MAPPA, particularly when success is, to a large extent, demonstrated by the fact that there is ‘no news’. In many respects success is measured in that there is low public concern and that the offender has been successfully managed. This means that the offender has made good progress, so that the potential risks they might have posed have been reduced, or they have been recalled to prison due to concerns about their behaviour, without committing another serious further offence. In the majority of cases, the offenders managed under MAPPA have completed the custodial part of their sentence and have been released automatically. They are, therefore, lawfully returning to our community but, given the concerns that remain, the authorities need to work closely together to manage and monitor the risks they may pose. This report is one further step in our aim to provide a greater insight into how MAPPA operates locally and demonstrates our strong commitment to protecting the public and working collaboratively to assess and manage offenders considered to present a significant risk. The Hertfordshire Criminal Justice Board keep a watchful eye on the procedures, looking to learn from best practice and support the MAPPA Strategic Management Board in keeping Hertfordshire a safe place.
Tessa Webb Chief Officer
Hertfordshire Probation Area

6 What is MAPPA? 7 What sort of people pose a risk of harm to others? 8 Hertfordshire Overview 10 How MAPPA Works 12 Case Study 1 14 Managing Risk 16 SMB Organisations and their Roles 18 Case Study 2 20 Visor 21 We are the public voice on MAPPA 22 IDAP 24 Statistical Information for Hertfordshire 25 Business Plan 29 Contacts

Frank Whiteley Chief Constable
Hertfordshire Constabulary

Damian Evans, Governor
HMP The Mount



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What sort of people pose a risk of harm to others?
MAPPA stands for Multi-Agency Public Protection Arrangements – a set of arrangements established by police, probation and the prison service in England and Wales Probation Areas to assess and manage the risk posed by sexual and violent offenders. Other agencies that co-operate in MAPPA include youth offending teams, Jobcentre Plus, local housing authorities, registered social landlords, local authority social care and education, strategic health authorities, Care Trusts, and electronic monitoring providers. Celebrating 6 years Sexual and violent offenders live in all communities and are of no single age, gender, ethnicity or position in society. What is common is that the offences they commit are unacceptable, often resulting in significant physical and emotional damage to their victims. The identification and conviction of offenders is therefore a priority. Once convicted not all offenders go on to commit further offences. Within Hertfordshire there are many examples of offenders who have worked with the Prison and Probation officers through various programmes and who have resettled successfully within the community. That said, some do re-offend and we need to identify those offenders who pose a high and very high risk of further serious harm and to take action to prevent them harming the lives of others. Who needs protection? Sexual and violent offenders often target those within our communities whom they perceive are vulnerable or weak either because of age, gender or social circumstances. The vast majority of sexual offending is committed by people who are known to the victim either as family members, friends or acquaintances.

Information Summary
1. MAPPA is the term to describe the arrangements set up locally to assess and manage offenders who pose a risk of serious harm. 2. The Criminal Justice and Court Services Act (2000) established the MAPPA and placed them on a statutory basis. The Criminal Justice Act (2003) re-enacted and strengthened those provisions. The legislation requires the Police, Prison and Probation Services (acting jointly as the 'Responsible Authority') in each of the 42 areas of England and Wales:

to establish arrangements for assessing and managing the risks posed by sexual and violent offenders; to review and monitor the arrangements; as part of the reviewing and monitoring arrangements, to prepare and publish an annual report on their operation.

What is MAPPA?

The MAPPA process began operations in April 2001. MAPPA places a duty on the Police, Prison and Probation Service to assess and manage risks posed by offenders in every community in England and Wales. MAPPA can recommend various measures to monitor and reduce risk including increased police monitoring, special steps to protect victims, attendance by offenders at programmes to address issues such as alcohol abuse, appropriate disclosure to third parties where necessary and the use of supervised accommodation. Under the Criminal Justice and Court Services Act 2000, there is a statutory duty to contact victims, enabling them to be kept informed of the offender’s release arrangements and, addressing their concerns in the determination of the supervision plan. How does it operate? The principles that govern MAPPA are simple: ■ ■ ■ ■ ■ Identify who may pose a risk of harm Share relevant information about them Assess the nature and extent of that risk Find ways to manage that risk effectively, protecting vicitms and reducing further harm Establish an effective risk management plan

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3. A range of other agencies have also been placed under a duty to co-operate with the Responsible Authority. These include:
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Local Authority Social Care & Education Primary Care Trusts, other NHS Trusts and Strategic Health Authorities Jobcentres Plus Youth Offending Teams Registered Social Landlords which accommodate MAPPA offenders Local Housing Authorities Electronic Monitoring providers

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4. There is also a requirement to appointment two lay advisors to each of strategic management boards that review the MAPPA. Useful web link: http://www.probation.homeoffice.gov.uk



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Hertfordshire: Overview
Hertfordshire Children Schools and Families Carol Taylor Head of Child Protection Hertfordshire County Council Adult Care Services Cathy Kerr Hertfordshire County Council Adult Care Services John Bishop Hertfordshire County Council Hertfordshire Partnership NHS Foundation Trust Mike Barratt Assistant Director, Tertiary & Forensic

Population of over 1 million people.

Located to the north of Greater London, and within the London commuter belt, Hertfordshire has an estimated population of over 1 million people. About 89% of the population are white, with the remainder from other minority ethnic groups including approximately 3% Asian, 1.75% Black and 0.5% Chinese. Hertfordshire is economically diverse with the headquarters of many large well-known UK companies being placed here. Unemployment is lower than the national average at 1.5%. Hertfordshire continues to be one of the safest counties in the country. Overall recorded crime in Hertfordshire fell between April 2006 and March 2007 and is below the national average levels. The highest recorded offences are violent crimes and burglary with sexual offences having one of the lowest levels of committed crime within the county.

Hertfordshire Partnership NHS Trust Dr Mike Isweran Consultant Forensic Psychiatrist

Hertfordshire Children Schools and Families Ann Domeney Deputy Director Integrated Children’s Services Hertfordshire County Council

Prison Service Damien Evans Governor HMP The Mount

Prison Service Manfred Kockinky Deputy Head of OMU HMP The Mount

Hertfordshire Probation: John Hughes Assistant Chief Officer Public Protection/ Offender Management

Youth Justice Tom Rees Assistant Director YOT Hertfordshire County Council

Victim Support David Padgett Area Manager

Hertfordshire Police Liz Hanlon Crime Management Dept.

Hertfordshire Police: DCS Chris Miller Crime Management Dept.

MAPPA Manager Sue Tassell

Lay Advisor Anthony Keen

Lay Advisor Janet Ball



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How MAPPA Works
Most are unlikely to seriously re-offend
MAPPA notifications result from an offender being sentenced to a term of imprisonment of 12 months or more for a sexual or violent offence, being a Registerable Sex Offender, or being identified as a risk of serious harm to the public. Offenders are monitored and interviewed whilst they are in custody, especially as a release date approaches. They may also undertake treatment programmes and related work and will be risk assessed. This enables a picture to be built up about the likelihood of them committing a further serious crime on release. Most are unlikely to seriously re-offend, but there will be a number about whom the offender managers will have concerns. Legislation does not allow people to be kept in prison beyond the end of their sentence even if it is possible that they will commit further offences unless they have received a specific new indeterminate sentence for public protection. Therefore there must be a means of closely supervising them and working to reduce their risk. This is the role of MAPPA. Each agency contributing to MAPPA in Hertfordshire has its own policy and procedures for recognising, assessing and referring people. Once identified the case will be referred to the local risk management panel which meets monthly unless the case is identified as urgent, in which case an emergency meeting will be held. The information is shared and processed through MAPPA. The MAPPA process comprises of three levels:

These meetings are scheduled to take place if required on a monthly basis at a central venue, chaired by the Probation Assistant Chief Officer for Public Protection and are held only in relation to the “critical few” cases. These offenders require management oversight at senior level as they pose the highest risk due to the seriousness/imminence of their offending, or require exceptional resources. Senior representatives of each major agency attend. Very few offenders in Hertfordshire are likely to progress this far, therefore meetings, although scheduled, only take place when required.

Multi-Agency Public Protection Panels (MAPPP)

Chaired by the MAPPA Manager, LRMPs are scheduled monthly at the 4 Probation Centres around the county. Key agencies that are always present are Police and Probation, alongside the other agencies having contact or involvement with the case: Children Schools and Families (social services), mental health, local authority housing or a registered social landlord. Where an offender is about to be released from imprisonment, then the Prison Service will also attend or supply relevant information to the meeting. An important consideration are the views of the past victims and these will be represented at these meetings by Hertfordshire Probation Victim Unit. The majority of dangerous offender cases will come under the scrutiny of the LRMP.

Level 2 - Local Risk Management Panel Meeting (LRMP)

Level 1 management is used for those cases in which the risk posed by the offender can adequately be managed within normal risk management or supervision plans. While key information will be shared they are likely to be managed by one lead agency without the necessity for ongoing inter agency discussion and without actively or significantly involving other agencies in the process. If this situation changes the case may be referred up to Level 2.

Level 1 - Ordinary Risk Managment

Information Summary
The role of the Strategic Management Board in Hertfordshire is to:
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local Criminal Justice Boards to enhance MAPPA’s performance;

Monitor and evaluate the operation of the MAPPA in Hertfordshire; Ensure that information-sharing links are established with other public protection arrangements, such as Local Children Safeguarding Board, local Crime and Disorder Partnerships and the

Prepare and publish the Annual Report and promoting the work of MAPPA in Hertfordshire; Plan the longer-term development of the MAPPA in Hertfordshire in the light of regular reviews of the arrangement, and with respect to legislative and wider criminal justice changes;

Identify and plan how to meet the common training and development needs of those working in the MAPPA; Produce and implement a Media Strategy and operational communications plan; Produce and implement an annual Business Plan.



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Whilst in prison for another offence, this offender had sent threatening letters to a number of people from his local community. Through the co-ordination and information sharing protocols within MAPPA he was arrested for threats to kill as soon as he was released.
This is a case study of a high-risk offender who had persistently refused to co-operate with the authorities. Previous convictions This offender had been diagnosed in the past as having a serious personality disorder. He had previous convictions for threatening behaviour, harassment and violence and had previously been discussed by MAPPA. He came to the notice of Hertfordshire Constabulary’s Public Protection Unit in May 2003 when he, after hearing some rumours, began a public ‘campaign’ to prove he was not a paedophile. He had taken the unusual step of identifying himself to his local community in a most provocative way and, while advertising the fact that he wasn’t a sex offender on some disturbing home made posters, he felt it was acceptable to say he had a previous conviction for attempted murder. Taking Action The Police stepped in and with MAPPA support disclosed information to local residents to alleviate concerns. However during this time the approaches by the offender to some local families caused some concern. This led to his arrest and a subsequent conviction. As the time for his release approached, the Probation Service, Mental Health Services and the Prison Service worked closely together to put a programme in place to work with him to manage the risk that he presented to the public. An important part of MAPPA arrangements is that agencies try hard to work with the offender so that they can contribute to their own risk management plan. In many cases this is successful. Non co-operation Concerns were expressed about his volatile behaviour and unwillingness to co-operate. A specialist psychological assessment was carried out indicating that he would continue to be a high risk to the public when he was to be released. A MAPPA meeting was held and plans to manage him were developed. Arrangements for housing were crucial to the planning, as were any conditions that needed to be imposed around his new place of residence. Concerns about the offender were managed through MAPPA who also put plans in place to protect those members of the public that had previously been threatened. Matters get worse Things started to deteriorate and whilst in prison the offender began to send threatening letters to a number of people from his local community. MAPPA were made aware of this and discussed the risks across the remits of their agencies. The result was that the offender was arrested for threats to kill as soon as he was released. Further psychological assessments were obtained and confirmed that he posed a significant threat, despite having completed his custodial sentence. He was made the subject of a restraining order and remains closely monitored. At this point in time he is receiving treatment in a secure psychiatric environment.

At some point in the future he may return to the community, and then the MAPPA agencies will work together again to ensure that the risks he may pose are monitored closely and that every effort is taken to protect the public.

Throughout this case, public safety has been at the forefront of MAPPA’s planning and will remain the dominant factor in the work with this offender.


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Managing Risk
National MAPPA guidance, first published in April 2003, indicates that MAPPA offenders should be managed at three levels.
Level 1: Involves normal agency management, i.e. cases which do not require ongoing inter agency discussion or the active involvement of multiple agencies. Level 2: Where the active involvement of more than one agency is required to manage the risk the offender poses. Most offenders assessed as high or very high risk of serious harm can be managed at this level. Level 3: The few cases referred to Level 3 MAPPPs are those offenders who pose the highest risks of causing serious harm or whose management is so problematic that multi-agency co-operation and oversight at senior level is required.

How MAPPA categorises Offenders
Under MAPPA offenders can be put into three management categories:
Category 1: Registered Sex Offenders – these are offenders that are required to comply with notification requirements (often referred to as registration) set out in the Sexual Offences Act 2003. The majority of offenders remain subject to notification requirements for a fixed period of time designated by the sentence they have received. However offenders who receive 30 months or more imprisonment, or some types of extended sentence or Mental Health Act restriction orders will remain subject for life. In the period 1st April 2006 – 31st March 2007 there were 400 Registered Sex Offenders living in Hertfordshire. This is a reduction of 6.5% on the figures for the previous year. This reduction is considered to be due to the delayed effects of several legislative changes, together with normal population fluctuation within the county. Category 2: Violent or other sex offenders – generally this includes violent offenders sentenced to imprisonment for 12 months or more and sex offenders not required to register. However, this category also includes those detained under hospital or guardianship orders and those that have committed specific offences against children. All offenders in this category will be under the statutory supervision of the probation service. In the period 1st April 2006 – 31st March 2007 there were 251 violent and sex offenders living in Hertfordshire. Category 3: Other Offenders – offenders not in the first two categories by virtue of their offences but who are considered by the Responsible Authority to pose a risk of serious harm to the public. This judgement is based on two main considerations: whether the offender has been convicted or cautioned for an offence that indicates he/she is capable of causing serious harm to the public; and whether the offender can now be reasonably considered to pose a substantial and immediate risk of causing harm to the public. In the period 1st April 2006 – 31st March 2007 there were 81 violent and sex offenders living in Hertfordshire meeting this criteria.



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SMB Organisations and their Roles
The Responsible Authority Hertfordshire Probation, Hertfordshire Constabulary and the Prison Service consititute the Responsible Authority of MAPPA in Hertfordshire. The Strategic Management Board for the process consists of senior representatives from each of these three agencies together with senior representatives from the other agencies involved with the MAPPA process within the county. The Board meets quarterly to review practice within the county, formulates business and communication plans and addresses any strategic issues referred from level 2 and level 3. An audit sub group reviews cases on a regular basis and has a scrutinising function in the event that an offender subject to the process commits a serious offence. National Probation Service – Hertfordshire Area ■ Assists courts by providing information necessary for the sentencing of offenders. ■ Provides reports and assessments to assist the decision makers in the parole process. ■ Works alongside Prison Officer within HMP The Mount and other prisons. ■ Supervises offenders at liberty within the county who are subject to orders imposed by the courts. ■ Supervises those offenders released on licence back to the community from custodial sentences. ■ Provides both specialised work and/or programmes for offenders living in the community as appropriate to their needs and requirements. Hertfordshire Constabulary The Constabulary has a statutory obligation to work within MAPPA alongside the probation and prison service to protect the public from risk of harm posed by sex offenders, violent offenders and mentally disordered offenders. The Constabulary will work with other agencies to put in place multiagency arrangements dependent upon the risk posed an individual. The force is committed to adopting collaborative and innovative approaches with agencies to protect public safety. Prison Service The Prison Service holds many offenders subject to MAPPA and aims to assist the offender in addressing those risks whilst in custody, in conjunction with the Offender Manager. Regular monitoring and assessments of the risks posed are undertaken throughout the custodial period. HMP The Mount is a Category C Training establishment with 764 prisoners mainly from the London area. Among these there are some prisoners who have been identified as falling under the MAPPA arrangements. On arrival at HMP The Mount all prisoners are considered by the Public Protection Sifting Panel in order to establish the level of risk of serious harm to others, the level of risk of reconviction and the level of risk of self harm. The panel also ensures that each prisoner has a sentence plan with targets aimed to reduce any risk of serious harm. The risk levels are set by the Offender Manager of the Probation Service. Prior to release the Public Protection Coordinator will inform the relevant probation area of the release date of a prisoner subject to Public Protection. In cases of MAPPA Level 3 prisoners this notification will be sent 3 months before release in order to allow for release plans to be put together. Those prisoners who have been identified as high or very high risk of serious harm to others are given an Offender Supervisor, who will work together with the Offender Manager to ensure that the sentence plan is being implemented. There is also an Interdepartmental Risk Management Panel, which considers arisen. Hertfordshire County Council, Children, Schools and Families (CSF) Aims to help Hertfordshire children attain the best possible levels of education and development and to build their confidence, achievement, self-esteem and resilience. CSF does this by working closely with the children themselves, their schools and their families to offer quality advice, support and guidance. This will include working with police and other agencies to identify those who offend and present a risk to children. As well as supporting those children who have been victims of abuse. Adult Care Services (ACS) ACS has a lead responsibility for safeguarding vulnerable adults and works in partnership with the police and other agencies. ACS has a duty towards adults of all ages who may be vulnerable by disability where there would be a substantial risk to independence without a care and support service. Hertfordshire Partnership NHS Foundation Trust As part of its commitment to provide high quality Mental Health Services to Hertfordshire, the Trust’s Community Mental Health and Forensic Teams and Mentally Disordered Offender Workers are committed to supporting the work of MAPPA by providing mental health expertise and where appropriate assessment and access to treatment. Hertfordshire Youth Justice Service Hertfordshire Youth Justice Service is a county-wide service and thus co-terminus with the MAPPA area. The Service is represented on the Strategic Board and attends local meetings in line with Youth Justice Board guidelines. There are relatively few young offenders who require MAPPA oversight; most are managed by the multi-disciplinary Youth Offending Teams (YOTs). Following discussions with the newlyformed Safeguarding Board, the Children, Schools & Families department in the County Council and the MAPPA Board, in the spring of 2007 it was decided to pilot a Young Persons’ MAPPA and Young Sexual Abusers’ Panel to report back in December 2007. Managers have been identified to carry this forward and the pilot scheme is due to start in early autumn. Victim Support Hertfordshire As well as the provision of free and confidential emotional and practical support, Victim Support also campaigns for the rights and needs of victims and witnesses. For every offender there are victims and witnesses, our role on the SMB is to ensure those rights and needs are not lost within the MAPPA provision.



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Having served his sentence for indecency, a plan was needed to resettle the offender in the community.
As a result it was considered inevitable that his release would attract public interest.
The offender had been a respected school teacher prior to being convicted of indecency offences against boys in his care over a protracted period. Following conviction he received a sentence of imprisonment but continued to deny his offences and was supported in his stance by his family.

There was much publicity with public opinion split between those who believed him to have been rightfully convicted and those who could not accept the judgement. As a result it was considered inevitable that his release would attract public interest.

He was discussed at Level 2 meetings for 6 months prior to his release on licence in order to formulate licence conditions and a risk management plan to cater for the specific risks he posed. There were concerns that he posed a potential risk to previous victims who were still young and potentially very vulnerable and other young boys with whom he might come into contact. It was identified that there were young children within his family and that he intended to resume attendance at his local church.

Conditions were placed upon his licence including :■ ■ ■ ■

Specified address living with adult family members exclusion zone created to protect previous victims a prohibition from staying at an address with persons under 18 a prohibition from attending a different church

In addition a contract regarding his church attendance and involvement in groups was drawn up and agreed with him. He registered his details with Police as required and has complied with all conditions. He continues to be monitored and is now managed at Level 1.



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Keeping track of the country’s most dangerous offenders
What is VISOR? ViSOR, stands for Violent and Sex Offenders Register and is an intelligence database holding detailed information on Registered Sex Offenders and other MAPPA supervised offenders across the United Kingdom. It is used to store and share information and intelligence on those individuals who have been identified as posing a risk of serious harm to the public. What Does it Do? ViSOR is designed to support the process of MAPPA across and within areas. It means detailed information on dangerous offenders is instantly available to the professionals who need it. It aids both the management of such offenders within the community and Police enquiries into unsolved offences. What Does it Hold? Visor holds the records of offenders from the details of their offences, through their management both within the prison system and into the community. Assessments of their risks and reviews, together with personal information are consistently updated to give an up to date picture of the offenders lifestyle, the risk they pose and current management plans. Who Uses it? ViSOR is used by all police forces in England, Wales, Scotland and Northern Ireland, together with HM Forces. The National Offender Management Service (NOMS) is in the process of deploying the system to prisons and probation offices. How Does it Help? ViSOR holds a shared database of information and intelligence that is available to professionals wherever an offender travels and however often they move from area to area. This ensures all information is instantly available to the specialist staff who need it. Can the Public Have Access? The system is classified as Confidential under the Government Protective Marking Scheme ensuring information stored is protected. It is used by trained staff involved in public protection work. Although the general public have no direct access to the system, relevant information is disclosed when assessed to be necessary to protect any person and such disclosures are made in a controlled way.

We are the public voice on MAPPA
“We are the Lay Advisors for Hertfordshire MAPPA, Tony Keen and Janet Ball. We were appointed together in May 2006 and so have been in post for one year. We have quite different backgrounds, Janet having spent most of her career in education, moving on to business and Tony has a commercial background. Our role as Lay Advisors is to attend quarterly SMB meetings and to act as a critical friend to the professionals who are involved in the MAPPA process. We bring an “ordinary person” perspective to discussions and hope that our experience in other areas will be of benefit. We are not there to advise professionals in their particular areas of expertise, but to ensure that decisions and processes are clear, defensible and delivered. In order to fulfil this role effectively, we need to develop a clear understanding of the issues surrounding Public Protection and how all the individual agencies contribute towards the MAPPA process. In our first year we have been gaining knowledge through attending training events both national and local, and by meeting with individuals and organisations who have patiently put up with our constant barrage of questions. We have provided feedback at training events as well as contributing towards the Serious Further Offences Review Group, voicing ‘what if’ and ‘why’ questions that would be of concern to the public. We are also involved in setting up an audit system to measure the effectiveness of the MAPPA process. In our second year in post we will be involved in the setting and implementation of an effective

In order to fulfil this role effectively, we need to develop a clear understanding of the issues.
communication strategy. It is important that the public and all stakeholders at every level have an understanding of MAPPA, its purpose and how it functions. The challenge will be to increase public knowledge without being a scaremonger. The job of Lay Advisor is often demanding, sometimes frustrating - but always rewarding: we both feel very fortunate in having been given this opportunity to make a real contribution towards such a key issue as public safety.”

The public is represented on MAPPA’s Strategic Management Board. Two lay members speak up for Hertfordshire when decisions are made at the highest level.

Lay Advisor Anthony Keen

Lay Advisor Janet Ball



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The Integrated Domestic Abuse Programme (IDAP)
Helping offenders not to re-offend
The Integrated Domestic Abuse Programme (IDAP) is a successful community based group work programme designed to reduce re-offending by adult male domestic violence offenders. Managed by Hertfordshire Probation staff, the programme is based on a project developed in the USA, it places a priority on women’s and children’s safety. IDAP is delivered within the Multi Agency Public Protection Arrangements (MAPPA). Reports to the court from the Probation Service, prior to sentencing, will indicate whether an offender is suitable to attend this programme. What does it involve? The programme challenges the use of violence by the perpetrator to establish power and control over his partner. There are nine modules to the programme, with three weeks devoted to each theme. The nine themes are:
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Making the victims safe A member of the Probation Service is dedicated to contacting all the victims of the offenders on the programme. Their job is to ensure that the woman is as safe as possible from her partner. They ensure that a contingency plan is in place, that the victim knows who to contact in emergencies and that she has supportive people around herself and her children. Each offender will be assessed for changes in attitude. This will be considered alongside feedback from victims and a record of police call-outs to any subsequent domestic violence incident.

Non-violence Non-threatening behaviour Respect Support and trust Accountability and honesty Sexual respect Partnership Responsible parenting Negotiation and fairness

During the programme each offender will attend a total of 27 sessions over a 36 week period. Following the sessions, the offender also completes four sessions devoted to reducing re-offending.



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Statistical Information for Hertfordshire:
Period: 1st April 2006 – 31st March 2007
Category 1: MAPPA Offenders: Registered Sex Offenders (RSO)
The number of Registered Sex Offenders living in Hertfordshire The number of RSOs per 100,000 head of population The number of RSOs by Basic Command Unit (BCU) The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement between 1st April 2006 and 31st March 2007. The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) SOPOs granted and (c) full SOPOs imposed by the courts between 1st April 2006 and 31st March 2007. The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification imposed by the courts between 1st April 2006 and 31st March 2007. The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts between 1st April 2006 and 31st March 2007. 400 38 West 117 Central 118 East 165

MAPPA Strategic Business Plan 2007-08
Mission Statement “Hertfordshire MAPPA will develop and implement a multi-agency strategy that effectively protects the public from offenders who present a risk of serious harm.”

27 (a) 19 (b) 2 (c) 16 (a) 0 (b) 0 (c) 0 (a) 0 (b) 0

Category 2: Violent offenders and other sexual 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 Hertfordshire between 1st April 2006 and 31st March 2007.


Category 3: Other Offenders (Oth0)
The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) living in Hertfordshire between 1st April 2006 and 31st March 2007.


Offenders managed through Level 3 (MAPP) & Level 2 (local inter-agency management)
The number of offenders in each of the three categories above: (a) RSOs, (b) violent and other offenders and (c) other offenders who have been managed through the MAPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2006 and 31st March 2007. Level 3 (a) 8 (b) 34 (c) 3 Level 2 (a) 52 (b) 199 (c) 78



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MAPPA Development
Strategic Aim
To provide clear strategic links with CJB, LSCB,MDO strategic group and Adult Care Services through MAPPA SMB and links with strategic plans. Make explicit links through SMB members who will feed back details through SMB and draw up a protocol for information sharing. Identify link members in May 2007 and begin report backs in July 2007. Joined up MAPPA strategic planning informed by key relevant bodies. Produce signed protocol for information. To collate data on outcomes, reasons for de-registering MAPPA cases. Revise database by 30th June 2007 to include reason for deregistering offender. Additional resource required to revise database. MAPPA SMB to receive reports on outcomes which can be included in next year’s annual report.

Delivery Plan Resource Outcome


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To become outcome and victim focussed by collating information on good performance in public protection as measured by preventing further serious incidents.

To ensure the nomination and attendance of key individuals from statutory agencies to the SMB, level 2 and level 3 MAPPA.

Invitation to the SMB and MAPPA meetings of Job Centre Plus, the Learning and Skills Council in addition to current agencies.

Communication from Chair by May 2007.

Attendence to be agreed.

Ensure that correct attendees are identified and invited. MAPPA SMB item for May 2007. Monitoring reports on all attendances. 90% attendance at MAPPA SMB and level 2 and 3 by October 2007. Working group by July 2007 to report to SMB for 31st December 2007.

Measured through minutes.

Part of MAPPA manager’s report to include attendance report. Agreed action plan in place for January 2008.

To incorporate MAPPA cases within Hertfordshire Criminal Justice Board Offender Accommodation Strategy. Set up a working group chaired by the SMB Housing representative.

Monitoring and Evaluation
Strategic Aim
MAPPA SMB to: ■ Publish revised Annual Report and Business Plan ■ Carry out anaylsis of MAPPA offenders who commit serious further offences or where multi-agency procedures require improvement and disseminate learning points. ■ Review a sample of cases at SMB level to check reobustness of practice and integrate learning and establish a quality assurance cycle. ■ Ensure that MAPPA level 1 cases are recorded and managed in accordance with national guidance. Probation and Police lead agencies assisted by DTC agencies. Implementation of SFO case review sub-group set up. Meet national milestones. SMB chairs and selected SMB members. In place for April 2007 MAPPA Manager and sub group members. A multi-agency document with wider breath of contributions and less of a probation feel. Reviews contributing to multiagency learning and development. Clear learning points to be taken account of.

Delivery Plan




Agree instrument for the purpose and carry out one pilot exercise and sample exercise.

Instrument for May SMB. Pilot review for June. Full sample November.

Standard instrument. Written review with learning points. Agreed measure of quality.

Recording to be part of VISOR roll-out.

In accordance with national roll-out.

Accurate up to date recording of MAPPA level 1 on VISOR.


Herts Mappa 32pp 17.08.07


Communication and Strategic Partnerships
Strategic Aim
The Responsible Authority for MAPPA to develop communication strategy. RA/Probation Comms/Police PR. RA sub-group to devise and implement communications strategy identifying opportunities to work constructively with media to improve local public understanding of MAPPA. RA sub-group to review Agency Business Plans and propose possible objectives to incorporate into RA agency business plans for 2007-08. October 2007. RA sub-group. MAPPA SMB to identify which leaflets are needed and inform communuications sub-group. Incorporation of this commitment into communication strategy. July 2007. MAPPA SMB. October 2007. MAPPA SMB. June 2007

Delivery Plan Resource Outcome



Agreed strategy to deal with: SFOs Public Protection Concerns Good news stories

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Integration of MAPPA annual business plan into RA agency business plans.

At least one MAPPA objective in each agencies business plan for 2008-09.

To produce a range of public information leaflets for key groups.

Produce leaflets for 28th February 2008.

Clear statement of commitment of SMB and operational staff to attend national conferences and disseminate good practice in their agencies.

Commitment will be demonstrated by contributions made.

Strategic Aim
To develop and implement a MAPPA training plan which incorporates: ■ a shared perspective on risk of harm ■ Induction for new members ■ Update training on new requirements Attend National MAPPA Managers conference and lay advisors conference. Feedback improvement possibilities. Attend the regional strategic MAPPA meeting and contribute to the regional plan. Report to MAPPA SMB MAPPA manager, lay advisors Objectives to be taken forward.

Delivery Plan
Set up a training advisory group as part of SMB.

Group set up for June 2007. Draft 3 year plan with MAPPA SMB for September 2007. Report on training achieved for every MAPPA subsequently.

Members time and agency resources for delivery

Agreed training plan with delivery in accordance with the plan.

MAPPA manager, SMB chair.

Measured by levels of attendance and noting contributions at MAPPA SMB.


Herts Mappa 32pp 17.08.07



Page 31

Children Schools and Families



Hertfordshire Safeguarding Children Board

Address Hertfordshire County Council County Hall Pegs Lane Hertford Herts SG13 8DF

Phone 01992 588285

Hertfordshire County Council 01438 737500 Client Services PO Box 153 Stevenage SG1 2GH

Hertfordshire Adult Care Services

Address Hertfordshire County Council Adult Care Services Client Services PO Box 153 Stevenage SG1 2GH

Phone 01438 737400

MAPPA Manager



Hertfordshire Probation Area 01438 747074 Swingate House Danestrete Stevenage Herts SG1 1XH

Hertfordshire Constabulary

Address Hertfordshire Constabulary Police Headquarters Stanborough Road Welwyn Garden City Herts AL8 6XF

Phone 01707 354000

Prison Service

Address HMP The Mount Molyneaux Avenue Bovingdon Hemel Hempstead Herts HP3 0NZ

Phone 01442 836300

Hertfordshire Partnership NHS Foundation Trust

Address 99 Waverley Road St Albans Herts AL3 5TL

Phone 01727 897700

Victim Support

Address The Lodge c/o Police Headquarters Stanborough Road Welwyn Garden City Herts AL8 6XF

Phone 01707 354627

Hertfordshire Probation Area

Address Graham House Yeoman’s Court Ware Road Hertford Herts SG13 7HJ

Phone 01992 504444




Youth Justice 01992 556324 Hertfordshire County Council County Hall Pegs Lane Hertford Herts SG13 8DP