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Protecting the Public

Lancashire Area Multi Agency Public Protection Arrangements

Annual Report 2005–2006


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

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Foreword
Making our communities safer and reducing undertaken by the probation, police and community. The review is consulting a wide
re-offending is our highest priority and one of prison services, as well as by those other range of practitioners and key stakeholders
our biggest challenges. That is why the work agencies that contribute to the assessment and including the MAPPA lay advisers, and will
undertaken through these multi-agency public management of offenders. The publication of report around the end of the year.
protection arrangements (MAPPA) is so MAPPA Business Plans by each Area in this
important. The supervision and management year’s annual reports offers a helpful and Finally, in commending this report to you,
of sexual and violent offenders who pose the necessary programme of local development I want to take the opportunity to thank all
highest risk of serious harm, whether in the and review and must lead to enhanced those involved locally in working with sexual
community or in custody, is complex and practice. It will be essential that this progress and violent offenders, or in ensuring that these
challenging; and is an aspect of public service is transparent and shared with local arrangements are fit for purpose. Where
where the public rightly expects all reasonable communities. MAPPA is working well it is based on
action to be taken. maintaining high professional standards and
In addition to this, however, it is important that effective multi-agency collaboration in the
Although we have made significant progress in no opportunity is missed to consider other delivery of robust risk management plans.
the last five years with the development of measures that will further enhance public While it is not possible to eliminate risk
MAPPA across England and Wales, the review safety. That is why we are undertaking the entirely, where all reasonable action is taken
this year of a number of tragic incidents where Child Sex Offender Review, to look at how a the risk of further serious harm can be
people have been murdered or seriously particular group of offenders, who provoke reduced to a minimum and fewer victims will
injured reminded us of the importance of anxiety for many, are best managed in the be exposed to repeat offending.
reviewing performance, improving practice and
learning lessons. It is vital that these tasks are 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 employment or offering treatment for drug, relatively new offender assessment system
Strategic Management Board in Lancashire. It alcohol or mental health problems. But it also (OASys) is being bedded in and the quality of
sets out the arrangements which have been means imposing tough controls which may this will be regularly audited. Training for staff
developed over the past 5 years to protect the involve curfews, electronic monitoring, involved in the supervision of high risk
public from potentially dangerous offenders compulsory attendance at rehabilitation offenders is also a high priority as is the sharing
who are being supervised in the community. programmes, etc. Behaviour is rigorously and recording of information. The findings and
Whilst accepting at the outset that there can monitored and if it gives cause for concern the recommendations of a number of inspection
be no guarantees that such offenders will not offender can (and usually is) returned to prison. reports and enquiries will need to be
go on to commit serious further offences it progressed and new Home Office guidance will
describes robust arrangements in Lancashire to The primary concern at all times is to safeguard need to be implemented. We will also seek
assess and manage the risk presented by them. the public. But offenders are not under house more creative ways of communicating with the
arrest or 24 hour surveillance and there is media and the public in Lancashire.
These multi-agency public protection always the risk that despite our best efforts
arrangements involve police, prisons and they may reoffend as a number of national high This annual report for 2005/06 shows that
probation services working closely together. profile cases has recently demonstrated. criminal justice agencies in Lancashire are
They are assisted in this task by a number of However, our record in Lancashire has to date putting public protection at the top of their
other agencies which have a duty to been very good. We work hard to rehabilitate agendas and have robust arrangements in
co-operate. They include local authority offenders, ensuring that help and support is place to assess and manage high risk offenders.
housing, education and social services, the available to tackle their problems although we
health service, job centres and the youth match this with a tough approach to any
offending teams. The aim is to share increased risk that they may present. This
information about high risk offenders leading to report demonstrates our success over the past Chief Officer of Probation
a thorough assessment of the risk and the
action required to minimise it. Detailed risk year in managing high risk offenders in the
management plans are formulated, implemented community and the priority attached to this by
and reviewed. all the agencies that are represented on the Prison Area Manager
strategic management board.
Wherever possible steps are taken to resettle
offenders in the community when they have However, we are not complacent and there is Acting Chief Constable
completed their prison sentence. This may more to be done. Much of this is captured in
mean providing accommodation, assisting with our business plan for 2006/07. In particular, a

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

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Key Achievements 2005-2006
Lancashire MAPPA Co-ordinator sex offenders. Lancashire Constabulary have Domestic Abuse
In July 2005, Lancashire police and probation, been pro-active and have extended the system In tackling domestic violence Lancashire police
jointly funded a post in order to strengthen to include dangerous and potentially have launched a new approach when
the commitment to working together in a very dangerous offenders as well as violent investigating incidents of domestic abuse.
practical and tangible way. The post holder is offenders when subject to MAPPA oversight.
seconded from the probation service and is “Lancashire Constabulary has a ‘positive-
located at the Lancashire Constabulary HQ. The 3 public protection units in Lancashire action’ approach to domestic abuse,”
The role facilitates effective channels of managing high risk offenders have found comments Hutton Police Inspector “and
communication; working closely with the ViSOR an effective tool. 1 PPU Detective wherever possible an arrest should be made”
police public protection units in each of the 3 Constable states:
Police Basic Command Units, and with the “If and when these offenders move area they Lancashire officers attending each incident
probation teams and managers, ensuring can be tracked electronically which makes the should now complete a Domestic Abuse pack.
consistent and effective practice is maintained transfer of intelligence efficient and This ensures that a thorough investigation is
in the management of high risk offenders instantaneous. It is a confidential system that carried out and contains victim safety planning
within the MAPPA process. The role also prevents the disclosure of sensitive information information. The pack also contains useful
encompasses a duty to the Strategic being leaked into the community and as such telephone and e-mail contacts and advice of
Management Board in the collation of data, innocent persons being targeted and assaulted. where the victim can access additional
informing research, identifying and contributing The system is dynamic and additional support. There is greater emphasis on
to the delivery of training and providing a monitoring tools can be added to the system ensuring that a risk assessment in relation to
single point of contact for the Duty to Co- at the request of practitioners”. the victim is undertaken and that victim needs
operate agencies (for more details see section are identified.
on the Strategic Management Board) ViSOR is a national system, and over the next
2 years will be used by all 3 responsible Officers have access to digital cameras to take
authorities, Police, Probation and Prison to photographs of any injuries suffered by the
ViSOR enable the effective monitoring of all sexual, victim and any damage at the scene. In certain
This is an electronic monitoring system which violent and dangerous offenders. cases the Crown Prosecution Service will
is an extremely important development in the undertake prosecution against a perpetrator
management of high risk offenders. It has even without the support of the victim.
enabled police forces to monitor all registered

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

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Key Achievements 2005-2006
In the Fylde Coast 3 briefings took place for protection resources that assist in the linking this with interventions and outcomes.
Community Mental Health teams. This was a management of high risk offenders. Under To capture this information, a total of 50
response by the local Senior Probation Officer appropriate clinical supervision the Lancashire Probation cases were identified.
and Detective Sergeant to provide a basic psychologists prepare assessment reports on These were at different stages of the court
awareness and understanding of the MAPPA individuals within the MAPPA process. process, imprisonment and supervision in the
process. The briefing provided information on They are also actively engaged in undertaking community.
MAPPA legislation, how this relates to the research that has been agreed by the
Community Mental Health teams, criteria for Probation Service and more latterly by the The report is not expected to be published
referral and explanation of the ViSOR system. SMB. This includes looking at the MAPPA before June 2006 but initial findings identified a
The briefings were interactive and opportunity process and the links with mentally disordered number of positive features. These included
was provided for case study and discussion. offenders and outcomes in relation to the the quality of links between public protection
The training was attended by 41 staff from all Community Domestic Violence Programme. and the Strategic Management Board, inter-
grades. The initial feedback has been Both research documents once completed agency protocols and the shared responsibility
extremely positive should inform and improve policy and practice. between the police and probation in managing
MAPPA referrals. Work is already in progress
There is also planning for further awareness to strengthen performance in relation to
Thematic Inspection
training days, funded by the SMB partnerships, timely exchange of information between
to be delivered across the county throughout Lancashire was 1 of 8 areas selected to prisons and the community and to ensure
2006/7 participate in a Home Office joint thematic psychologists are an integral component of
inspection to examine the work undertaken MAPPA arrangements.
by probation, police and prisons in the
Forensic Psychologists inter-agency arrangements for the protection
Lancashire Probation Service employs 2 of the public.
trainee forensic psychologists. They are
entering the final stages of training and are In November 2005, the inspection team
near to achieving chartership status. Since looked at the quality of policies and
December 2005, they have been under the procedures for each agency, tracking the
line management of the MAPPA Co-ordinator effectiveness of the exchange of information,
and as such are seen as part of the public evaluating the use of assessment tools, and

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

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How MAPPA Operates in Lancashire
Case Study B The Criminal Justice Act 2003 also formalised
the involvement of other agencies which can
It was established that a convicted sex offender at HMP Wymott was corresponding in an make an important contribution to helping
inappropriate manner with a member of the public, via a church connection. The prison public offenders not to re-offend. The Act imposes a
protection team were concerned that the offender was seeking through his written correspondence ‘Duty to Co-operate’ with the Responsible
to access and target young children. Consequently the prison public protection team informed the Authority with the following agencies:
home probation officer and a MAPPP meeting was arranged prior to release. This was attended by • Local authority Housing, Education and Social
representatives from probation both in the prison and the community, prison based police, prison Services
personnel and social services. All aspects of the offender’s behaviour, whilst in prison and prior to • Health Service bodies
sentence was considered by panel members in order to establish a full picture of the risk this man • Jobcentres Plus
was considered to pose.
• Youth Offending Teams
• Registered Social Landlords
An action plan was designed to reduce the risk of the offender targeting and possibly grooming
• Electronic Monitoring providers
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 In Lancashire there has been much emphasis in
offending history to the individual he had been in written correspondence with. Relevant ensuring information sharing and disclosure is
information was shared sensitively to enable the individual to take appropriate action to protect undertaken in accordance with agreed
themselves and their family with support from agencies involved in the risk management process. protocols.

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.

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How MAPPA Operates in Lancashire
The Focus on Victims contact all victims of serious sexual and violent Lancashire Probation Service has consistently
The Government has rightly placed a greater offenders within 8 weeks of a sentence at demonstrated excellent performance levels in
emphasis upon meeting the needs of victims. Court being imposed. this area of work. Other agencies which
The Victims of sexual offending are identified provide support to victims include Victim
as a priority group within the National Victims In Lancashire, between April 2005 - March 06 Support, NSPCC, Police and Social Services
and Witnesses Strategy published in July 2003 contact has been made with 361 victims. (see section 6 key contacts).
which aimed to improve support and
protection for victims and witnesses by: As soon as an offender is sentenced to 12
months or more imprisonment for a sexual or
• reducing the adverse effects of crime on victims and
violent offence, the Victim Liaison Officer will
witnesses, and preventing secondary victimisation.
ensure the victim or victim’s family are
• encouraging more victims and witnesses to come
forward. contacted and asked if they want contact to
• offering more options to victims and witnesses,
be maintained throughout the sentence and
including alternatives to attendance at court. licence period. Once agreed the victim will be
kept informed about key dates in the
sentence. The VLO will also ensure the victims
Subsequently, the Domestic Violence Crime
views are made known to the relevant staff,
and Victims Act which received Royal assent in
including MAPPA meetings and provide advice
2004 contains further measures to improve
regarding licence conditions. Women Safety
support afforded to victims of crime. The
Workers are part of the victims unit and
most significant of these is the new Victims’
provide an important service as do all victim
Code of Practice which will again give impetus
workers to victims of serious violent sexual
to ensuring victims are the focus of attention
crime.
at the SMB.
Although it is a statutory responsibility of the
The Lancashire MAPPA SMB works very
probation service to write to the victims of
closely with the Lancashire Victim Support
serious sexual or violent crimes it is the victim
Scheme, and Victim Liaison Officers (VLO)
who decides whether there should be any
employed by Lancashire Probation Area,
contact. It is worthy of note that the

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How MAPPA Operates in Lancashire
Case Study C Risk Assessment
It is acknowledged that accurate reliable risk
Case C was serving a sentence of 14 months for offences of domestic violence. His behaviour assessment is critical to the management of
was not seen to cause a problem in the prison, however the police were aware that there had sexual violent and other dangerous offenders.
been numerous reports prior to his sentence in regard to the domestic violence matters. During OASys, short for Offender Assessment System
the course of this prison sentence he established a relationship with another woman and the is completed and used by both the probation
prison service ascertained that serious threats were continuing against his original partner. and prison service on all offenders under
supervision.
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 It is an assessment of the likelihood of further
including domestic violence officers, accommodation providers, probation, prison and social offending and risk of harm. In completing the
services were in attendance at the panel meeting. A risk management plan was developed to assessment on an offender the practitioner
protect those identified to be at risk. This included full disclosure to the new partner regarding considers a range of factors including family
Case C’s offending history in order to enable protective measures to be taken. Licence and employment history, use of illegal
conditions were instituted to prevent the offender approaching or contacting the victim on substances, alcohol, ability to manage finances
release. In addition alarm systems were installed for the victim and effective support systems and attitudes to victims. From undertaking this
identified. Work both whilst in custody and on release focussed on challenging Case C’s comprehensive assessment the practitioner is
offending behaviour. able to tailor interventions to maximise
compliance and impact on offending. This
The release plan was carefully managed by the MAPPA process and there have been no further assessment is regularly reviewed, evaluated and
offences from release to the present time. 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 Units, Detective Sergeants work with Senior This may include specialist supported housing,
mandatory OASys training this year, with Probation Officers (SPOs) to receive MAPPA mental health assessment, protection of a
particular emphasis on the necessity for referrals to ensure that the criteria for a Multi- vulnerable adult or child.
comprehensive risk management plans to be Agency Meeting is met. There are regular
in place for all offenders assessed as medium meetings and briefings for the District MAPPA Level 3 - In a small number of cases the
and high risk of harm. In addition to OASys Chairs (Detective Sergeants, SPOs, District offender is considered a very high risk and can
there are more detailed specialist assessments, Managers and Inspectors) to ensure only be managed by a plan which requires
including, sex offender, domestic violence etc. consistency of practice and opportunity to close co-operation at a senior level. In these
share concerns and issues. cases an inter-agency meeting of senior staff is
Lancashire Probation Service employs 2 called to share risk information and implement
trainee forensic psychologists. As they near an action plan which may require considerable
There are 3 levels of risk
the completion of their training they have resources.
become increasingly involved in contributing to Level 1 – These are high risk offenders who For example:
the management of high risk offenders by are managed with relevant liaison but do not
need a full multi-agency meeting to take place • High levels of police time
undertaking risk assessments and providing • Electronic monitoring
greater access to psychological services. All and can be managed effectively by a single
agency. Level 1 management primarily involves • Disclosure to a number of people
sex offenders required to register will be
probation, and Youth Offending Teams. The • Assessment regarding suitability for medium
assessed by Police or Probation using a secure units
specialist matrix which assesses the risk of majority of offenders on the sex offender
committing a further sexual offence. register fall within this category; with the police
ensuring the movements and activities of sex
offenders on the register are monitored
Risk Management throughout the registration period.
In Lancashire Police and Probation work
closely in managing MAPPA. Established Level 2 – These are high risk offenders where
systems reflect local needs whilst also there are concerns regarding the imminence
maintaining adherence national model. In each of harm and whose risk management is
of the 3 geographical Police Public Protection dependent upon the active involvement of
other agencies.

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How MAPPA Operates in Lancashire
Good risk management starts with risk The Community Sex Offender Programme:-
reduction. In Lancashire the Prisons and
Probation Service provide a range of offence
Sex Offender programmes are run in a number of prisons and in the community. This enables
focussed programmes. These have been
work to start in prisons and continue and be re-inforced after release. In Lancashire 31 offenders
accredited by the Home Office following successfully completed the CSOP in 2005/06.
extensive (and continuing) research to show
that they work. 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
In addition to intensive long-term groupwork complete 4 blocks of offence focussed work, each block runs for 1 day a week for 10 weeks.
offenders will work with their supervising Once an offender has completed the core programme he is considered for the relapse prevention
officer to reduce risk by: group which runs once a week for fifteen weeks.
• Improving relationships.
At the end of each programme block the offender’s progress is reviewed with the offender’s case
• Finding settled accommodation.
manager and programme tutor. The meeting focuses on the progress the offender has made with
• Improving basic skills to get a job.
regard to the risk he presents to others and provides a platform for identifying future work
• Reducing or stop using alcohol. needed to reduce risk further.

These strategies enable offenders to develop Currently in Lancashire there are 4 core groups with 10 offenders in each group and a relapse
their own controls and think about the effect prevention group, which all the offenders must complete before they finish the programme. One
they have had on their victims. In the of the core groups and the relapse prevention group are run in the evening to accommodate
forthcoming year Lancashire is increasing their those offenders in employment.
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 Number of Offenders
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)
The number of RSO’s living per BCU on 31/3/2006
Lancashire BCU Area Number of RSO’s living
Western / Northern 198 / 167
Southern / Central 135 / 75
Eastern / Pennine 236 / 130

i) The number of RSOs living in Lancashire on 31st March 2006. 941

ii) The number of RSOs per 100'000 head of population. (This figure will be calculated centrally by NPD) 66

iii) The number of sex offenders having a registration requirement who were either cautioned or convicted for 40
breaches of the requirement, between 1st April 2005 and 31st March 2006

iv) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for a) 49
(b) interim SOPOs granted and b) 8
(c) full SOPOs imposed by the courts in Lancashire between 1st April 2005 and 31st March 2006 c) 29

v) The number of (a) Notification Orders applied for a) 0


(b) interim Notification Orders granted and b) 0
(c) full Notification Orders imposed by the courts in Lancashire between 1st April 2005 & 31st March 2006 c) 0

vi) The number of Foreign Travel Orders (a) applied for and a) 0
(b) imposed by the courts in Lancashire between 1st May 2004 & 31st March 2005 b) 0

21
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 309
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 67
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) Level 3 Level 2
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. RSO 11 68
V&O 8 41
OthO 5 58

(x) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2005 and 31st March 2006 how many, whilst Level 3 Level 2
managed at that level:
(a) Were returned to custody for a breach of licence? a) 6 19
(b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? b) 1 13
(c) Were charged with a serious sexual or violent offence? c) 0 1

22
Statistical Information
Commentary: unrealistic to expect that it could guarantee to
The number of Registered Sex Offenders prevent every serious offender from
recorded living in Lancashire March 06 of 941 committing further crime.
shows a slight decrease to last years figure of
980. From the 191 offenders managed under the
MAPP arrangements only 1 offender during
This is as a result of improved information 2005/06 went on to commit a further offence.
technology and data cleansing that has ensured The offender was immediately returned to
clarity in the identification of MAPPA cases by prison.
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

23
The Strategic Management Board
The Strategic Management Board, oversees, observe MAPPA meetings and a visit to HMP Membership of the Board includes:
monitors and evaluates the MAPPA operation. Wymott. • Police
At the beginning of this year the Police • Probation
Superintendent took over from the Deputy The National Training, however was felt to be • NW Prisons Service
Chief Officer of Probation, as Chair of the of an excellent standard.
• Youth Offending Service
Strategic Management Board. The Board
• Social Service Departments
meet quarterly. Julie has expressed concern that the SMB
• Safeguarding Children Boards
meetings can be dominated with statistical
• Local Education Authority
The appointment of 2 lay advisers has information, business plans and thematic
provided the SMB with opportunity to listen inspections, rather than individual case • Primary Care Trusts and Lancashire Care Trust
to the voice of a ‘critical friend’. This is a new discussion that would provide opportunity for • District Housing Officer
role and has brought about a lot of learning more shared learning. • NSPCC
opportunities for all concerned • Victim Support
However she concludes that the commitment • 2 lay advisers
Julie Sanderson in describing her experience and enthusiasm of the Board is clearly visible
comments “The role of lay adviser is certainly and the meetings do provide opportunity for The key functions of the Board are:
not without difficulties and can be somewhat the public representative to observe “ the very
Monitoring and evaluation of MAPPA operation.
overwhelming on first taking up appointment. difficult and thankless task faced by its
I was very impressed at the seriousness and members and their staff ” The SMB ensures that the MAPPA process is
professionalism employed in the recruitment working effectively, assessing and reviewing the
process ….. however a local familiarisation, The lay advisers have also been involved in a work undertaken , and setting objectives for
induction package would have been helpful in number of sub groups, this includes looking at the year ahead.
settling into what could be described as a areas such as the disclosure policy and
somewhat potential intimidating experience.” mentally disordered offenders. Statistical information is provided that allows,
opportunity to consider trends and imbalances
This has been addressed more latterly with between areas.This can lead to the identification
the appointment of the MAPPA Co-ordinator of training needs for specific agencies or highlight
and opportunities have been provided to the need for more in-depth research.

24
The Strategic Management Board
The SMB can consider more detailed as presenting a risk or potential risk of harm legal services, schools, drug services, children
information from MAPP Panel Chairs regarding to children. MAPPA awareness and process and adult services, in addition to briefings for
any significant and repeated problems in training has taken place and it is proposed that mental health teams and housing providers.
relation to implementing effective risk this will be incorporated into basic child Each of the responsible authority agencies
management plans. protection training. provides training to staff in risk assessment and
management and these will be reviewed to
In consequence specific pieces of work have Crime and disorder partnerships priorities ensure that they meet the needs of MAPP
been commissioned to: have been focused on much more visible arrangements.
• Develop strategies for the effective management of public crime and it will now be a task of the
mentally disordered potential offenders. MAPPA SMB to inform crime and disorder
Preparing and Planning the Annual Report
• Identification of Single Points of Contacts with partnerships of its work at local level. The
policy change to incorporate MAPPA work The SMB has overall responsibility for the
housing providers regarding housing provision for
potentially dangerous offenders. into Public Protection Units, which also manage Annual Report, in partnership with the
• Review the issues of young (under 18) offenders domestic violence and child protection, does Probation Board and the Local Criminal Justice
who commit violent and sexual offences. integrate the work operationally. Board.
• Planning and implementation of a disclosure policy
that safeguards and protects the public. The MAPPA SMB reports to the Local Planning the longer-term development of MAPPA
Criminal Justice Board on a quarterly basis The SMB have a responsibility in ensuring that
through presentation of minutes of meetings. legislative and procedural change are reflected
Establish connections with other public in process and there is appropriate and timely
protection arrangements. response to any changes that takes place
Identifying and Planning common training and
The MAPPA SMB has established excellent within the criminal justice system.
development needs.
links with the 3 Local Safeguarding Children
A number of basic awareness training events
Boards (these Boards replaced the Area Child
to team managers and practitioners, many of
Protection Committees) and there is significant
whom have responsibilities to both MAPPA
overlap of membership. MAPPA is recognised
and child protection arrangements have taken
as part of the LSCBs mechanisms available in
place. This includes representatives from the
managing individuals who have been identified
primary care trust, police, NSPCC, early years,

25
Key Contacts
Lancashire Probation area Lancashire Constabulary NW Prison Region

Colin Dearden, Deputy Chief Officer Superintendent Graham Gardner Mark Hanson
colin.dearden@lancashire.probation.gsi.gov.uk graham.gardner284@lancashire.pnn.police.uk mark.hanson2@hmps.gsi.gov.uk
99/101 Garstang Road Lancashire Constabulary HQ Risk Management Co-ordinator
PRESTON Hutton NW Area Office
PR1 1LD PRESTON Stirling House
Tel: 01772 201 209 PR4 5SB Ackhurst Business Park
Tel: 01772 209070 Foxhole Road
Anne Matthews, Communication Officer CHORLEY
anne.matthews@lancashire.probation.gsi.gov.uk Liz Riding PR and Press Manager PR7 1NY
99/101 Garstang Road elizabeth.riding@lancashire.pnn.police.uk Tel: 01257 248628
PRESTON Lancashire Constabulary HQ
PR1 1LD Hutton
Tel: 01772 201 209 PRESTON Victim Support Lancashire Contacts
PR4 5SB
Tel: 01772 412658
Eastern District
0845 273 2456
Central & Southern District
01772 201142
Northern District
01253 626193

Area Office
01772 828422

National Helpline
0845 30 30 900

26
Lancashire Area MAPPA Business Plan
INTRODUCTION Within this broad brief the SMB has five
The purpose of the Strategic Management principal tasks. They are:
• Monitoring and evaluation of the operation of the
Board (SMB) is to keep the Multi-Agency
MAPPA
Public Protection Arrangements (MAPPA)
• Making connections with other forums which
under review. This will be done by monitoring support the operation of public protection, e.g. Local
their effectiveness and making any changes to Safeguarding Children Boards, Lancashire Criminal
them that appear necessary or expedient. Justice Board and Crime and Disorder Partnerships
• Publishing an Annual Report and promoting the
The SMB will provide a framework which will work of MAPPA to help raise community awareness
help to shape the development of MAPPA in and increase public confidence
Lancashire. It will ensure that appropriate • Planning the longer-term development of MAPPA in
protocols are in place and that representation the light of legislative/procedural change and any
other changes taking place in the criminal justice
is made by relevant agencies in a way which is
system
consistent and reflects their responsibilities.
• Identifying, planning and arranging delivery of
relevant training

27
Lancashire Area MAPPA Business Plan
TASKS AND ACTIVITIES 6. To maintain public protection units in 12.To develop links into National PPU in order to
Lancashire and work towards developing remain sighted on national developments,
The main tasks/activities are as follows:
multi-agency units including procedural/legal changes as well as
good practice and lessons learned from other
1. Continue to fund and support a full-time geographic areas
MAPPA Co-ordinator post and provide, where 7. To review any MAPPA cases where a further
possible, admin support to the MAPPA serious offence whilst under supervision has
process occurred
13.To develop a Communication Strategy to raise
awareness and understanding of MAPPA and
2. To provide adequate support and training for 8. To maintain close links with local Public
provide reassurance to partners and public
the two lay adviser members of the SMB Protection Unit Lead Officers
alike.

3. To prepare and publish an Annual Report 9. To apply relevant monitoring and evaluation
methods to MAPPA processes, including dip
sampling
4. To continue to develop links with other forums
which support public protection arrangements
10.To keep under review existing protocols to aid
the efficient operation of the SMB
5. To source and/or develop and deliver
appropriate training for staff in relevant
agencies 11.To consider the implications of the planned
merger between Lancashire and Cumbria
Constabularies

28
Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND COMPLETION OUTCOME RISK
TIMESCALE

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

2. To provide adequate • To support two lay advisers. • MAPPA • To ensure that To enable Failure to fully engage the
support and training for They will be members of the Co-ordinator the two lay two lay lay advisers will result in
the 2 lay adviser members SMB and assist in the MAPPA advisers receive advisers to them struggling to make a
of the SMB review functions but not adequate contribute full contribution to SMB
operational decision making. training and fully as
support during members of
2006/07 the SMB, and
encourage
them to
challenge
where
appropriate

29
Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND COMPLETION OUTCOME RISK
TIMESCALE

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

4. To develop links with other • To share this Business Plan for • Chair of SMB • Business Plan To achieve That MAPPA operate in
forums which support 2006/07 and the Annual Report (31 May 2006) awareness a vacuum and that lack
public protection 2005/06 with the Local Annual Report amongst key of connectivity results
arrangements Safeguarding Children Boards, (31 July 2006) partners of in greater risk to public
the 14 Crime and Disorder MAPP safety
Partnerships and the Local arrangements
Criminal Justice Board and to
maximise
opportunities
for joint
training

30
Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND COMPLETION OUTCOME RISK
TIMESCALE

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

6. To maintain public • The police will maintain public • Police Public If the PPU’s are not
protection units in protection units in Lancashire. Protection maintained it will impair
Lancashire and work They will be responsible for Units are the ability of the agencies
towards developing public protection (adults), child now in place to deliver public
multi-agency units protection and domestic protection in a
violence. All MAPP cases (levels co-ordinated and coherent
1, 2 and 3) will be dealt with at way
this local level although all level
3 cases will be notified to both
police and probation
headquarters

31
Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND COMPLETION OUTCOME RISK
TIMESCALE

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

8. To maintain close links with • Probation Service District • SMB Chair • On-going To ensure That the SMB makes
local Public Protection Unit Managers and Detective that the SMB ill-informed decisions
Lead Officers Inspector from each of the understands due to a lack of
PPU’s will be invited to attend issues arising communication with
SMB meetings on a rota. It will from MAPPP Chairs and
be an opportunity for them to MAPPPs and understanding of issues
discuss their work and share makes
issues of interest or concern. It informed
should also help SMB members decisions
to stay in touch with MAPP
issues and inform their decision
making

9. To apply relevant • A key function of the SMB is to • Responsible • From 1 April To enable the Inability to monitor or
monitoring and evaluation monitor and evaluate the Authority 2006 SMB to evaluate the MAPP
methods to the MAPP operation of MAPP monitor and arrangements
process, including dip arrangements. The aim in evaluate the satisfactorily
sampling 2006/07 to produce a quarterly MAPP
report to SMB which will enable arrangements
it to monitor the effectiveness of in Lancashire
the MAPP arrangements.

32
Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND COMPLETION OUTCOME RISK
TIMESCALE

10. To review existing • To achieve agreement and • SMB •On-going To achieve To avoid disagreement
protocols to aid the understanding with those agreed and misunderstandings
efficient operation of the agencies included in the MAPPA understandin which could adversely
SMB gs about affect the smooth
roles, delivery of the
responsibilitie arrangements.
s, procedures
and
confidentiality
between the
key
stakeholders

11. To consider the • To ensure a smooth transition • SMB • On-going until Better That the amalgamation
implications of the that builds on current good 31st March services will lead to a decrease in
planned amalgamation practice in both areas 2007 provided public protection due to
merger between across large un-coordinated activity
Lancashire and force
Cumbria Constabularies

12. To ensure links into • To pick up on any lessons • MAPPA • On-going until Better Failing to learn lessons
National PPU in order to learned or good practice Co-ordinator 31st march informed or adopt identified good
remain sighted on nationally 2007 SMB leading practice and therefore
national developments to continually suffering preventable
including procedural/legal improving harm to public
changes as well as good service
practice and lessons
learned from other
geographic areas

33
Lancashire Area MAPPA Business Plan
TASK/ACTIVITY COMMENT RESPONSIBILITY ACTION AND COMPLETION OUTCOME RISK
TIMESCALE

12. To ensure links into • To pick up on any lessons • MAPPA • On-going until Better Failing to learn lessons
National PPU in order to learned or good practice Co-ordinator 31st march informed or adopt identified good
remain sighted on nationally 2007 SMB leading practice and therefore
national developments to continually suffering preventable
including procedural/legal improving harm to public
changes as well as good service
practice and lessons
learned from other
geographic areas

13. To develop a • To raise awareness and • SMB • On-going Widespread The good work
Communication Strategy understanding of MAPPA and understanding undertaken being
provide reassurance to partners of MAPPA undermined by mis
and the public information / negative
reporting

34
Glossary of Terms
The Responsible Authority LSCBs /ACPC OASYs
The Police, Probation Service and Prison Service Local Safeguarding Children Boards /Area Child Offender Assessment System. A structured
are the “Responsible Authority” for MAPPA. Protection Committees system by which all offenders are assessed and
include a risk of harm assessment.
MAPPA SMB
Multi Agency Public Protection Arrangements. The Strategic Management Board – comprises the 3 VLO
statutory arrangements for managing risk “Responsible Authority” Agencies and the Victim Liaison Officer, employed by the Probation
presented by violent and sexual offenders. agencies with “a duty to cooperate”. (Health, Service, these officers contact victims of sexual
Social Services, Housing,YOTs, Education etc). and violent crime and, if agreed, keeps them
MAPPP MAPP Panels – Multi agency panels informed about key dates in a sentence, and
which assess risk and determine multi agency SSD enables the victim to comment on release
action plans. Social Services Department arrangements.

PPU YOT VISOR


Public Protection Unit - a national unit based at Youth Offending Teams Violent and Sex Offender Register. An electronic
the National Probation Directorate, which has database to facilitate tracking and information
oversight of MAPP Arrangements and of the very LEA sharing.
high risk offenders. Locally each Police Division in Local Education Authority
Lancashire has established PPUs to manage child
protection, domestic violence, and high risk LCJB
(violent and sexual) offenders. Local Criminal Justice Board. A top level strategic
board comprising all the Criminal Justice
NPS Agencies.
National Probation Service

35
Lancashire Constabulary graphics Unit 3804 (2006)