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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, Jane Geraghty


Chief Constable Chief Officer
Humberside Police National Probation Service -
Humberside

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What are the MAPPA? administering the MAPPA is undertaken by
the four Police Risk Management Units
based in Hull, Scunthorpe, Grimsby and
Sexual and violent offences are dreadful Market Weighton and the Probation
crimes that deeply affect the lives of victims Intensive Supervision Teams dealing with the
and their families and inspire fear in local high and very high risk offenders based in
communities. Their impact can be profound Hull, Scunthorpe, Grimsby, Beverley, Goole
and long-lasting, leaving victims feeling and Bridlington. Of course they could not
unsafe even in their own homes. The carry out their work effectively without co-
Government regards protecting the public operation and input from other departments
from such sexual and violent crimes as one in their services or from other agencies.
of its highest priorities.
The MAPPA are there to ensure the quality,
timeliness and consistency of that co-
The Multi Agency Public Protection
operation and input.
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 Are all dangerous people
Wales. They developed as formal
arrangements out of local initiatives covered by the MAPPA?
following legislation in 20001 and are now
defined by the Criminal Justice Act (2003) Currently the MAPPA only applies to certain
which came into effect on 5th April 2004. categories of individuals who have already
New national guidelines on implementing been convicted of an offence.
MAPPA were introduced at the beginning of
this review year2 . Some potentially dangerous people are not
known to any local agencies, including
The MAPPA contribute significantly towards police or probation. Therefore, although the
the integration of the work of a number of MAPPA represents a significant
criminal justice agencies together with social strengthening of public protection, they
care agencies such as health, social services cannot provide an absolute protection.
and housing, in order to reduce serious
Research in 2002 has shown that 32% of
offending, minimise serious harm to the
the first time murderers and 36 % of serious
public and assist in the early detection of
sexual offenders had no previous
repeat offenders.
convictions.3
Over the period of this review, police and
probation have had a statutory responsibility Operation Ore, the investigation into child
to oversee these arrangements as the pornography on the internet, which you
“responsible authority” under the relevant may have heard of, revealed that nationally
legislation. From April 2004 the prison a “significant proportion” of the 7,000 UK
service joined us as part of the responsible subscribers to a particular group of internet
authority. sites offering access to images of child
abuse were previously unknown to police, in
In Humberside we undertake this joint work Humberside this figure was 80%.
at two levels, through Local Risk
Management Meetings (LRMMs, see later)
and through Multi Agency Public Protection
Panels (MAPPP, see later). 3
Soothill, K. Francis, B. Ackerley E. and
The bulk of the work in regard to Figelstone, R (2002) Murder and Serious Sexual
1 Assault: What criminal histories can reveal about
Criminal Justice and Court Services Act 2000. future serious offending. Police Research Series.
2
The MAPPA Guidance (2003) Home Office Paper 144.

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Are all offenders covered How are those offenders
by the MAPPA? who come under the
MAPPA dealt with?
Not all offenders are covered by the Multi
Agency Public Protection Arrangements so When offenders have been dealt with by the
effective multi-agency public protection courts their assimilation back into the
needs to start with the efficient community is usually, but not always,
identification of those relevant offenders. overseen by the National Probation Service.
Prompt and accurate identification then This may start as soon as the offender leaves
allows all agencies to gather and share court if they have been made subject to a
relevant information and choose the community penalty such as a Community
appropriate risk management strategies. Rehabilitation Order or it may be delayed
until the offender is released from prison if a
Three categories of offenders are defined as custodial sentence is given.
falling within the remit of the MAPPA;
At the time an offender passes through the
court process an assessment of the risk they
Category 1: Registered sex offenders, i.e.
present to the public in general or any
those convicted or cautioned
individual in particular will usually have been
for certain sexual offences
undertaken by the probation service. If they
who are required to register
are given a custodial sentence then that
with the police.
assessment will be reviewed during the time
they are in prison. The review will take into
Category 2: Violent and other offenders consideration information from prison and
who generally have received a probation staff involved in any work they
sentence of imprisonment of have undertaken on their offending
12 months or more. behaviour whilst in prison, information from
the police, the probation Victim Liaison
Category 3: Other offenders not in either Officers and the home probation officer so
of the above categories but that when the offender is released to the
who are considered to pose a community, agencies working with them will
risk of serious harm to the have an up to date indication of the risk they
public. The inclusion of these pose.
offenders under the MAPPA is
based on two considerations. Some offenders who do not come to the
First it must be established initial notice of the probation service are
that the individual has a assessed by the police, e.g. Registered Sex
conviction for an offence Offenders moving into the area.
which indicates they are
capable of causing serious Risk assessment in our area of work can be
harm to the public. Secondly considered as calculating how likely an event
it must be reasonably is to occur and, if it does, the likely impact of
considered that they may that event, upon whom or what and with
cause serious harm to the what consequences.
public.
The impact we are considering is serious
The statistics at the end of this report show harm to members of the public in general or
the number of offenders in the three to individuals in particular, that is harm
categories we have in Humberside. 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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Using the recognised risk assessment tools of
the particular agency, offenders are assessed A young offender was due for release
as presenting low, medium, high or very high following a sentence for a serious
risk of causing harm. In essence these levels assault of a stranger. During his time in
of risk are defined as; custody he had taken a prison officer
hostage.
Low: there are no significant current
indicators of risk of harm Intelligence from prison indicated that
he had made threats against police
Medium: there are identifiable indicators officers on release.
of harm. The offender has the
potential to cause harm but is The young man's background was one
unlikely to do so unless there is of little adult guidance and support
a change of circumstances. and constant conflict with the Criminal
Justice System. Previous attempts at
High: there are identifiable indicators input by the caring services had had
of risk of serious harm. The little impact on his behaviour.
potential event could happen
at any time and the impact Prior to release a Level 3 MAPPP was
would be serious. held. All police officers in the area of
resettlement were informed. Firm
Very High: there is an imminent risk of boundaries were laid down by the
serious harm. The potential probation service for the offender in
event is more likely than not to regard to his supervision on release but
happen and the impact would a package of support for him was also
be serious. established.

The purpose of the MAPPA is to establish He was instructed to reside in a


arrangements for the effective management Probation Hostel, with stringent curfew
of that risk. conditions and rules regarding his
behaviour, until the local housing
authority could find suitable
Why aren’t all these accommodation in the community.
offenders very high risk? Additional steps in regard to the safety
of the hostel staff were taken.
Remember, risk is about the likelihood of
The young man has been out of
something happening and the consequences
custody for some time, and although
or impact if it does happen.
he did initially find it difficult to comply
with the rules of the hostel, he did
As past behaviour is a predictor to future respond positively to warnings about
behaviour, all offenders must be considered his behaviour, and to date has not
as presenting some risk of re-offending and reverted to re-offending.
causing harm. However the degree to which
they pose a risk and the seriousness of any
consequences of any further offending is
The majority of individuals who are assessed
something which is considered in the risk
as possibly being a risk to others, willingly
assessment process. Some may be
comply with any arrangements made to help
considered as presenting a high risk of re-
them overcome problems and issues which
offending but the consequences of that
led to offending.
behaviour, although perhaps causing
nuisance, cost or indeed minor harm to the
Perhaps their risk is to a specific individual
victim is not serious harm as we have defined
and there can now be no contact with that
it.

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individual. Or it relates to particular Level 2: Local inter-agency risk
circumstances, which no longer exist. The management.
offender may genuinely want to change the
behaviour which led to their offending and This level of management is
willingly undertakes programmes provided be used where the active
by the probation service. These programmes involvement of more than one
are in the main “cognitive-behavioural agency is required. In
programmes” which have been identified Humberside we use the
and evaluated as the most effective acronym LRMM, for Local Risk
treatment of both sexual and violent Management Meetings for
offenders, looking at the way a person’s this level.
thinking and behaviour are connected, and
how changing one can affect the other. These meetings are held monthly in the local
Division dealing with the offender – i.e.
Hull, Scunthorpe, Grimsby and Beverley.

How are offenders Level 3: Multi Agency Public Protection


managed under the MAPPA? Panels (MAPPPs)

This level deals with those


The structure of risk management is “critical few” cases which are
intended to enable resources to be deployed assessed as being a high or
to manage the risks the above assessments very high risk of causing
have identified in the most efficient and serious harm; AND
effective manner.
they present risks that can
Risk management is defined as harm only be managed by a plan
reduction either through the reduction of which requires co-operation at
the likelihood of a risk occurring or the a senior level due to the
reduction of its impact should it occur. complexities of the case
and/or because of the unusual
There are three levels of risk management resource commitments
used under the MAPPA. Although generally required.
the higher the assessed level of risk the
higher the level of management required, Additionally cases which are
this need not always be the case. The risk exceptional because of the
management structure is based on the high media scrutiny or public
principle that cases should be managed at interest and there is a need to
the lowest level consistent with providing a ensure public confidence in
defensible risk management plan. the criminal justice system is
sustained are dealt with at
The three levels are; this level.

Level 1: Ordinary risk management.


This is the level used in cases You can see from the statistics that of all the
in which the risks posed by cases considered under the MAPPA only 8
the offender can be managed have needed to be managed by a full Level 3
by one agency without MAPPP.
significantly involving other
agencies. To date these MAPPPs have been held locally
to the Division dealing with the offender –
The majority of cases supervised by the i.e. Hull, Scunthorpe, Grimsby and Beverley -
police or the probation service come into and chaired by a local senior police or
this level. probation officer. However, in order to bring

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a more consistent approach to this work Internal restraints are the offender’s self-
and to help maintain a central overview of management, often learned through
all high and very high risk offenders in our participation in offending behaviour
area, future MAPPPs will be held centrally programmes.
and be chaired by the police or probation
Senior Management Team member having External restraints can take the form of
responsibility for the MAPPA. 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
What are Risk work with an offender in the community
Management Plans? e.g. conditions can be attached to a
Community Rehabilitation Order by the
Risk management plans lay down specific court, committing the offender to attend a
objectives for the management of the risk programme or see a psychiatrist. Prior to an
the offender presents. Responsibilities and offender coming out of prison on a
tasks are clearly defined and firm timetables ”licence”, conditions can be attached to that
established. The plan needs to be able to licence laying down certain activities the
deal with changing circumstances of the offender must or must not do, places they
case and should also integrate what are must not go or contacts they must not
described as internal and external restraints make.
on the offender.
Other external restraints are;

A predatory sex offender against young Restraining Orders


boys was recalled to prison from this
Two Restraining Orders were granted
area when his behaviour became such
against offenders subject to the MAPPA.
that the risk he presented was no longer
These Orders are made at the time of
manageable in the community.
sentencing and place restrictions on an
offender’s behaviour where this is necessary
He was subsequently released from to protect the public in general or a
prison without any form of statutory particular individual from the possibility of
supervision and decided to live in a serious harm from that offender.
coastal town of another area.
Other controls have been applied at a later
Prior to his release police and probation stage if the offender’s behaviour indicated
officers from Humberside attended a that the risk they present is increasing.
MAPPP held in the new area to appraise
that area of the risk he presented. Sex Offender Orders

The offender was monitored following Sex Offender Order can be taken out at any
his release and was soon observed to be time where it can be proved that the subject
frequenting areas where children has been convicted of certain sex offences
regularly played and demonstrating and there is reasonable cause to believe that
behaviour that again gave cause for the Order is necessary to protect the public
serious concern about the safety of from serious harm from the subject.
those children. One Sex Offender Order was successfully
applied for in our Area.
Given the information they had already
been provided with, and following Both of these types of Order will be replaced
further liaison with police and probation by the Sexual Offences Prevention Order
officers from Humberside, the new area under the Sexual Offences Act 2003 when
was able to apply for and successfully that act comes into force4.
obtain a Sex Offender Order. 4
Provisions of the Sexual Offender Act 2003 will
commence with effect from1st May 2004.

7
Great caution is exercised when making
Two boys aged 2 and 11 were reported such a disclosure and it is seen as an
missing by their mother. Information exceptional measure as the disclosure may
provided by the mother to the Police be to individual members of the public. If
Missing Persons Officer contained a such a course of action is required it is
name of a man known to the local Risk always as part of a risk management plan,
Management Co-ordinator as being a which has been agreed at either of the two
registered sex offender with convictions highest levels of MAPPA management, i.e.
for offences against young boys and LRMMs or MAPPPs.
subject to MAPPA management.

Quick checks confirmed suspicions and


police attended the address of the A very high-risk registered sex offender
offender where the boys were found moved into the area from another
safe and well. county. Although he was on a
Community Rehabilitation Order and
The boys were unharmed and quite supervised by probation, his previous
happy but from the mans behaviour and convictions were concerning as he had
the circumstances in which the children on one occasion entered a primary
were found it was clear that grooming school to assault a child.
to enable abuse was taking place.
A level 3 MAPPP was convened to
Within two hours the Probation Service include a representative of the Local
had arranged for the man to be recalled Education Authority. The offender was
to prison. advised of this multi agency approach
following which he consented to
Following the offenders eventual release restricted, but relevant, disclosure being
risk assessments by the police and made to a number of schools within
probation services indicated that he still the area.
posed a high risk to children and
therefore a successful application was He also agreed to his voluntary
made to the Courts for a Sex Offender exclusion from four neighbouring
Order 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
Recall to prison
the community cannot be carried out
without the disclosure of some information
An ultimate external restraint for offenders
to a third party outside of the usual MAPPA
who are subject to supervision under
agencies. This may be, for example, where
“licence” following their release from prison
an employer, voluntary group organiser or
can be a recall to prison if they break their
church leader has a position of responsibility
licence condition or it is felt the risk they
or control over the offender and other
present is becoming unmanageable in the
people who may be at serious risk from the
community.
offender. Disclosure to them of certain
information about the offender may be the
Three offenders subject to the highest level
only way to manage that risk. Wherever
of management, Level 3, were recalled to
possible the situation would be discussed
prison during this last year.
with the offender and voluntary disclosure
encouraged, with probation and/or police
supporting them in this.

8
What about the victims of organisations better able to deliver this e.g.
Social Services – child care, Victim Support
serious crime? and NCH, the children’s’ charity.

The probation service has a statutory A man was sentenced to a long term of
responsibility to contact all victims of sexual imprisonment for the offence of
and violent crime where the perpetrator has attempted murder. The victim was a
been sentenced to 12 months or more in female with whom he was having a
prison5. In our area we have 2 specialist relationship and the offence occurred
Victim Liaison Officers in the probation when she tried to end the relationship.
service covering the two geographical areas
north and south of the Humber. The duties As well as any psychological impact, the
of those officers are to; offence perpetrated against the victim
caused life threatening injuries and has
• Make contact with relevant victims, left permanent scarring.

• Consult the victim about the release The Victim Liaison Officer from the
arrangements for the offender and make probation service established victim
the victim’s views known to the contact and the views and concerns of
supervising probation officer, the local the victim were ascertained. These were
MAPPA co-ordinator, the prison shared with the offender's supervising
authorities and, where relevant, the probation officer and, due to the
parole board; assessed high risk posed to the victim,
the case was referred to the MAPPA.
• Make recommendations about licence
conditions or other aspects of the Following Level 2 Local Risk Management
offender’s release; meeting under the MAPPA a 'package' of
measures was agreed to manage the risk
• Advise probation colleagues and the posed to the victim upon the offender's
MAPPA co-ordinator about any victim release. These included;
concerns relevant to the management of
the individual offender a) Agreement by local police to install a
panic alarm in the victims house,
• Keep victims informed about any
significant developments during sentence
b) Placement of the offender in a local
or after release, including notification of
probation hostel on a temporary
release dates and any additional
basis then moving him on to a hostel
measures being taken to increase their
out of the area.
safety.
c) Establishing an exclusion zone as a
Naturally, it is up to victims to decide
condition of his release licence.
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 d) Establishing strong links of
duration of contact with individual victims communication between the areas
can last for several years. involved in the management of the
offender.
The probation service does not offer
specialised counselling in regard to the Following the offender's release the
physical and emotional effects the crime victim has stated that she has not had
may have had on the victim, this is left to any form of contact from the offender
and is greatly appreciative of the way the
risk the offender poses has been
5
Criminal Justice and Court Services Act (2000) managed.
sect. 69.

9
Therefore, although the primary focus of the supervision of those level II offenders.
MAPPA is properly placed upon the risk and Representatives now attend these meetings
behaviour of the offender as you can see from police, probation, Social Services Child
from the above, the victims’ concerns are Protection, Community Psychiatric Service,
considered and reflected in risk assessments Jobcentre and local colleges
and risk management plans under the
This commitment to “active participation”
MAPPA.
by other agencies in managing the offenders
we work with has been fostered through
local negotiation and contact. In developing
Oversight of the MAPPA - this participation we have successfully pre-
empted requirements introduced by the two
The Strategic Management main influences over the last 12 months on
Board the way we carry out this work, the MAPPA
Guidance already mentioned and the
Criminal Justice Act 2003.
Oversight of the arrangements put in place
to manage the offenders falling under the Firstly this commitment from the agencies
MAPPA is undertaken by a Strategic and the co-operation we have has enabled
Management Board. This group currently most cases considered to be dealt with at
comprises senior managers from probation Local Risk Management Meeting level. This
police, prison service, social services, health is consistent with the aim of managing at
and housing the lowest level.

In an area such as Humberside multi agency This practice has confirmed what research
already indicates, that public protection is
work is not always as simple as we would significantly strengthened by a collaborative
wish. Though the police and probation approach to addressing those factors (such
services share a common boundary, as accommodation, employment and
Humberside covers the unitary authority meeting health care needs) which are critical
areas of North East Lincolnshire, North in determining whether an offender will re-
Lincolnshire, the East Riding of Yorkshire and offend.
the City of Kingston-upon-Hull.
It is now not uncommon for agencies other
At the beginning of this review year there than police or probation to refer cases to
were 4 Strategic Management Boards, one the MAPPA and thereby access the support
other agencies can provide.
for each of the 4 Unitary
Authority/Police/Probation Divisions. Secondly, the latest Criminal Justice Act
6

places a “Duty to co-operate” on certain


In early 2004, again to provide consistency agencies from April this year. Those agencies
and a central awareness of the MAPPA are the Youth Offending Teams, Social
process across the four Unitary Authorities, Services and Housing, Education and Health
a Humberside Area SMB was constituted to all of whom are in fact involved already in
replace the 4 local ones. Humberside.

Key Progress and Serious Further Offences Procedures


Achievements over the In March 2004 a notification, screening and
last year. review procedure for serious further
offences committed by offenders currently
being supervised by the probation service
A major achievement in the way the MAPPA was introduced nationally. The purpose of
functions in your area is the steady increase this is to ensure that a robust system of
in the number and variety of agencies which
now regularly participate in Local Risk 6
Criminal Justice Act (2003), sect. 326.
Management Meetings to oversee the

10
scrutiny is in place for these offenders so (ii) formalising the involvement of other
that any failures can be identified and agencies which can make an important
rectified, but also that good practise, not contribution to helping offenders not
withstanding the commission of a serious to re-offend - the Act imposes a ‘Duty
further offence, is recognised and to Co-operate’ with the Responsible
supported. Authority upon:

The trigger factor for this process is the • Local authority Housing, Education and
seriousness of the further offence Social Services
committed not the level of supervision or • Health Service bodies
risk management being applied so this is • Jobcentres Plus
not purely a MAPPA initiative, however • Youth Offending Teams
scrutiny of these case leads to learning and • Registered Social Landlords which
possible changes in service delivery relevant accommodate MAPPA offenders, and
to all offenders. • Electronic Monitoring providers

Appointment of MAPPA Co-ordinator (iii) The appointment by the Home


Secretary of two members of the
The National Probation Service – Humberside public (‘Lay Advisers’) in each Area to
and Humberside Police appointed a assist in monitoring the effectiveness
Multi–Agency Public Protection of the MAPPA.
Arrangements (MAPPA) Co-ordinator in April
2004. The person appointed is a Senior Prison Service becoming part of the
Probation Officer with experience of “Responsible Authority”
managing high risk violent and sexual
offenders in the community.
The Criminal Justice Act 2003 puts the
involvement of the Prison Service in the
The anticipated contribution of this role will
MAPPA on a statutory footing by including it
include providing a central point of contact
in the Responsible Authority, along with the
within the Humberside area and, by co-
police and probation services.
ordinating local inter-agency risk
management meetings and Multi-Agency
As well as bringing a prison service
Public Protection Panels, ensuring a
involvement to the Strategic Management
consistent, integrated approach towards
Board overseeing the MAPPA, this initiative
sharing information on high and very high
risk offenders, thus enabling us to work is seen as a strengthening of the existing
cohesively with other agencies to protect liaison with prisons in regard to sexual and
the public and victims of crime. violent offenders.

The “Duty to Co-operate”


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

11
The reform of the way in which child introduce new sentences for ‘dangerous’
protection is organised, following the public offenders which will keep them in custody
inquiry into the tragic death of Victoria until they no longer pose a serious risk to
Climbie, will reinforce the importance of the public.
effective joint working between different
agencies which the MAPPA has itself The Sexual Offences Act overhauls the many
promoted. antiquated sexual offences and plugs
loopholes in the law. In updating sexual
Appointment of Lay Advisers to offences, it strengthens the law on rape and
Strategic Management Board on sex offences against children. It
introduces new offences of ‘sexual
The introduction of an element of public grooming’ and extends the protection from
scrutiny of this often complex and sensitive exploitation in prostitution or pornography
area of public protection through the to children up to the age of 18. For the first
appointment of two Lay Advisers in each time, it will be an offence to buy sexual
Area, has been carefully and successfully services from a child below this age,
trialed and evaluated. As Home Office targeting those who abuse children in this
Minister Paul Goggins said: way.

“Lay Advisers will play a vital The Sexual Offences Act also strengthens the
role…We are committed to giving sex offenders register, which has proved a
them not only an insight into how valuable means by which the police can
this work is carried out but, more monitor convicted sex offenders within their
importantly, an opportunity to area, and introduces new civil orders to help
question what is being done and prevent further offences from being
why.” committed.

These Lay Advisers will assist in the MAPPA


review functions and not be involved in The focus on victims
operational decision making. The
involvement of such advisers has been In addition to all this work to tackle
piloted in certain areas and their role has offenders, the Government has rightly
proved valuable as “critical friends”, placed much greater emphasis upon
informed observers who will ask questions meeting the needs of victims. The victims of
which professionals closely involved in the sexual offending are identified as a priority
work would not necessarily think of asking. group within the National Victims and
Witnesses Strategy. This strategy which was
They are not to be seen as representatives of published in July 2003, aims to improve
the community in the same way perhaps as support and protection for victims and
elected councillors are, they will bring to the witnesses by:
Board their understanding and perspective
of the Area but will have no role in • reducing the adverse effects of crime on
reporting or briefing the community except victims and witnesses, and preventing
as part of the Board’s own communication secondary victimisation;
exercises.
• encouraging more victims and witnesses
In the coming year Lay Advisers will be to come forward; and
appointed to the Board in Humberside.
• by offering more options to victims and
Other legislative measures witnesses, including alternatives to
attendance at court.
In addition to this work to strengthen the
MAPPA, the Government has also begun to All these initiatives will help toward another
strengthen other statutory provisions, the key Government target - that of improving
most significant of which the Sexual public confidence in the criminal justice
Offences Act (2003) and the measures to system.

12
The Government is underpinning this work Statistics
in its Domestic Violence, Crime and Victims
Bill, which is currently going through
Parliament. It will create a new independent Typically the Probation Service in
post of Commissioner for Victims and Humberside supervises some 2300 individual
Witnesses to be a champion/voice for all offenders in the community at any one time.
victims of crime and a new statutory Additionally they have responsibility for
Victims’ Code of Practice (to be another 1200 offenders sentenced to
implemented in April 2005) which will build imprisonment who are either in prison or
on the existing Victims’ Charter and set out have been released “on licence”.
specific responsibilities that each criminal
justice service agency and Victim Support Humberside police are currently managing
must provide to victims. 584 Registered Sex Offenders.

It is against these figures that the number of


ViSOR offenders coming under the MAPPA must be
considered in order that anxieties are not
ViSOR is a computer based Violent & Sex raised disproportionately.
Offender Register and is set to play a vital
role locally and nationally in monitoring sex, If comparisons are made with last year’s
dangerous and violent offenders. figures it is seen that Registered Sex
Offenders living in this area has increased by
It is planned to introduce the use of ViSOR 40. An increase is to be expected as the
in Humberside towards the end of 2004. figure are cumulative as offenders are
convicted and required to register for
Until now, police and probation have relied extended periods of time, a minimum of 5
on local unconnected databases to record years and generally much longer. The
details of offenders in their area. This has increase in Humberside is in fact just over
made it difficult to keep track of individuals 7% whereas the national average is nearer
as they move from area to area. 16%.

ViSOR’s introduction is crucial if both The number of Category 2 offenders, i.e.


services are to comply with their duties violent and other sexual offenders,
under the current legislation. considered under MAPPA during the period
1st April 2003 to 31st March 2004 is 155.
The information sharing potential under This figure is down on last year as details of
ViSOR will make police and probation this category of offender have been
officers responsible for monitoring this presented in a slightly different way. This
category of offender more effective. Because year, only those offenders who were actually
all forces and probation areas will eventually in the community are included.
have access to the database, intelligence
added by a police or probation officer in Humberside area has 4 prisons situated
one part of the country will become within its boundaries and whilst some of the
immediately searchable by officers in offenders in those institutions will be
another part. Humberside residents and therefore are
likely to return to our local communities,
The database will contain a vast array of many are from other areas and will move
information on individuals making it more back there on release. Similarly offenders
difficult for them to change appearance and from Humberside, particularly those who
re-emerge undetected in another part of the have committed the more serious offences
country. and therefore are serving longer sentences,
are in prisons out of our area but will
ViSOR will comply with the Human Rights probably return here on release. If they do
Act and the Data Protection Act. that then they will of course appear in the

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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.

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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
ia) The number of RSOs in your area per 100’000 head of population *. 66
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 26
iii) The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in your a) 1
area between 1st April 2003 and 31st March 2004. b) 1
iv) The number of interim Sex Offender Orders (a) applied for and (b) imposed by the courts in a) 0
your area between 1st April 2003 and 31st March 2004. b) 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. 55
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. 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) RSO) 5
who have been managed through the MAPPP (level 3) between 1st April 2003 and 31st March 2004. V&O) 2
OO) 1
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) 1
Were returned to custody for a breach of a restraining order or sex offender order b) 0
Were charged with a serious sexual or violent offence c) 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 01482 326111


Priory Road
Kingston–upon-Hull
HU5 5SF

National Probation Service – Humberside

Head Office 01482 867271


21 Flemingate
Beverley
East Yorkshire
HU17 0NP

HM Prison Service

Yorkshire and Humberside Area Office 01937 544500


Marston House
Audby Lane
Wetherby
LS22 7SD

MAPPA Co-ordinator

c/o Crime Management Policy Unit 01482 220248


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

Victim Support Schemes

Hull 01482 587666

Haltemprice & Holderness 01482 307284

East Yorkshire 01262 401689

Goole and Pocklington 01405 767070

Grimsby and Cleethorpes 01472 250251

Scunthorpe and North East Lincolnshire 01724 871324

National Victim Support Line 0845 30 30 900

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