Humberside Police & National Probation Service - Humberside

Multi-Agency Public Protection Arrangements Annual Report 2003–4

Contents
Foreword What are the MAPPA (Multi Agency Public Protection Arrangements)?
Are all dangerous people covered by the MAPPA? Are all offenders covered by the MAPPA? How are those offenders who come under the MAPPA dealt with? Why aren’t all these offenders very high risk? How are offenders managed under the MAPPA? What are Risk Management Plans? Restraining Orders Sex Offender Orders Disclosure Recall to prison

What about the victims of serious crime? Oversight of the MAPPA - The Strategic Management Board Key Progress and Achievements over the last year.
Serious Further Offences procedures Appointment of MAPPA Co-ordinator

The coming year - Strengthening the MAPPA
The Prison Service becoming part of the Responsible Authority The Duty to Co-operate Appointment of Lay Advisers to the Strategic Management Board Other legislative measures The focus on victims ViSOR

Statistics Agency Contact Points

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Foreword
The protection of the public from dangerous offenders in the community is a priority for us all. A key element in providing such protection is joint agency work undertaken by Police, Probation and other key agencies such as Social Services, Health, Education, Housing and the Prison Service. This work is co-ordinated and developed under the auspices of ‘Multi Agency Public Protection Arrangements’ (MAPPA). MAPPA is a systematic approach intended to ensure that dangerous offenders are managed, on a multi agency basis, in order to reduce the risk of such individuals re offending and thereby causing harm. These arrangements are enshrined in law with the Police, the Probation Service and, since 1st April 2004, the Prison Service having the statutory responsibility. As part of the framework of these arrangements we have a responsibility to produce an Annual Report outlining our activity during the year. This report is the third such report and we are pleased to say that our work in this area has developed in line with Home Office guidelines and general good practice from around the country. This year has, in particular, seen the further development of co-operative links between agencies and practitioners. This has been supplemented by the establishment of a Strategic Management Board whose role it is to oversee, review and develop our existing arrangements. We are also pleased to say that Humberside Police and National Probation Service – Humberside have now appointed a full time MAPPA Co-ordinator who has responsibility for day to day monitoring of this work and for providing a source of advice and consistency across the Humberside area. In respect of the cases dealt with under Humberside’s MAPPA, this has been a demanding year with Humberside managing a number of cases which have had a national profile. In terms of the future we are looking towards a greater involvement by the Prison Service and the introduction of Lay Members to the Strategic Management Board. We will also begin to make use of the new Sex Offences Act 2003 which introduces fresh provisions for the registration of sex offenders and the ability to obtain a greater range of preventative orders. Overall this has been a demanding year for all those involved in this area of work and we look forward to continuing our progress and good work over the next year.

David Westwood,
Chief Constable Humberside Police 2

Jane Geraghty
Chief Officer National Probation Service Humberside

What are the MAPPA?
Sexual and violent offences are dreadful crimes that deeply affect the lives of victims and their families and inspire fear in local communities. Their impact can be profound and long-lasting, leaving victims feeling unsafe even in their own homes. The Government regards protecting the public from such sexual and violent crimes as one of its highest priorities. The Multi Agency Public Protection Arrangements (MAPPA) form the basis of that public protection through a genuinely multi-agency partnership throughout the 42 Police and Probation Areas of England and Wales. They developed as formal arrangements out of local initiatives following legislation in 20001 and are now defined by the Criminal Justice Act (2003) which came into effect on 5th April 2004. New national guidelines on implementing MAPPA were introduced at the beginning of this review year2 . The MAPPA contribute significantly towards the integration of the work of a number of criminal justice agencies together with social care agencies such as health, social services and housing, in order to reduce serious offending, minimise serious harm to the public and assist in the early detection of repeat offenders. Over the period of this review, police and probation have had a statutory responsibility to oversee these arrangements as the “responsible authority” under the relevant legislation. From April 2004 the prison service joined us as part of the responsible authority. In Humberside we undertake this joint work at two levels, through Local Risk Management Meetings (LRMMs, see later) and through Multi Agency Public Protection Panels (MAPPP, see later). The bulk of the work in regard to
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administering the MAPPA is undertaken by the four Police Risk Management Units based in Hull, Scunthorpe, Grimsby and Market Weighton and the Probation Intensive Supervision Teams dealing with the high and very high risk offenders based in Hull, Scunthorpe, Grimsby, Beverley, Goole and Bridlington. Of course they could not carry out their work effectively without cooperation and input from other departments in their services or from other agencies. The MAPPA are there to ensure the quality, timeliness and consistency of that cooperation and input.

Are all dangerous people covered by the MAPPA?
Currently the MAPPA only applies to certain categories of individuals who have already been convicted of an offence. Some potentially dangerous people are not known to any local agencies, including police or probation. Therefore, although the MAPPA represents a significant strengthening of public protection, they cannot provide an absolute protection. Research in 2002 has shown that 32% of the first time murderers and 36 % of serious sexual offenders had no previous convictions.3 Operation Ore, the investigation into child pornography on the internet, which you may have heard of, revealed that nationally a “significant proportion” of the 7,000 UK subscribers to a particular group of internet sites offering access to images of child abuse were previously unknown to police, in Humberside this figure was 80%.

Criminal Justice and Court Services Act 2000. The MAPPA Guidance (2003) Home Office 3

Soothill, K. Francis, B. Ackerley E. and Figelstone, R (2002) Murder and Serious Sexual Assault: What criminal histories can reveal about future serious offending. Police Research Series. Paper 144.

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Are all offenders covered by the MAPPA?
Not all offenders are covered by the Multi Agency Public Protection Arrangements so effective multi-agency public protection needs to start with the efficient identification of those relevant offenders. Prompt and accurate identification then allows all agencies to gather and share relevant information and choose the appropriate risk management strategies. Three categories of offenders are defined as falling within the remit of the MAPPA; Category 1: Registered sex offenders, i.e. those convicted or cautioned for certain sexual offences who are required to register with the police. Violent and other offenders who generally have received a sentence of imprisonment of 12 months or more. Other offenders not in either of the above categories but who are considered to pose a risk of serious harm to the public. The inclusion of these offenders under the MAPPA is based on two considerations. First it must be established that the individual has a conviction for an offence which indicates they are capable of causing serious harm to the public. Secondly it must be reasonably considered that they may cause serious harm to the public.

How are those offenders who come under the MAPPA dealt with?
When offenders have been dealt with by the courts their assimilation back into the community is usually, but not always, overseen by the National Probation Service. This may start as soon as the offender leaves court if they have been made subject to a community penalty such as a Community Rehabilitation Order or it may be delayed until the offender is released from prison if a custodial sentence is given. At the time an offender passes through the court process an assessment of the risk they present to the public in general or any individual in particular will usually have been undertaken by the probation service. If they are given a custodial sentence then that assessment will be reviewed during the time they are in prison. The review will take into consideration information from prison and probation staff involved in any work they have undertaken on their offending behaviour whilst in prison, information from the police, the probation Victim Liaison Officers and the home probation officer so that when the offender is released to the community, agencies working with them will have an up to date indication of the risk they pose. Some offenders who do not come to the initial notice of the probation service are assessed by the police, e.g. Registered Sex Offenders moving into the area. Risk assessment in our area of work can be considered as calculating how likely an event is to occur and, if it does, the likely impact of that event, upon whom or what and with what consequences. The impact we are considering is serious harm to members of the public in general or to individuals in particular, that is harm which will be life threatening or traumatic and from which recovery, whether physical or psychological, can be expected to be difficult or impossible.
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Category 2:

Category 3:

The statistics at the end of this report show the number of offenders in the three categories we have in Humberside.

Using the recognised risk assessment tools of the particular agency, offenders are assessed as presenting low, medium, high or very high risk of causing harm. In essence these levels of risk are defined as; Low: there are no significant current indicators of risk of harm there are identifiable indicators of harm. The offender has the potential to cause harm but is unlikely to do so unless there is a change of circumstances. there are identifiable indicators of risk of serious harm. The potential event could happen at any time and the impact would be serious. there is an imminent risk of serious harm. The potential event is more likely than not to happen and the impact would be serious.

A young offender was due for release following a sentence for a serious assault of a stranger. During his time in custody he had taken a prison officer hostage. Intelligence from prison indicated that he had made threats against police officers on release. The young man's background was one of little adult guidance and support and constant conflict with the Criminal Justice System. Previous attempts at input by the caring services had had little impact on his behaviour. Prior to release a Level 3 MAPPP was held. All police officers in the area of resettlement were informed. Firm boundaries were laid down by the probation service for the offender in regard to his supervision on release but a package of support for him was also established. He was instructed to reside in a Probation Hostel, with stringent curfew conditions and rules regarding his behaviour, until the local housing authority could find suitable accommodation in the community. Additional steps in regard to the safety of the hostel staff were taken. The young man has been out of custody for some time, and although he did initially find it difficult to comply with the rules of the hostel, he did respond positively to warnings about his behaviour, and to date has not reverted to re-offending.

Medium:

High:

Very High:

The purpose of the MAPPA is to establish arrangements for the effective management of that risk.

Why aren’t all these offenders very high risk?
Remember, risk is about the likelihood of something happening and the consequences or impact if it does happen. As past behaviour is a predictor to future behaviour, all offenders must be considered as presenting some risk of re-offending and causing harm. However the degree to which they pose a risk and the seriousness of any consequences of any further offending is something which is considered in the risk assessment process. Some may be considered as presenting a high risk of reoffending but the consequences of that behaviour, although perhaps causing nuisance, cost or indeed minor harm to the victim is not serious harm as we have defined it.
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The majority of individuals who are assessed as possibly being a risk to others, willingly comply with any arrangements made to help them overcome problems and issues which led to offending. Perhaps their risk is to a specific individual and there can now be no contact with that

individual. Or it relates to particular circumstances, which no longer exist. The offender may genuinely want to change the behaviour which led to their offending and willingly undertakes programmes provided by the probation service. These programmes are in the main “cognitive-behavioural programmes” which have been identified and evaluated as the most effective treatment of both sexual and violent offenders, looking at the way a person’s thinking and behaviour are connected, and how changing one can affect the other.

Level 2:

Local inter-agency risk management. This level of management is be used where the active involvement of more than one agency is required. In Humberside we use the acronym LRMM, for Local Risk Management Meetings for this level.

These meetings are held monthly in the local Division dealing with the offender – i.e. Hull, Scunthorpe, Grimsby and Beverley. Level 3: Multi Agency Public Protection Panels (MAPPPs) This level deals with those “critical few” cases which are assessed as being a high or very high risk of causing serious harm; AND they present risks that can only be managed by a plan which requires co-operation at a senior level due to the complexities of the case and/or because of the unusual resource commitments required. Additionally cases which are exceptional because of the high media scrutiny or public interest and there is a need to ensure public confidence in the criminal justice system is sustained are dealt with at this level.

How are offenders managed under the MAPPA?
The structure of risk management is intended to enable resources to be deployed to manage the risks the above assessments have identified in the most efficient and effective manner. Risk management is defined as harm reduction either through the reduction of the likelihood of a risk occurring or the reduction of its impact should it occur. There are three levels of risk management used under the MAPPA. Although generally the higher the assessed level of risk the higher the level of management required, this need not always be the case. The risk management structure is based on the principle that cases should be managed at the lowest level consistent with providing a defensible risk management plan. The three levels are; Level 1: Ordinary risk management. This is the level used in cases in which the risks posed by the offender can be managed by one agency without significantly involving other agencies.

You can see from the statistics that of all the cases considered under the MAPPA only 8 have needed to be managed by a full Level 3 MAPPP. To date these MAPPPs have been held locally to the Division dealing with the offender – i.e. Hull, Scunthorpe, Grimsby and Beverley and chaired by a local senior police or probation officer. However, in order to bring
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The majority of cases supervised by the police or the probation service come into this level.

a more consistent approach to this work and to help maintain a central overview of all high and very high risk offenders in our area, future MAPPPs will be held centrally and be chaired by the police or probation Senior Management Team member having responsibility for the MAPPA.

Internal restraints are the offender’s selfmanagement, often learned through participation in offending behaviour programmes. External restraints can take the form of conditions placed on the offender to do or not do some specific activity. Some of these controls are set in place at the start of our work with an offender in the community e.g. conditions can be attached to a Community Rehabilitation Order by the court, committing the offender to attend a programme or see a psychiatrist. Prior to an offender coming out of prison on a ”licence”, conditions can be attached to that licence laying down certain activities the offender must or must not do, places they must not go or contacts they must not make. Other external restraints are;

What are Risk Management Plans?
Risk management plans lay down specific objectives for the management of the risk the offender presents. Responsibilities and tasks are clearly defined and firm timetables established. The plan needs to be able to deal with changing circumstances of the case and should also integrate what are described as internal and external restraints on the offender. A predatory sex offender against young boys was recalled to prison from this area when his behaviour became such that the risk he presented was no longer manageable in the community. He was subsequently released from prison without any form of statutory supervision and decided to live in a coastal town of another area. Prior to his release police and probation officers from Humberside attended a MAPPP held in the new area to appraise that area of the risk he presented. The offender was monitored following his release and was soon observed to be frequenting areas where children regularly played and demonstrating behaviour that again gave cause for serious concern about the safety of those children. Given the information they had already been provided with, and following further liaison with police and probation officers from Humberside, the new area was able to apply for and successfully obtain a Sex Offender Order.

Restraining Orders
Two Restraining Orders were granted against offenders subject to the MAPPA. These Orders are made at the time of sentencing and place restrictions on an offender’s behaviour where this is necessary to protect the public in general or a particular individual from the possibility of serious harm from that offender. Other controls have been applied at a later stage if the offender’s behaviour indicated that the risk they present is increasing.

Sex Offender Orders
Sex Offender Order can be taken out at any time where it can be proved that the subject has been convicted of certain sex offences and there is reasonable cause to believe that the Order is necessary to protect the public from serious harm from the subject. One Sex Offender Order was successfully applied for in our Area. Both of these types of Order will be replaced by the Sexual Offences Prevention Order under the Sexual Offences Act 2003 when that act comes into force4.
Provisions of the Sexual Offender Act 2003 will commence with effect from1st May 2004. 7
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Two boys aged 2 and 11 were reported missing by their mother. Information provided by the mother to the Police Missing Persons Officer contained a name of a man known to the local Risk Management Co-ordinator as being a registered sex offender with convictions for offences against young boys and subject to MAPPA management. Quick checks confirmed suspicions and police attended the address of the offender where the boys were found safe and well. The boys were unharmed and quite happy but from the mans behaviour and the circumstances in which the children were found it was clear that grooming to enable abuse was taking place. Within two hours the Probation Service had arranged for the man to be recalled to prison. Following the offenders eventual release risk assessments by the police and probation services indicated that he still posed a high risk to children and therefore a successful application was made to the Courts for a Sex Offender Order

Great caution is exercised when making such a disclosure and it is seen as an exceptional measure as the disclosure may be to individual members of the public. If such a course of action is required it is always as part of a risk management plan, which has been agreed at either of the two highest levels of MAPPA management, i.e. LRMMs or MAPPPs.

A very high-risk registered sex offender moved into the area from another county. Although he was on a Community Rehabilitation Order and supervised by probation, his previous convictions were concerning as he had on one occasion entered a primary school to assault a child. A level 3 MAPPP was convened to include a representative of the Local Education Authority. The offender was advised of this multi agency approach following which he consented to restricted, but relevant, disclosure being made to a number of schools within the area. He also agreed to his voluntary exclusion from four neighbouring villages. Joint police and probation visits were arranged and the subject remains fully cooperative.

Disclosure
There may, exceptionally, be some cases where management of an offender’s risk in the community cannot be carried out without the disclosure of some information to a third party outside of the usual MAPPA agencies. This may be, for example, where an employer, voluntary group organiser or church leader has a position of responsibility or control over the offender and other people who may be at serious risk from the offender. Disclosure to them of certain information about the offender may be the only way to manage that risk. Wherever possible the situation would be discussed with the offender and voluntary disclosure encouraged, with probation and/or police supporting them in this.
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Recall to prison
An ultimate external restraint for offenders who are subject to supervision under “licence” following their release from prison can be a recall to prison if they break their licence condition or it is felt the risk they present is becoming unmanageable in the community. Three offenders subject to the highest level of management, Level 3, were recalled to prison during this last year.

What about the victims of serious crime?
The probation service has a statutory responsibility to contact all victims of sexual and violent crime where the perpetrator has been sentenced to 12 months or more in prison5. In our area we have 2 specialist Victim Liaison Officers in the probation service covering the two geographical areas north and south of the Humber. The duties of those officers are to;

organisations better able to deliver this e.g. Social Services – child care, Victim Support and NCH, the children’s’ charity. A man was sentenced to a long term of imprisonment for the offence of attempted murder. The victim was a female with whom he was having a relationship and the offence occurred when she tried to end the relationship. As well as any psychological impact, the offence perpetrated against the victim caused life threatening injuries and has left permanent scarring. The Victim Liaison Officer from the probation service established victim contact and the views and concerns of the victim were ascertained. These were shared with the offender's supervising probation officer and, due to the assessed high risk posed to the victim, the case was referred to the MAPPA. Following Level 2 Local Risk Management meeting under the MAPPA a 'package' of measures was agreed to manage the risk posed to the victim upon the offender's release. These included; a) Agreement by local police to install a panic alarm in the victims house, b) Placement of the offender in a local probation hostel on a temporary basis then moving him on to a hostel out of the area. c) Establishing an exclusion zone as a condition of his release licence. d) Establishing strong links of communication between the areas involved in the management of the offender. Following the offender's release the victim has stated that she has not had any form of contact from the offender and is greatly appreciative of the way the risk the offender poses has been managed.

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Make contact with relevant victims, Consult the victim about the release arrangements for the offender and make the victim’s views known to the supervising probation officer, the local MAPPA co-ordinator, the prison authorities and, where relevant, the parole board; Make recommendations about licence conditions or other aspects of the offender’s release; Advise probation colleagues and the MAPPA co-ordinator about any victim concerns relevant to the management of the individual offender Keep victims informed about any significant developments during sentence or after release, including notification of release dates and any additional measures being taken to increase their safety.

Naturally, it is up to victims to decide whether they wish to take up the offer of contact with the probation service and, if they do, how much and at what stages. The duration of contact with individual victims can last for several years. The probation service does not offer specialised counselling in regard to the physical and emotional effects the crime may have had on the victim, this is left to
Criminal Justice and Court Services Act (2000) sect. 69. 9
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Therefore, although the primary focus of the MAPPA is properly placed upon the risk and behaviour of the offender as you can see from the above, the victims’ concerns are considered and reflected in risk assessments and risk management plans under the MAPPA.

supervision of those level II offenders. Representatives now attend these meetings from police, probation, Social Services Child Protection, Community Psychiatric Service, Jobcentre and local colleges This commitment to “active participation” by other agencies in managing the offenders we work with has been fostered through local negotiation and contact. In developing this participation we have successfully preempted requirements introduced by the two main influences over the last 12 months on the way we carry out this work, the MAPPA Guidance already mentioned and the Criminal Justice Act 2003. Firstly this commitment from the agencies and the co-operation we have has enabled most cases considered to be dealt with at Local Risk Management Meeting level. This is consistent with the aim of managing at the lowest level. This practice has confirmed what research already indicates, that public protection is significantly strengthened by a collaborative approach to addressing those factors (such as accommodation, employment and meeting health care needs) which are critical in determining whether an offender will reoffend. It is now not uncommon for agencies other than police or probation to refer cases to the MAPPA and thereby access the support other agencies can provide. Secondly, the latest Criminal Justice Act places a “Duty to co-operate” on certain agencies from April this year. Those agencies are the Youth Offending Teams, Social Services and Housing, Education and Health all of whom are in fact involved already in Humberside.
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Oversight of the MAPPA The Strategic Management Board
Oversight of the arrangements put in place to manage the offenders falling under the MAPPA is undertaken by a Strategic Management Board. This group currently comprises senior managers from probation police, prison service, social services, health and housing In an area such as Humberside multi agency work is not always as simple as we would wish. Though the police and probation services share a common boundary, Humberside covers the unitary authority areas of North East Lincolnshire, North Lincolnshire, the East Riding of Yorkshire and the City of Kingston-upon-Hull. At the beginning of this review year there were 4 Strategic Management Boards, one for each of the 4 Unitary Authority/Police/Probation Divisions. In early 2004, again to provide consistency and a central awareness of the MAPPA process across the four Unitary Authorities, a Humberside Area SMB was constituted to replace the 4 local ones.

Key Progress and Achievements over the last year.
A major achievement in the way the MAPPA functions in your area is the steady increase in the number and variety of agencies which now regularly participate in Local Risk Management Meetings to oversee the
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Serious Further Offences Procedures
In March 2004 a notification, screening and review procedure for serious further offences committed by offenders currently being supervised by the probation service was introduced nationally. The purpose of this is to ensure that a robust system of
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Criminal Justice Act (2003), sect. 326.

scrutiny is in place for these offenders so that any failures can be identified and rectified, but also that good practise, not withstanding the commission of a serious further offence, is recognised and supported. The trigger factor for this process is the seriousness of the further offence committed not the level of supervision or risk management being applied so this is not purely a MAPPA initiative, however scrutiny of these case leads to learning and possible changes in service delivery relevant to all offenders.

(ii)

formalising the involvement of other agencies which can make an important contribution to helping offenders not to re-offend - the Act imposes a ‘Duty to Co-operate’ with the Responsible Authority upon: Local authority Housing, Education and Social Services Health Service bodies Jobcentres Plus Youth Offending Teams Registered Social Landlords which accommodate MAPPA offenders, and Electronic Monitoring providers The appointment by the Home Secretary of two members of the public (‘Lay Advisers’) in each Area to assist in monitoring the effectiveness of the MAPPA.

• • • • • •

Appointment of MAPPA Co-ordinator
The National Probation Service – Humberside and Humberside Police appointed a Multi–Agency Public Protection Arrangements (MAPPA) Co-ordinator in April 2004. The person appointed is a Senior Probation Officer with experience of managing high risk violent and sexual offenders in the community. The anticipated contribution of this role will include providing a central point of contact within the Humberside area and, by coordinating local inter-agency risk management meetings and Multi-Agency Public Protection Panels, ensuring a consistent, integrated approach towards sharing information on high and very high risk offenders, thus enabling us to work cohesively with other agencies to protect the public and victims of crime.

(iii)

Prison Service becoming part of the “Responsible Authority”
The Criminal Justice Act 2003 puts the involvement of the Prison Service in the MAPPA on a statutory footing by including it in the Responsible Authority, along with the police and probation services. As well as bringing a prison service involvement to the Strategic Management Board overseeing the MAPPA, this initiative is seen as a strengthening of the existing liaison with prisons in regard to sexual and violent offenders.

The “Duty to Co-operate”

The coming year Strengthening the MAPPA
The national development of the MAPPA over the coming year will continue to concentrate on implementing the MAPPA provisions of the Criminal Justice Act (2003). These provisions came into force on 5th April 2004 and help strengthen the MAPPA by: (i) making the Prison Service part of the ‘Responsible Authority’ with police and probation;
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Work on the duty to co-operate has been taken forward by two separate and complementary initiatives. First, in many areas the duty to co-operate formalises what has already begun to be established as good practice. The statutory basis of the duty will help ensure a more consistent engagement of all these agencies across England and Wales. Secondly, the relevant Central Government Departments and the Welsh Assembly have been involved in developing the Guidance which the Home Secretary issued on the duty to co-operate.

The reform of the way in which child protection is organised, following the public inquiry into the tragic death of Victoria Climbie, will reinforce the importance of effective joint working between different agencies which the MAPPA has itself promoted.

introduce new sentences for ‘dangerous’ offenders which will keep them in custody until they no longer pose a serious risk to the public. The Sexual Offences Act overhauls the many antiquated sexual offences and plugs loopholes in the law. In updating sexual offences, it strengthens the law on rape and on sex offences against children. It introduces new offences of ‘sexual grooming’ and extends the protection from exploitation in prostitution or pornography to children up to the age of 18. For the first time, it will be an offence to buy sexual services from a child below this age, targeting those who abuse children in this way. The Sexual Offences Act also strengthens the sex offenders register, which has proved a valuable means by which the police can monitor convicted sex offenders within their area, and introduces new civil orders to help prevent further offences from being committed.

Appointment of Lay Advisers to Strategic Management Board
The introduction of an element of public scrutiny of this often complex and sensitive area of public protection through the appointment of two Lay Advisers in each Area, has been carefully and successfully trialed and evaluated. As Home Office Minister Paul Goggins said: “Lay Advisers will play a vital role…We are committed to giving them not only an insight into how this work is carried out but, more importantly, an opportunity to question what is being done and why.” These Lay Advisers will assist in the MAPPA review functions and not be involved in operational decision making. The involvement of such advisers has been piloted in certain areas and their role has proved valuable as “critical friends”, informed observers who will ask questions which professionals closely involved in the work would not necessarily think of asking. They are not to be seen as representatives of the community in the same way perhaps as elected councillors are, they will bring to the Board their understanding and perspective of the Area but will have no role in reporting or briefing the community except as part of the Board’s own communication exercises. In the coming year Lay Advisers will be appointed to the Board in Humberside.

The focus on victims
In addition to all this work to tackle offenders, the Government has rightly placed much greater emphasis upon meeting the needs of victims. The victims of sexual offending are identified as a priority group within the National Victims and Witnesses Strategy. This strategy which was published in July 2003, aims to improve support and protection for victims and witnesses by:

reducing the adverse effects of crime on victims and witnesses, and preventing secondary victimisation; encouraging more victims and witnesses to come forward; and by offering more options to victims and witnesses, including alternatives to attendance at court.

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Other legislative measures
In addition to this work to strengthen the MAPPA, the Government has also begun to strengthen other statutory provisions, the most significant of which the Sexual Offences Act (2003) and the measures to
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All these initiatives will help toward another key Government target - that of improving public confidence in the criminal justice system.

The Government is underpinning this work in its Domestic Violence, Crime and Victims Bill, which is currently going through Parliament. It will create a new independent post of Commissioner for Victims and Witnesses to be a champion/voice for all victims of crime and a new statutory Victims’ Code of Practice (to be implemented in April 2005) which will build on the existing Victims’ Charter and set out specific responsibilities that each criminal justice service agency and Victim Support must provide to victims.

Statistics
Typically the Probation Service in Humberside supervises some 2300 individual offenders in the community at any one time. Additionally they have responsibility for another 1200 offenders sentenced to imprisonment who are either in prison or have been released “on licence”. Humberside police are currently managing 584 Registered Sex Offenders. It is against these figures that the number of offenders coming under the MAPPA must be considered in order that anxieties are not raised disproportionately. If comparisons are made with last year’s figures it is seen that Registered Sex Offenders living in this area has increased by 40. An increase is to be expected as the figure are cumulative as offenders are convicted and required to register for extended periods of time, a minimum of 5 years and generally much longer. The increase in Humberside is in fact just over 7% whereas the national average is nearer 16%. The number of Category 2 offenders, i.e. violent and other sexual offenders, considered under MAPPA during the period 1st April 2003 to 31st March 2004 is 155. This figure is down on last year as details of this category of offender have been presented in a slightly different way. This year, only those offenders who were actually in the community are included. Humberside area has 4 prisons situated within its boundaries and whilst some of the offenders in those institutions will be Humberside residents and therefore are likely to return to our local communities, many are from other areas and will move back there on release. Similarly offenders from Humberside, particularly those who have committed the more serious offences and therefore are serving longer sentences, are in prisons out of our area but will probably return here on release. If they do that then they will of course appear in the
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ViSOR
ViSOR is a computer based Violent & Sex Offender Register and is set to play a vital role locally and nationally in monitoring sex, dangerous and violent offenders. It is planned to introduce the use of ViSOR in Humberside towards the end of 2004. Until now, police and probation have relied on local unconnected databases to record details of offenders in their area. This has made it difficult to keep track of individuals as they move from area to area. ViSOR’s introduction is crucial if both services are to comply with their duties under the current legislation. The information sharing potential under ViSOR will make police and probation officers responsible for monitoring this category of offender more effective. Because all forces and probation areas will eventually have access to the database, intelligence added by a police or probation officer in one part of the country will become immediately searchable by officers in another part. The database will contain a vast array of information on individuals making it more difficult for them to change appearance and re-emerge undetected in another part of the country. ViSOR will comply with the Human Rights Act and the Data Protection Act.

figures relevant to the year of their release date. In light of the above numbers, the fact that in managing those offenders we only needed to do this through level 3 MAPPPs with 8 offenders indicates, we believe, how well the multi agency co-operation works in Humberside. The number is significantly down from last year’s figure of 135. This reduction is due to our robustly applying the criteria introduced in the Guidance 7 implemented in April 2003 and demonstrates our ability to comply with the main thrust of the MAPPA, that they focus on the “critical few” who pose high risks, or who, although not of the highest risk, present particular difficulties in their management.

7 The MAPPA Guidance. (2003) Home Office. 14

MAPPA ANNUAL REPORTS STATISTICAL INFORMATION
For the period 1st APRIL 2003 - 31st MARCH 2004

Humberside

1. Category 1 Offenders: Registered Sex Offenders (RSOs)
i) The number of RSOs living in your area on 31st March 2004.

584 66 26
a) b) a) b)

ia) The number of RSOs in your area per 100’000 head of population *. ii) The number of sex offenders in your area 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.

1 1 0 0

2. Category 2 Offenders: violent offenders and other sexual offenders.
i) 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

155

3. Category 3 Offenders: Other offenders
i) The number of ‘other offenders’ (as defined by Section 67 (2)(b) of the Criminal Justice and Court Services Act (2000)) living in your area between 1st April 2003 and 31st March 2004. ii) The number of Restraining Orders imposed on any MAPPA offenders by the courts in your area between 1st April 2003 and 31st March 2004.

55 2

4. Level 3 - Multi Agency Public Protection Panel managed cases
i) MAPPA offenders in each of the three Categories (i.e. (1)- RSOs, (2)- V&O and (3)- OO above) who have been managed through the MAPPP (level 3) between 1st April 2003 and 31st March 2004. RSO) V&O) OO) ii) Cases managed by the MAPPP (i.e. 4.i) between 1st April 2003 and 31st March 2004 and whilst still in the MAPPP: Were returned to custody for a breach of licence a) Were returned to custody for a breach of a restraining order or sex offender order b) Were charged with a serious sexual or violent offence c)

5 2 1

1 0 0

* For the purposes of calculating the number of Registered Sex Offenders per 100,000 head of population, figures from the 2001 census have been used. The population for Humberside was reported as 880985.
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Agency Contact Points

Humberside Police Police Headquarters Priory Road Kingston–upon-Hull HU5 5SF 01482 326111

National Probation Service – Humberside Head Office 21 Flemingate Beverley East Yorkshire HU17 0NP HM Prison Service Yorkshire and Humberside Area Office Marston House Audby Lane Wetherby LS22 7SD 01937 544500 01482 867271

MAPPA Co-ordinator c/o Crime Management Policy Unit Humberside Police Headquarters Priory Road Kingston-upon-Hull HU5 5SF 01482 220248

Victim Support Schemes
Hull Haltemprice & Holderness East Yorkshire Goole and Pocklington Grimsby and Cleethorpes Scunthorpe and North East Lincolnshire National Victim Support Line
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01482 587666 01482 307284 01262 401689 01405 767070 01472 250251 01724 871324 0845 30 30 900

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