Protecting the Public

Lancashire Area Multi Agency Public Protection Arrangements

Annual Report 2005–2006

Contents
Foreword Introduction Key Achievements How MAPPA Operates in Lancashire Statistical Information The Strategic Management Board Contacts Annex Lancashire Area MAPPA Business plan Glossary of Terms 4 5 7 13 21 24 26 26 27

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Foreword
Making our communities safer and reducing re-offending is our highest priority and one of our biggest challenges. That is why the work undertaken through these multi-agency public protection arrangements (MAPPA) is so important. The supervision and management of sexual and violent offenders who pose the highest risk of serious harm, whether in the community or in custody, is complex and challenging; and is an aspect of public service where the public rightly expects all reasonable action to be taken. Although we have made significant progress in the last five years with the development of MAPPA across England and Wales, the review this year of a number of tragic incidents where people have been murdered or seriously injured reminded us of the importance of reviewing performance, improving practice and learning lessons. It is vital that these tasks are undertaken by the probation, police and prison services, as well as by those other agencies that contribute to the assessment and management of offenders. The publication of MAPPA Business Plans by each Area in this year’s annual reports offers a helpful and necessary programme of local development and review and must lead to enhanced practice. It will be essential that this progress is transparent and shared with local communities. In addition to this, however, it is important that no opportunity is missed to consider other measures that will further enhance public safety. That is why we are undertaking the Child Sex Offender Review, to look at how a particular group of offenders, who provoke anxiety for many, are best managed in the community. The review is consulting a wide range of practitioners and key stakeholders including the MAPPA lay advisers, and will report around the end of the year. Finally, in commending this report to you, I want to take the opportunity to thank all those involved locally in working with sexual and violent offenders, or in ensuring that these arrangements are fit for purpose. Where MAPPA is working well it is based on maintaining high professional standards and effective multi-agency collaboration in the delivery of robust risk management plans. While it is not possible to eliminate risk entirely, where all reasonable action is taken the risk of further serious harm can be reduced to a minimum and fewer victims will be exposed to repeat offending. Gerry Sutcliffe MP Parliamentary Under Secretary of State for Criminal Justice and Offender Management

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Introduction
This is the fifth annual report from the MAPPA Strategic Management Board in Lancashire. It sets out the arrangements which have been developed over the past 5 years to protect the public from potentially dangerous offenders who are being supervised in the community. Whilst accepting at the outset that there can be no guarantees that such offenders will not go on to commit serious further offences it describes robust arrangements in Lancashire to assess and manage the risk presented by them. These multi-agency public protection arrangements involve police, prisons and probation services working closely together. They are assisted in this task by a number of other agencies which have a duty to co-operate. They include local authority housing, education and social services, the health service, job centres and the youth offending teams. The aim is to share information about high risk offenders leading to a thorough assessment of the risk and the action required to minimise it. Detailed risk management plans are formulated, implemented and reviewed. Wherever possible steps are taken to resettle offenders in the community when they have completed their prison sentence. This may mean providing accommodation, assisting with employment or offering treatment for drug, alcohol or mental health problems. But it also means imposing tough controls which may involve curfews, electronic monitoring, compulsory attendance at rehabilitation programmes, etc. Behaviour is rigorously monitored and if it gives cause for concern the offender can (and usually is) returned to prison. The primary concern at all times is to safeguard the public. But offenders are not under house arrest or 24 hour surveillance and there is always the risk that despite our best efforts they may reoffend as a number of national high profile cases has recently demonstrated. However, our record in Lancashire has to date been very good. We work hard to rehabilitate offenders, ensuring that help and support is available to tackle their problems although we match this with a tough approach to any increased risk that they may present. This report demonstrates our success over the past year in managing high risk offenders in the community and the priority attached to this by all the agencies that are represented on the strategic management board. However, we are not complacent and there is more to be done. Much of this is captured in our business plan for 2006/07. In particular, a relatively new offender assessment system (OASys) is being bedded in and the quality of this will be regularly audited. Training for staff involved in the supervision of high risk offenders is also a high priority as is the sharing and recording of information. The findings and recommendations of a number of inspection reports and enquiries will need to be progressed and new Home Office guidance will need to be implemented. We will also seek more creative ways of communicating with the media and the public in Lancashire. This annual report for 2005/06 shows that criminal justice agencies in Lancashire are putting public protection at the top of their agendas and have robust arrangements in place to assess and manage high risk offenders.

Chief Officer of Probation

Prison Area Manager

Acting Chief Constable

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Lancashire is keen to build on the well established arrangements for providing effective multi-agency public protection.

Key Achievements 2005-2006
Lancashire is keen to build on the well established arrangements for providing effective multi-agency public protection. MAPPA work is a high priority for all the agencies involved and these arrangements are set in a regional context where good practice is shared across the North West. By its nature, violent and sexual offending has a profound effect upon victims and communities. In Lancashire, the Responsible Authority i.e., Police, Probation and Prison Services recognise that the greatest prospect of reducing and managing such offending behaviour is by working collectively. For each of these organisations there is no higher priority. This year has seen a number of key developments. Lancashire Probation and Police have jointly funded the appointment of an area MAPPA Co-ordinator. The Co-ordinator has a pivotal role to play in monitoring MAPPA activity; collating and analysing data; identifying training requirements and supporting the wider development of knowledge, skills and awareness of MAPPA. As an integral member of the Strategic Management Board (SMB), the Co-ordinator is responsible along with Board members for ensuring that MAPP arrangements are developed and delivered in line with National guidance and in accordance with the SMBs Annual Business Plan (refer to appendix) Strong emphasis has also been given to risk assessment and ensuring consistency of good practice. Both police and probation have an on- going commitment to review policy and support practice development to ensure services evolve to meet requirements and to provide effective public protection. This has included the development and delivery of protocols with the duty to co-operate agencies. These protocols maintain a strong focus on the appropriate and timely exchange of information to ensure risk is managed and the welfare and interests of victims are safeguarded and protected. Duty to co-operate agencies include Health, Housing, Social Services and Youth Offending Teams (YOTs). Work is in progress to strengthen the interface between MAPPA and the newly formed Local Safeguarding Children Boards. There are 3 of these Boards in Lancashire each with a responsibility for ensuring that agencies work together effectively to protect and safeguard the needs and welfare of children. Further significant developments include the :
• Appointment of a jointly funded (Police/Probation) Area MAPPA Co-ordinator. • Inclusion of all offenders who are subject to MAPPA on ViSOR. • Launch of a Domestic Abuse Lancashire Police investigation pack. • Introduction by the Lancashire National Probation Service of the Community Domestic Violence Programme, launched with specific services for victims. • Establishment of Single Points of Contact with Accommodation providers in all the local and unitary areas. • Delivery of MAPPA training to a wide range of professionals. • Involvement of trainee probation employed forensic psychologists in public protection and MAPPA research. • Thematic Inspection providing an opportunity to look at the collaborative work of the responsible authorities.

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Key Achievements 2005-2006
Lancashire MAPPA Co-ordinator
In July 2005, Lancashire police and probation, jointly funded a post in order to strengthen the commitment to working together in a very practical and tangible way. The post holder is seconded from the probation service and is located at the Lancashire Constabulary HQ. The role facilitates effective channels of communication; working closely with the police public protection units in each of the 3 Police Basic Command Units, and with the probation teams and managers, ensuring consistent and effective practice is maintained in the management of high risk offenders within the MAPPA process. The role also encompasses a duty to the Strategic Management Board in the collation of data, informing research, identifying and contributing to the delivery of training and providing a single point of contact for the Duty to Cooperate agencies (for more details see section on the Strategic Management Board) sex offenders. Lancashire Constabulary have been pro-active and have extended the system to include dangerous and potentially dangerous offenders as well as violent offenders when subject to MAPPA oversight. The 3 public protection units in Lancashire managing high risk offenders have found ViSOR an effective tool. 1 PPU Detective Constable states: “If and when these offenders move area they can be tracked electronically which makes the transfer of intelligence efficient and instantaneous. It is a confidential system that prevents the disclosure of sensitive information being leaked into the community and as such innocent persons being targeted and assaulted. The system is dynamic and additional monitoring tools can be added to the system at the request of practitioners”. ViSOR is a national system, and over the next 2 years will be used by all 3 responsible authorities, Police, Probation and Prison to enable the effective monitoring of all sexual, violent and dangerous offenders.

Domestic Abuse
In tackling domestic violence Lancashire police have launched a new approach when investigating incidents of domestic abuse. “Lancashire Constabulary has a ‘positiveaction’ approach to domestic abuse,” comments Hutton Police Inspector “and wherever possible an arrest should be made” Lancashire officers attending each incident should now complete a Domestic Abuse pack. This ensures that a thorough investigation is carried out and contains victim safety planning information. The pack also contains useful telephone and e-mail contacts and advice of where the victim can access additional support. There is greater emphasis on ensuring that a risk assessment in relation to the victim is undertaken and that victim needs are identified. Officers have access to digital cameras to take photographs of any injuries suffered by the victim and any damage at the scene. In certain cases the Crown Prosecution Service will undertake prosecution against a perpetrator even without the support of the victim.

ViSOR
This is an electronic monitoring system which is an extremely important development in the management of high risk offenders. It has enabled police forces to monitor all registered

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Key Achievements 2005-2006
NPS Lancashire - Community Domestic Violence Programme
Since the commencement of the Community Domestic Violence Programme launched by the Lancashire Probation Service in April 2005, there has been such demand that the probation service has increased capacity. When an offender appears at court for a domestic violence related offence they are routinely assessed using a specialist accredited domestic violence assessment system. If the offender is deemed suitable, a recommendation is provided to the court by way of a formal report. If the Court sentences an offender to a community order with an additional requirement to attend the Community Domestic Violence Programme the offender is aware of the necessity to comply to all requirements and that failure to comply will be enforced swiftly. This is an intensive course. It includes 28 group sessions, each session lasting up to 21⁄2 hours. In addition there are individual meetings with the case manager throughout the period of supervision. An offender who recently completed the programme commented that he is now “thinking about ways I can influence my children positively” and “I am thinking about my actions and how it affects other people”. An important element of the programme is the support provided to the partner by women safety workers. The women safety workers provide an important service, including facilitating links with appropriate services and also providing information about the progress of the perpetrator throughout the programme. Both events were well attended and it was recognised that it was impossible to provide awareness training to every one involved in the provision of accommodation in Lancashire. It was therefore agreed that as a minimum, each borough council in Lancashire should have a named contact person who would act as a link with the local authority, registered social landlords and to the MAPPA arrangements. Further training for these named single points of contact (SPOC) is scheduled.

Accommodation SPOC & Training Initiatives
In August and September 2005, 2 half day events took place to provide greater understanding of the MAPPA process and Duty to Co-operate legislation. The Lancashire Probation Accommodation team hosted a large event and invited representatives from Lancashire accommodation providers, including borough councils, registered social landlords, housing associations, the voluntary sector and associated organisations. A further event at Blackburn included representatives from Supporting People and Crime and Disorder Partnerships.

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Key Achievements 2005-2006
In the Fylde Coast 3 briefings took place for Community Mental Health teams. This was a response by the local Senior Probation Officer and Detective Sergeant to provide a basic awareness and understanding of the MAPPA process. The briefing provided information on MAPPA legislation, how this relates to the Community Mental Health teams, criteria for referral and explanation of the ViSOR system. The briefings were interactive and opportunity was provided for case study and discussion. The training was attended by 41 staff from all grades. The initial feedback has been extremely positive There is also planning for further awareness training days, funded by the SMB partnerships, to be delivered across the county throughout 2006/7 protection resources that assist in the management of high risk offenders. Under appropriate clinical supervision the psychologists prepare assessment reports on individuals within the MAPPA process. They are also actively engaged in undertaking research that has been agreed by the Probation Service and more latterly by the SMB. This includes looking at the MAPPA process and the links with mentally disordered offenders and outcomes in relation to the Community Domestic Violence Programme. Both research documents once completed should inform and improve policy and practice. linking this with interventions and outcomes. To capture this information, a total of 50 Lancashire Probation cases were identified. These were at different stages of the court process, imprisonment and supervision in the community. The report is not expected to be published before June 2006 but initial findings identified a number of positive features. These included the quality of links between public protection and the Strategic Management Board, interagency protocols and the shared responsibility between the police and probation in managing MAPPA referrals. Work is already in progress to strengthen performance in relation to timely exchange of information between prisons and the community and to ensure psychologists are an integral component of MAPPA arrangements.

Thematic Inspection
Lancashire was 1 of 8 areas selected to participate in a Home Office joint thematic inspection to examine the work undertaken by probation, police and prisons in the inter-agency arrangements for the protection of the public. In November 2005, the inspection team looked at the quality of policies and procedures for each agency, tracking the effectiveness of the exchange of information, evaluating the use of assessment tools, and

Forensic Psychologists
Lancashire Probation Service employs 2 trainee forensic psychologists. They are entering the final stages of training and are near to achieving chartership status. Since December 2005, they have been under the line management of the MAPPA Co-ordinator and as such are seen as part of the public

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Key Achievements 2005-2006
An example of agencies working together to manage risk in the community.

Case Study A
Case A is a middle aged male with a significant offending history including offences of a sexual nature which had resulted in his sex offender registration. In line with registration requirements there was close oversight by the police. This proactive approach ensured that as soon as Case A approached two young girls he was arrested and charges were brought against him. The Probation Service undertook a comprehensive assessment of his risk to assist the court in their sentencing decision. The offender was sentenced to 12 months imprisonment and a period of extended supervision to the Probation Service on release. Prior to his release from prison a multi agency public protection panel meeting was arranged in order to ensure his return to the community was effectively managed. This was attended by representatives from probation, prison, police, social services, accommodation providers and the local crime and disorder partnership. Information was shared at this meeting by all agencies in attendance to identify the risks and to agree strategies for managing Case A’s risk on release. One of the strategies was to impose a number of restrictive conditions to his prison licence to prevent further sexual offending. These included restrictions on access, direct or indirect, to children and treatment delivered by the Probation Service on his sexual offending. There was also strong emphasis on finding suitable accommodation for his release. A joint visit by police and probation to the offender whilst in prison reinforced the importance of his compliance with the licence conditions and provided an opportunity for the offender to be fully aware that his behaviour would be closely monitored by both agencies and any failure would lead to an immediate return to prison. There have been regular MAPPPs since Case A was released in order to monitor his progress against the agreed action plan. The risk of his sexual offending is felt to have reduced mainly because of the strict controls in place and the effective multi agency approach.

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The Domestic Violence Crime and Victims Act which received Royal assent in 2004 contains further measures to improve support afforded to victims of crime.

How MAPPA Operates in Lancashire
The MAPPA process has evolved and good practice at local level, coupled with informed research has generated the legal framework to ensure that there is a national approach to managing high risk offenders. In Lancashire arrangements are well established to ensure that all cases referred into the MAPPA framework are first reviewed at a pre panel meeting which involves representatives, at manager level, from probation and police. The purpose of the meeting is to establish the imminence and likely impact of harm and the agencies required to manage this risk. Although not involved in the MAPP, offenders are generally consulted before and after a meeting in order to secure their engagement and compliance with the risk management process. The panel will meet regularly to review the risk management plan and will only withdraw an offender from the process when there is demonstrable evidence of the risk having been significantly reduced. On 5th April 2004 further legislation came into place that helped to strengthen the MAPPA process by making the Prison Service part of the ‘Responsible Authority’ with police and probation. The prison service plays an important part in protecting the public, by keeping offenders in custody, helping them to address their offending behaviour and by undertaking work to assist in the resettlement process. In Lancashire we have a number of prisons and they contribute by :
• Early identification of MAPPA offenders, this assists in the sentence planning arrangements and ensures interventions are in place to manage and reduce risk. • Regular monitoring and reviewing of plans assessing the behaviour and sharing information with police and probation colleagues. • Collation of all relevant risk information, and ensuring that this is shared in a multi agency meeting to assist in planning effectively for release. • Ensuring that police and probation are notified at least 6 months prior to release of those identified as the critical few MAPPA cases. • Consulting over proposed changes in release dates or arrangements.

They hold regular public protection panels to which external agencies are invited and they liaise with external MAPPA partners.

HMP Wymott‘s Public Protection Unit provides an “excellent example of multi-agency working where the barriers between agencies have been broken down in order to protect the public from harm”. The unit is made up of seconded Police Intelligence Officers, Probation Officers and Prison personnel.

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How MAPPA Operates in Lancashire
Case Study B
It was established that a convicted sex offender at HMP Wymott was corresponding in an inappropriate manner with a member of the public, via a church connection. The prison public protection team were concerned that the offender was seeking through his written correspondence to access and target young children. Consequently the prison public protection team informed the home probation officer and a MAPPP meeting was arranged prior to release. This was attended by representatives from probation both in the prison and the community, prison based police, prison personnel and social services. All aspects of the offender’s behaviour, whilst in prison and prior to sentence was considered by panel members in order to establish a full picture of the risk this man was considered to pose. An action plan was designed to reduce the risk of the offender targeting and possibly grooming potential victims whilst in custody and on eventual release. It was agreed by the panel that additional conditions would be attached to his prison licence on release in order to safeguard and protect the public. It was also considered appropriate to disclose information about Case B and his offending history to the individual he had been in written correspondence with. Relevant information was shared sensitively to enable the individual to take appropriate action to protect themselves and their family with support from agencies involved in the risk management process. Case B is still subject to MAPPP and all agencies are working collaboratively including church representatives to ensure that licence conditions are not breached and that all reasonable steps are taken to ensure the risk of future offending is reduced. The Criminal Justice Act 2003 also formalised 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 with the following agencies:
• Local authority Housing, Education and Social Services • Health Service bodies • Jobcentres Plus • Youth Offending Teams • Registered Social Landlords • Electronic Monitoring providers

In Lancashire there has been much emphasis in ensuring information sharing and disclosure is undertaken in accordance with agreed protocols.

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How MAPPA Operates in Lancashire
The Focus on Victims
The Government has rightly placed a 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 published in July 2003 which aimed 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. • offering more options to victims and witnesses, including alternatives to attendance at court.

contact all victims of serious sexual and violent offenders within 8 weeks of a sentence at Court being imposed. In Lancashire, between April 2005 - March 06 contact has been made with 361 victims. As soon as an offender is sentenced to 12 months or more imprisonment for a sexual or violent offence, the Victim Liaison Officer will ensure the victim or victim’s family are contacted and asked if they want contact to be maintained throughout the sentence and licence period. Once agreed the victim will be kept informed about key dates in the sentence. The VLO will also ensure the victims views are made known to the relevant staff, including MAPPA meetings and provide advice regarding licence conditions. Women Safety Workers are part of the victims unit and provide an important service as do all victim workers to victims of serious violent sexual crime. Although it is a statutory responsibility of the probation service to write to the victims of serious sexual or violent crimes it is the victim who decides whether there should be any contact. It is worthy of note that the

Lancashire Probation Service has consistently demonstrated excellent performance levels in this area of work. Other agencies which provide support to victims include Victim Support, NSPCC, Police and Social Services (see section 6 key contacts).

Subsequently, the Domestic Violence Crime and Victims Act which received Royal assent in 2004 contains further measures to improve support afforded to victims of crime. The most significant of these is the new Victims’ Code of Practice which will again give impetus to ensuring victims are the focus of attention at the SMB. The Lancashire MAPPA SMB works very closely with the Lancashire Victim Support Scheme, and Victim Liaison Officers (VLO) employed by Lancashire Probation Area,

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How MAPPA Operates in Lancashire
Case Study C
Case C was serving a sentence of 14 months for offences of domestic violence. His behaviour was not seen to cause a problem in the prison, however the police were aware that there had been numerous reports prior to his sentence in regard to the domestic violence matters. During the course of this prison sentence he established a relationship with another woman and the prison service ascertained that serious threats were continuing against his original partner. A referral was made to MAPPA and a meeting was held prior to his release. A risk assessment was undertaken and it was deemed that the original and the new partner were considered to be at risk of violence from the offender on his release. Representatives from the police including domestic violence officers, accommodation providers, probation, prison and social services were in attendance at the panel meeting. A risk management plan was developed to protect those identified to be at risk. This included full disclosure to the new partner regarding Case C’s offending history in order to enable protective measures to be taken. Licence conditions were instituted to prevent the offender approaching or contacting the victim on release. In addition alarm systems were installed for the victim and effective support systems identified. Work both whilst in custody and on release focussed on challenging Case C’s offending behaviour. The release plan was carefully managed by the MAPPA process and there have been no further offences from release to the present time.

Risk Assessment
It is acknowledged that accurate reliable risk assessment is critical to the management of sexual violent and other dangerous offenders. OASys, short for Offender Assessment System is completed and used by both the probation and prison service on all offenders under supervision. It is an assessment of the likelihood of further offending and risk of harm. In completing the assessment on an offender the practitioner considers a range of factors including family and employment history, use of illegal substances, alcohol, ability to manage finances and attitudes to victims. From undertaking this comprehensive assessment the practitioner is able to tailor interventions to maximise compliance and impact on offending. This assessment is regularly reviewed, evaluated and modified, and is updated if there is any change in circumstances. The assessment is also shared with other partner agencies with whom we work in managing the offender’s risk.

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How MAPPA Operates in Lancashire
All probation operational managers attended mandatory OASys training this year, with particular emphasis on the necessity for comprehensive risk management plans to be in place for all offenders assessed as medium and high risk of harm. In addition to OASys there are more detailed specialist assessments, including, sex offender, domestic violence etc. Lancashire Probation Service employs 2 trainee forensic psychologists. As they near the completion of their training they have become increasingly involved in contributing to the management of high risk offenders by undertaking risk assessments and providing greater access to psychological services. All sex offenders required to register will be assessed by Police or Probation using a specialist matrix which assesses the risk of committing a further sexual offence. Units, Detective Sergeants work with Senior Probation Officers (SPOs) to receive MAPPA referrals to ensure that the criteria for a MultiAgency Meeting is met. There are regular meetings and briefings for the District MAPPA Chairs (Detective Sergeants, SPOs, District Managers and Inspectors) to ensure consistency of practice and opportunity to share concerns and issues. This may include specialist supported housing, mental health assessment, protection of a vulnerable adult or child. Level 3 - In a small number of cases the offender is considered a very high risk and can only be managed by a plan which requires close co-operation at a senior level. In these cases an inter-agency meeting of senior staff is called to share risk information and implement an action plan which may require considerable resources. For example:
• • • • High levels of police time Electronic monitoring Disclosure to a number of people Assessment regarding suitability for medium secure units

There are 3 levels of risk
Level 1 – These are high risk offenders who are managed with relevant liaison but do not need a full multi-agency meeting to take place and can be managed effectively by a single agency. Level 1 management primarily involves probation, and Youth Offending Teams. The majority of offenders on the sex offender register fall within this category; with the police ensuring the movements and activities of sex offenders on the register are monitored throughout the registration period. Level 2 – These are high risk offenders where there are concerns regarding the imminence of harm and whose risk management is dependent upon the active involvement of other agencies.

Risk Management
In Lancashire Police and Probation work closely in managing MAPPA. Established systems reflect local needs whilst also maintaining adherence national model. In each of the 3 geographical Police Public Protection

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How MAPPA Operates in Lancashire
Good risk management starts with risk reduction. In Lancashire the Prisons and Probation Service provide a range of offence focussed programmes. These have been accredited by the Home Office following extensive (and continuing) research to show that they work. In addition to intensive long-term groupwork offenders will work with their supervising officer to reduce risk by:
• • • • Improving relationships. Finding settled accommodation. Improving basic skills to get a job. Reducing or stop using alcohol.

The Community Sex Offender Programme:Sex Offender programmes are run in a number of prisons and in the community. This enables work to start in prisons and continue and be re-inforced after release. In Lancashire 31 offenders successfully completed the CSOP in 2005/06. In Lancashire the Community Sex Offender Programme works directly with over 40 offenders at any one time. The programme, which has run since January 2003, requires an offender to complete 4 blocks of offence focussed work, each block runs for 1 day a week for 10 weeks. Once an offender has completed the core programme he is considered for the relapse prevention group which runs once a week for fifteen weeks. At the end of each programme block the offender’s progress is reviewed with the offender’s case manager and programme tutor. The meeting focuses on the progress the offender has made with regard to the risk he presents to others and provides a platform for identifying future work needed to reduce risk further. Currently in Lancashire there are 4 core groups with 10 offenders in each group and a relapse prevention group, which all the offenders must complete before they finish the programme. One of the core groups and the relapse prevention group are run in the evening to accommodate those offenders in employment.

These strategies enable offenders to develop their own controls and think about the effect they have had on their victims. In the forthcoming year Lancashire is increasing their portfolio of programmes to include: The Internet Sex Offender Programme (iSOTP) – for men who have committed internet offences. Often it is necessary to impose external controls and some are automatically included in a Prison Licence, or Community Order. Breaking any of these conditions in a licence will result in a Probation Officer recommending recall to prison, which can be immediate.

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How MAPPA Operates in Lancashire
The Sex Offences Act 2003
A summary of the key elements - Part 2 of the Act strengthens the sex offenders register and introduces new civil orders to help prevent further offences from
being committed.

Sex offenders register
The Act: • Reduces the period within which a sex offender must notify the police of a change of details from 14 to 3 days • Reduces the amount of time that a sex offender can spend at an address other than his home address before having to notify the police from 14 to 7 days • Makes those on the register confirm their details on an annual basis • Makes a conditional discharge the relevant offence to trigger the notification requirements • Gives the police the power to check fingerprints and take a photograph of a sex offender each time notification is made and • Requires sex offenders to provide their national Insurance number when making a notification

Notification Orders:
The Act introduces a new order to make those convicted of sex offences abroad subject to notification procedures.

Sexual Offences Prevention Orders:
These orders replace and effectively combine the old sex offenders order and restraining orders. They are prohibitive orders and for example, could be used to prevent individuals entering play areas or swimming pools. Importantly they can be imposed at the time of sentence. They can also be applied for by the Police post release if the circumstances allow. The orders are available in respect of persons convicted of violent offences and who present a sexual risk as well as those convicted of sexual offences. Breach of these orders will be punishable by a maximum penalty of 5 years imprisonment.

Foreign Travel Orders:
The Act introduces a foreign travel order banning those convicted of a sexual offence against a child under 16 from travelling abroad in certain circumstances.

Risk of Sexual Harm Orders:
These orders can be used to prevent harm to children from sexually explicit communication or conduct where the adult has already engaged in such behaviour towards a child. For example, this order could be used to stop adults sending child pornography or indecent texts.

Disqualification Orders
Such orders prevent eligible offenders from working with children in either a paid or voluntary capacity.

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Statistical Information
MAPPA ANNUAL REPORTS STATISTICAL INFORMATION For the reporting period 1st APRIL 2005 - 31st MARCH 2006 LANCASHIRE Question 1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) The number of RSO’s living per BCU on 31/3/2006 Lancashire BCU Area Western / Northern Southern / Central Eastern / Pennine Number of RSO’s living 198 / 167 135 / 75 236 / 130 941 66 40 Number of Offenders

i) The number of RSOs living in Lancashire on 31st March 2006. ii) The number of RSOs per 100'000 head of population. (This figure will be calculated centrally by NPD) iii) The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2005 and 31st March 2006 iv) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in Lancashire between 1st April 2005 and 31st March 2006 (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in Lancashire between 1st April 2005 & 31st March 2006 (a) applied for and (b) imposed by the courts in Lancashire between 1st May 2004 & 31st March 2005 a) b) c) a) b) c) a) b)

49 8 29 0 0 0 0 0

v) The number of

vi) The number of Foreign Travel Orders

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Statistical Information
2. Category 2 MAPPA offenders:Violent offenders and Other Sexual offenders (V&OS) vii) 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 Lancashire between 1st April 2005 and 31st March 2006 3. Category 3 MAPPA offenders: Other Offenders viii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1st April 2005 and 31st March 2006. 4. Offenders managed through Level 3 & Level 2 arrangements (ix) Identify how many MAPPA offenders in each of the 3 Categories (i.e. (1) - RSOs, (2) - V&O and (3) - Other above) have been managed through the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2005 and 31st March 2006. Level 3 Level 2 RSO V&O OthO 11 8 5 68 41 58 67 309

(x) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2005 and 31st March 2006 how many, whilst managed at that level: (a) Were returned to custody for a breach of licence? (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? (c) Were charged with a serious sexual or violent offence?

Level 3 Level 2 a) b) c) 6 1 0 19 13 1

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Statistical Information
Commentary:
The number of Registered Sex Offenders recorded living in Lancashire March 06 of 941 shows a slight decrease to last years figure of 980. This is as a result of improved information technology and data cleansing that has ensured clarity in the identification of MAPPA cases by the relevant category. Since the appointment of the MAPPA Co-ordinator this information has been collated on a quarterly basis and is reviewed and analysed by the SMB. MAPPA Cases.This year 191 cases were managed by the MAPPA process - at level 2 there were some 167 cases and at level 3 the ‘critical few’ there were 24 cases in total . MAPPA’s emphasis is on risk management and ensuring public protection is given the highest priority - to this end the enforcement of licences and community orders is robust and rigorous. Whilst it is demonstrated that the MAPPA process is successful in Lancashire it is unrealistic to expect that it could guarantee to prevent every serious offender from committing further crime. From the 191 offenders managed under the MAPP arrangements only 1 offender during 2005/06 went on to commit a further offence. The offender was immediately returned to prison.

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The Strategic Management Board
The Strategic Management Board, oversees, monitors and evaluates the MAPPA operation. At the beginning of this year the Police Superintendent took over from the Deputy Chief Officer of Probation, as Chair of the Strategic Management Board. The Board meet quarterly. The appointment of 2 lay advisers has provided the SMB with opportunity to listen to the voice of a ‘critical friend’. This is a new role and has brought about a lot of learning opportunities for all concerned Julie Sanderson in describing her experience comments “The role of lay adviser is certainly not without difficulties and can be somewhat overwhelming on first taking up appointment. I was very impressed at the seriousness and professionalism employed in the recruitment process ….. however a local familiarisation, induction package would have been helpful in settling into what could be described as a somewhat potential intimidating experience.” This has been addressed more latterly with the appointment of the MAPPA Co-ordinator and opportunities have been provided to observe MAPPA meetings and a visit to HMP Wymott. The National Training, however was felt to be of an excellent standard. Julie has expressed concern that the SMB meetings can be dominated with statistical information, business plans and thematic inspections, rather than individual case discussion that would provide opportunity for more shared learning. However she concludes that the commitment and enthusiasm of the Board is clearly visible and the meetings do provide opportunity for the public representative to observe “ the very difficult and thankless task faced by its members and their staff ” The lay advisers have also been involved in a number of sub groups, this includes looking at areas such as the disclosure policy and mentally disordered offenders. Membership of the Board includes:
• • • • • • • • • • • • Police Probation NW Prisons Service Youth Offending Service Social Service Departments Safeguarding Children Boards Local Education Authority Primary Care Trusts and Lancashire Care Trust District Housing Officer NSPCC Victim Support 2 lay advisers

The key functions of the Board are: Monitoring and evaluation of MAPPA operation. The SMB ensures that the MAPPA process is working effectively, assessing and reviewing the work undertaken , and setting objectives for the year ahead. Statistical information is provided that allows, opportunity to consider trends and imbalances between areas.This can lead to the identification of training needs for specific agencies or highlight the need for more in-depth research.

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The Strategic Management Board
The SMB can consider more detailed information from MAPP Panel Chairs regarding any significant and repeated problems in relation to implementing effective risk management plans. In consequence specific pieces of work have been commissioned to:
• Develop strategies for the effective management of mentally disordered potential offenders. • Identification of Single Points of Contacts with housing providers regarding housing provision for potentially dangerous offenders. • Review the issues of young (under 18) offenders who commit violent and sexual offences. • Planning and implementation of a disclosure policy that safeguards and protects the public.

as presenting a risk or potential risk of harm to children. MAPPA awareness and process training has taken place and it is proposed that this will be incorporated into basic child protection training. Crime and disorder partnerships priorities have been focused on much more visible public crime and it will now be a task of the MAPPA SMB to inform crime and disorder partnerships of its work at local level. The policy change to incorporate MAPPA work into Public Protection Units, which also manage domestic violence and child protection, does integrate the work operationally. The MAPPA SMB reports to the Local Criminal Justice Board on a quarterly basis through presentation of minutes of meetings. Identifying and Planning common training and development needs. A number of basic awareness training events to team managers and practitioners, many of whom have responsibilities to both MAPPA and child protection arrangements have taken place. This includes representatives from the primary care trust, police, NSPCC, early years,

legal services, schools, drug services, children and adult services, in addition to briefings for mental health teams and housing providers. Each of the responsible authority agencies provides training to staff in risk assessment and management and these will be reviewed to ensure that they meet the needs of MAPP arrangements. Preparing and Planning the Annual Report The SMB has overall responsibility for the Annual Report, in partnership with the Probation Board and the Local Criminal Justice Board. Planning the longer-term development of MAPPA The SMB have a responsibility in ensuring that legislative and procedural change are reflected in process and there is appropriate and timely response to any changes that takes place within the criminal justice system.

Establish connections with other public protection arrangements. The MAPPA SMB has established excellent links with the 3 Local Safeguarding Children Boards (these Boards replaced the Area Child Protection Committees) and there is significant overlap of membership. MAPPA is recognised as part of the LSCBs mechanisms available in managing individuals who have been identified

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Key Contacts
Lancashire Probation area
Colin Dearden, Deputy Chief Officer colin.dearden@lancashire.probation.gsi.gov.uk 99/101 Garstang Road PRESTON PR1 1LD Tel: 01772 201 209 Anne Matthews, Communication Officer anne.matthews@lancashire.probation.gsi.gov.uk 99/101 Garstang Road PRESTON PR1 1LD Tel: 01772 201 209

Lancashire Constabulary
Superintendent Graham Gardner graham.gardner284@lancashire.pnn.police.uk Lancashire Constabulary HQ Hutton PRESTON PR4 5SB Tel: 01772 209070 Liz Riding PR and Press Manager elizabeth.riding@lancashire.pnn.police.uk Lancashire Constabulary HQ Hutton PRESTON PR4 5SB Tel: 01772 412658

NW Prison Region
Mark Hanson mark.hanson2@hmps.gsi.gov.uk Risk Management Co-ordinator NW Area Office Stirling House Ackhurst Business Park Foxhole Road CHORLEY PR7 1NY Tel: 01257 248628

Victim Support Lancashire Contacts
Eastern District 0845 273 2456 Central & Southern District 01772 201142 Northern District 01253 626193 Area Office 01772 828422 National Helpline 0845 30 30 900

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Lancashire Area MAPPA Business Plan
INTRODUCTION
The purpose of the Strategic Management Board (SMB) is to keep the Multi-Agency Public Protection Arrangements (MAPPA) under review. This will be done by monitoring their effectiveness and making any changes to them that appear necessary or expedient. The SMB will provide a framework which will help to shape the development of MAPPA in Lancashire. It will ensure that appropriate protocols are in place and that representation is made by relevant agencies in a way which is consistent and reflects their responsibilities. Within this broad brief the SMB has five principal tasks. They are:
• Monitoring and evaluation of the operation of the MAPPA • Making connections with other forums which support the operation of public protection, e.g. Local Safeguarding Children Boards, Lancashire Criminal Justice Board and Crime and Disorder Partnerships • Publishing an Annual Report and promoting the work of MAPPA to help raise community awareness and increase public confidence • Planning the longer-term development of MAPPA in the light of legislative/procedural change and any other changes taking place in the criminal justice system • Identifying, planning and arranging delivery of relevant training

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Lancashire Area MAPPA Business Plan
TASKS AND ACTIVITIES
The main tasks/activities are as follows: 1. Continue to fund and support a full-time MAPPA Co-ordinator post and provide, where possible, admin support to the MAPPA process 2. To provide adequate support and training for the two lay adviser members of the SMB 3. To prepare and publish an Annual Report 4. To continue to develop links with other forums which support public protection arrangements 5. To source and/or develop and deliver appropriate training for staff in relevant agencies 6. To maintain public protection units in Lancashire and work towards developing multi-agency units 7. To review any MAPPA cases where a further serious offence whilst under supervision has occurred 8. To maintain close links with local Public Protection Unit Lead Officers 9. To apply relevant monitoring and evaluation methods to MAPPA processes, including dip sampling 10.To keep under review existing protocols to aid the efficient operation of the SMB 11.To consider the implications of the planned merger between Lancashire and Cumbria Constabularies 12.To develop links into National PPU in order to remain sighted on national developments, including procedural/legal changes as well as good practice and lessons learned from other geographic areas

13.To develop a Communication Strategy to raise awareness and understanding of MAPPA and provide reassurance to partners and public alike.

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Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND TIMESCALE • Regular supervision being provided by Probation Service Line Manager COMPLETION OUTCOME RISK 1. Continue to fund and support a fulltime MAPPA Co-ordinator and explore opportunities to provide where possible admin support to the MAPPA process • Police and Probation to continue • Police and Probation budgetary provision for the Service full-time MAPPA Co-ordinator • To explore opportunities to provide enhanced admin support • To ensure that the Co-ordinator receives support, supervision and training appropriate to the role. • Responsible Authorities • Responsible Authorities Full time Co-ordinator took up appointment on the 4th July 05 That the MAPP arrangements will not be co-ordinated and that the SMB is unable to undertake its monitoring and evaluation function Inability to undertake the role to the required standard and failure to provide the SMB with an adequate service.

2. To provide adequate support and training for the 2 lay adviser members of the SMB

• To support two lay advisers. They will be members of the SMB and assist in the MAPPA review functions but not operational decision making.

• MAPPA Co-ordinator

• To ensure that the two lay advisers receive adequate training and support during 2006/07

To enable two lay advisers to contribute fully as members of the SMB, and encourage them to challenge where appropriate

Failure to fully engage the lay advisers will result in them struggling to make a full contribution to SMB

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Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND TIMESCALE • 31 July 2006 COMPLETION OUTCOME RISK 3. To prepare and publish an Annual Report • To prepare and publish an Annual Report which sets out the work of the SMB during 2005/06, the role fulfiled by the constituent agencies and the effectiveness of the MAPP arrangements. Statistical information will be included to show the number of cases dealt with under the MAPP arrangements and levels of re-offending. Publication of the report will be accompanied by a press release. • SMB Full time Co-ordinator took up appointment on the 4th July 05 To publish an Annual Report by the agreed deadline which adequately reviews the work of MAPPA in Lancashire in 2005/06 That there is no formal review of MAPP arrangements for 2005/ 2006

4. To develop links with other forums which support public protection arrangements

• To share this Business Plan for 2006/07 and the Annual Report 2005/06 with the Local Safeguarding Children Boards, the 14 Crime and Disorder Partnerships and the Local Criminal Justice Board

• Chair of SMB

• Business Plan (31 May 2006) Annual Report (31 July 2006)

To achieve awareness amongst key partners of MAPP arrangements and to maximise opportunities for joint training

That MAPPA operate in a vacuum and that lack of connectivity results in greater risk to public safety

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Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND TIMESCALE COMPLETION OUTCOME RISK 5. To source and/or develop joint training for staff in relevant agencies • To undertake a mapping exercise of the training needs of staff in other agencies which have a ‘duty to co-operate’. • An annual regional conference will be held for SMB members to share national developments and best practice • To provide training and guidance for police and probation managers who chair MAPPP • SMB • Responsible Authorities • Responsible Authority To ensure that agencies with a duty to co-operate are able to fulfil their obligations to MAPPA To enable managers chairing MAPPPs to do so with confidence and competence That there is a lack of ownership and engagement with the MAPPA process That MAPPPs are poorly chaired, that indefensible decisions are made and that meetings are inadequately minuted.

6. To maintain public protection units in Lancashire and work towards developing multi-agency units

• The police will maintain public protection units in Lancashire. They will be responsible for public protection (adults), child protection and domestic violence. All MAPP cases (levels 1, 2 and 3) will be dealt with at this local level although all level 3 cases will be notified to both police and probation headquarters

• Police

Public Protection Units are now in place

If the PPU’s are not maintained it will impair the ability of the agencies to deliver public protection in a co-ordinated and coherent way

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Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND TIMESCALE • On-going COMPLETION OUTCOME RISK 7.To share and review the findings of any MAPPA case where a further serious offence whilst under supervision has occurred • To ensure learning and continuous development. • Probation Service Cases subject to full review have been, and will continue to be, shared with the SMB To complete Without the reviews lessons will not be learnt full and or best practice shared. rigorous reviews of all cases which fall within the guidelines

8. To maintain close links with local Public Protection Unit Lead Officers

• Probation Service District Managers and Detective Inspector from each of the PPU’s will be invited to attend SMB meetings on a rota. It will be an opportunity for them to discuss their work and share issues of interest or concern. It should also help SMB members to stay in touch with MAPP issues and inform their decision making

• SMB Chair

• On-going

To ensure that the SMB understands issues arising from MAPPPs and makes informed decisions

That the SMB makes ill-informed decisions due to a lack of communication with MAPPP Chairs and understanding of issues

9. To apply relevant monitoring and evaluation methods to the MAPP process, including dip sampling

• A key function of the SMB is to • Responsible monitor and evaluate the Authority operation of MAPP arrangements. The aim in 2006/07 to produce a quarterly report to SMB which will enable it to monitor the effectiveness of the MAPP arrangements.

• From 1 April 2006

To enable the SMB to monitor and evaluate the MAPP arrangements in Lancashire

Inability to monitor or evaluate the MAPP arrangements satisfactorily

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Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND TIMESCALE •On-going COMPLETION OUTCOME RISK 10. To review existing protocols to aid the efficient operation of the SMB • To achieve agreement and understanding with those agencies included in the MAPPA • SMB To achieve agreed understandin gs about roles, responsibilitie s, procedures and confidentiality between the key stakeholders Better services provided across large force To avoid disagreement and misunderstandings which could adversely affect the smooth delivery of the arrangements.

11. To consider the implications of the planned amalgamation merger between Lancashire and Cumbria Constabularies

• To ensure a smooth transition that builds on current good practice in both areas

• SMB

• On-going until 31st March 2007

That the amalgamation will lead to a decrease in public protection due to un-coordinated activity

12. To ensure links into National PPU in order to remain sighted on national developments including procedural/legal changes as well as good practice and lessons learned from other geographic areas

• To pick up on any lessons learned or good practice nationally

• MAPPA Co-ordinator

• On-going until 31st march 2007

Better informed SMB leading to continually improving service

Failing to learn lessons or adopt identified good practice and therefore suffering preventable harm to public

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Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND TIMESCALE • On-going until 31st march 2007 COMPLETION OUTCOME RISK 12. To ensure links into National PPU in order to remain sighted on national developments including procedural/legal changes as well as good practice and lessons learned from other geographic areas 13. To develop a Communication Strategy • To pick up on any lessons learned or good practice nationally • MAPPA Co-ordinator Better informed SMB leading to continually improving service Failing to learn lessons or adopt identified good practice and therefore suffering preventable harm to public

• To raise awareness and understanding of MAPPA and provide reassurance to partners and the public

• SMB

• On-going

The good work Widespread understanding undertaken being undermined by mis of MAPPA information / negative reporting

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Glossary of Terms
The Responsible Authority
The Police, Probation Service and Prison Service are the “Responsible Authority” for MAPPA.

LSCBs /ACPC
Local Safeguarding Children Boards /Area Child Protection Committees

OASYs
Offender Assessment System. A structured system by which all offenders are assessed and include a risk of harm assessment.

MAPPA
Multi Agency Public Protection Arrangements. The statutory arrangements for managing risk presented by violent and sexual offenders. MAPPP MAPP Panels – Multi agency panels which assess risk and determine multi agency action plans.

SMB
Strategic Management Board – comprises the 3 “Responsible Authority” Agencies and the agencies with “a duty to cooperate”. (Health, Social Services, Housing,YOTs, Education etc).

VLO
Victim Liaison Officer, employed by the Probation Service, these officers contact victims of sexual and violent crime and, if agreed, keeps them informed about key dates in a sentence, and enables the victim to comment on release arrangements.

SSD
Social Services Department

PPU
Public Protection Unit - a national unit based at the National Probation Directorate, which has oversight of MAPP Arrangements and of the very high risk offenders. Locally each Police Division in Lancashire has established PPUs to manage child protection, domestic violence, and high risk (violent and sexual) offenders.

YOT
Youth Offending Teams

VISOR
Violent and Sex Offender Register. An electronic database to facilitate tracking and information sharing.

LEA
Local Education Authority

LCJB
Local Criminal Justice Board. A top level strategic board comprising all the Criminal Justice Agencies.

NPS
National Probation Service

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Lancashire Constabulary graphics Unit 3804 (2006)