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Multi-Agency Public Protection Arrangements
Annual Report 2005 - 2006

Helping to keep Lincolnshire safe
A partnership between public services to reduce the likelihood of harm presented by specified individuals.

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3(i) Publish improved MAPPA Annual Report in consultation with SMB and Lay Members with developed capacity for public engagement and understanding. 3(ii) Ensure appropriate attendance at National MAPPA Conference

Implement as previously with attention to improvements which can be made.

In line with national timescale.

Financial costs to be minimised by use of electronic distribution where possible.

Constant endeavour for improved dialogue with the public.

Page Ministerial Foreword Introduction Message from the Strategic Management Board 2 3 4 5 5 6-7 8 8 8 9 10 10 11 11 12 13 14 14 15 15 16 17 18 19 20-23 24 25-28

All agencies to give priority to appropriate attendance.

In line with national timescale.

Staff time for participating agencies.

Better understanding of national priorities.

Which agencies are involved in MAPPA? The importance of partnership

3(iii) Create communication system for the distribution of guidance and good practice which is shared from responsible authority national steering group. In conjunction with the Lincolnshire Safeguarding Children Board develop local initiatives, where possible, to implement: • Leisurewatch • Stop It Now • Circles of Support

To be devised by MAPPA administration.



More timely and structured communication.

Roles and responsibilities Which offenders are managed by MAPPA? How is risk assessed? How are the cases managed? Disclosure

Seek introduction of all three Home Office supported initiatives and seek to publicise where appropriate.

To be achieved within business year.

MAPPA staff and SMB member time.

Greater public protection in relation to sex offenders.

Public Protection Unit Work with victims Lincolnshire Multi-Agency Public Protection Procedures

4(i) Support the attendance of Lay Members at local and national training events. 4(ii) Ensure appropriate attendance at national MAPPA Co-Coordinators Conference. 4(iii) Develop training plan to include: Lay Members to continue attendance at relevant national and local training events. As required. Cost to be met by partners. Better equipped Lay Members.

Review Meeting Process Case study – A Case study – B Case study – C Key achievements in 2005 / 2006

MAPPA staff to attend as appropriate.

As required.

Cost to be met by partners.

Better equipped co-coordinators.

Commentary on 2005/ 2006 Statistics Offenders MAPPA Annual Report Statistical Information

MAPPA Manager, in consultation with Responsible Authority and Duty to Co-operate training departments to produce training strategy which builds upon the present skills and knowledge of staff and SMB members.

Strategy to be produced to SMB by July 2006 and reviewed October 2006.

There may be costs attached and these should be set out within the Plan.

Improved skill and knowledge of staff and SMB members.

Further developments 2005 / 2006 Strategic Management Board Key Personnel Contact Details Business Plan 2006-2007
Front cover photographs courtesy of Lincoln City Council



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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.


2(I) Create Audit Sub-Group.

MAPPP Manager Chair Sub Group to review and develop audit arrangements and advise SMB.

Group to be constituted by June 2006. Group to report to SMB meetings quarterly.

No additional resource required.

Improved auditing arrangements.

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.

Gerry Sutcliffe MP Parliamentary Under Secretary of State for Criminal Justice and Offender Management

2(ii) SMB to monitor: • Publication of Annual Report • Analysis of MAPPA offenders who commit serious further offences • Attendance and co-operation of agencies at Level 2 & 3 • Profile of offenders at Level 2 & 3.

Report to be approved by SMB prior to publication as previously achieved. SMB to receive analysis of any case where Serious Further Offence has occurred. Clarify Serious Further Offence procedures by all agencies. Review relevant single agency or multi agency reports in relation to MAPPA offenders. Continued attention to offender profiling information received at SMB meetings

Annual report to be published as required nationally. Serious Further Offence reciprocal arrangements in place with East Midlands MAPPA. Sharing of Serious Further Offence reports needs confirmation with individual agencies or strategic bodies (e.g. Safeguarding Board).

No additional resource required.

Better learning from critical incident reporting.

2(iii) Implement MAPPA performance indicators once produced nationally.

Implement performance framework and adapt SMB reports to capture performance information as required nationally.

In line with national timescales.

Not known.

National consistency.

2(iv) Implement recording and data collation in line with national requirements.

Implement as required nationally.

In line with national timescales.

Not known. May require amendments to local protocol in relation to confidentiality agreements etc.

National consistency.

2(v) Develop Serious Case Review procedures in line with national guidance.

Implement as required nationally.

In line with national timescale.

Not known.

National consistency.



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In producing this foreword to the Annual Report on the Multi Agency Public Protection Arrangements (MAPPA) in Lincolnshire, it is important to remember that we live in a very safe county with low levels of violent crime. For example, during the last year, serious violent crime in the county has fallen by 9% and the number of offenders under MAPPA has fallen by 11%. This report concentrates on explaining how MAPPA works and its success in the past year, but we know we cannot stand still. Within this report you will find our Business Plan (Appendix A) which will form the basis of our work on public protection over the next three years. Public protection arrangements are sometimes, wrongly, seen as dealing solely with individuals who offend sexually against children. In reality, MAPPA is there to deal with any potentially dangerous offender. Sexual and violent offences are dreadful crimes, which deeply affect the lives of victims and their families and create fear in local communities.The impact can be profound and long-lasting, leaving victims feeling unsafe even in their own homes. The Government, through Lincolnshire Police, the National Probation Service, Her Majesty’s Prison Service and our partner organisations, regards tackling sexual and violent crime as one of its highest priorities. We know that working together is the best way to protect the public,and this year Lincolnshire has created a Children’s Safeguarding Board and the Police have formed a Public Protection Unit to focus on Sex Offender Management, Domestic Violence, Child and Adult Abuse investigation. MAPPA was set up in 2001, providing, for the first time, a statutory basis for the Police and National Probation Service jointly to undertake work to protect the public from sexual and violent offenders. In the last year we have continued to strengthen these arrangements and the wider public protection framework. In 1999 Lincolnshire became one of the first areas in the country to have a Multi Agency Public Protection Panel to deal with offenders who posed the highest and most immediate risk of harm. As this Annual Report again confirms,this work has been highly successful.None of the

offenders identified as presenting greatest risk has committed any notifiable offences during the year covered by this Report. Through the vigilance of Probation, Prison and Police staff, in co-operation with other organisations, a number of potentially high risk offenders have been recalled to prison before any new offence was committed. Public sector organisations are required to co-operate in Public Protection Arrangements. In Lincolnshire such co-operation has long been the case and we have been able to build on what were already very high levels of co-operation as the case studies in this Report confirm. The work of our multi-agency partnership concentrates on protecting specific individuals and the general public from those who could inflict physical or sexual harm on adults or children. We believe that the arrangements in Lincolnshire are highly effective in dealing with the relatively small number of offenders who are in this category. Our efforts to control the behaviour of sexual and violent offenders have been strengthened by the additional powers of recent legislation which we are committed to using whenever possible. In addition to continuing our work with a wide range of organisations to ensure public protection, the two lay advisers who joined the Strategic Management Board last year have ensured that public concerns are fully considered.

1(i) Achieve dedicated MAPPA co-coordinator and administrator capacity in accordance with national guidelines.

Complete work to secure additional administrative resource. Review administrative roles to ensure complementary working arrangements.

Complete work by August 2006. Resume bids September 2006 if there is a shortfall.

Additional resources being pursued.

Cost of administration of MAPPA 2 more evenly distributed.

1(ii) Review SMB membership to ensure most effective representation.

Consider representation in the context of children and adult services directorate, youth offending services and victim’s representation. Review SMB membership to other relevant strategic bodies e.g. Criminal Justice Board, Safeguarding Board etc.

Complete review by September 2006.

Review may result in SMB members representing MAPPA on other bodies.

Strengthening of strategic partnership with agencies and other strategic bodies.

1(iii) Implement revised national MAPPA guidance.

Review guidance and create action plan to identify any change areas with timescales.

Within 3 months of national publication (or earlier if required by the guidance).

Dependent upon national guidance.

Improved national consistency.

Tony Lake Chief Constable Lincolnshire Police

Graham Nicholls Chief Officer National Probation Service, Lincolnshire

Bob Perry Area Manager Her Majesty’s Prison Service



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Multi agency public protection arrangements are accountable to the public they serve and work to protect. There is much the public can do to support these arrangements and it is the responsibility of the MAPPA Strategic Management Board to research and develop effective initiatives to help local people protect themselves and those in their community. Two members of the public (Lay Members) sit on the Strategic Management Board and represent the views of ordinary people in Lincolnshire. They play a full part in the decision making about work to be pursued and receive regular information about the meetings of panels and the types of cases managed. They also have access to statutory facilities used by the agencies and can ask questions and see for themselves the controls and interventions being provided. If you would like to raise any points with the Lay Members you can contact them via the MAPPP Manager. The MAPPA Strategic Management Board has worked closely with the Lincolnshire Safeguarding Children Board to establish the Leisurewatch initiative. This project trains staff working in the leisure industry (sports centres, shopping arcades, swimming pools etc) to identify risky behaviour by adults. The project also equips staff with the knowledge of procedures to notify their concern to relevant agencies so that action can be taken. Adults do see behaviours which they believe to be inappropriate and often feel ill-equipped to know how they should intervene. For example, a man seen approaching children in a swimming pool can be notified to the police by pool staff under the Leisurewatch scheme.The man may be known to the police for previous such behaviours. He may even be subject to legal restrictions which forbid his making contact with children. In these circumstances the police or probation service may be able to prosecute or return an offender to custody. The Leisurewatch project will harness the eyes, ears and civic responsibilities of the public with the powers of the statutory agencies to protect children in Lincolnshire. The project will commence in the east of the county because of the significant number of leisure

facilities in that area and will be extended throughout Lincolnshire. Other projects in early stages of development include: • Stop It Now – This is a national project which provides information and advice to anyone concerned about a risk of sexual offending. A person concerned that a neighbour’s child is being abused, a parent worried that their partner may be a perpetrator of abuse or indeed an individual concerned that they themselves are accessing inappropriate internet sites; all can seek advice and information from the project about how to put a stop to the risk. The MAPPA Strategic Management Board will be looking for ways to develop better knowledge about and access to this resource for people in Lincolnshire. • Circles of Support - A project which focuses upon a very small number of sex offenders following their release from custody. Socially isolated individuals who are shunned by society present a significantly more dangerous prospect than those in contact with responsible adults who guide them into appropriate and safe social activities. Circles of Support is about protecting children and reducing the number of victims in our society. The project formulates a group of carefully chosen and trained volunteer workers to act as mentors and monitors for selected sex offenders. They maintain very close contact with the offender and work with the individual to find appropriate and responsible ways for the offender to live in our society and make a positive contribution. The MAPPA Strategic Management Board will be seeking to develop such a project in Lincolnshire. This will be dependant upon the availability of high quality and trustworthy volunteers to undertake the work. These projects represent important ways of working together to identify and control those who perpetrate harm. They will make Lincolnshire a safer place for us to live, work and enjoy the many leisure facilities our county offers for residents and visitors.

Lincolnshire Multi-Agency Public Protection Arrangements are established in accordance with Sections 32-327 of the Criminal Justice Act 2003 and Section 69 Criminal Justice and Court Services Act 2000 for the purpose of assessing and managing the risks posed by sexual, violent and other dangerous offenders who may cause serious harm to the public, taking particular account of the needs and concerns of victims. The Business Plan identifies forward planning priorities for action by the Responsible Authority (RA) and co-operating partners during 2006-2007, aimed at achieving outcomes of: • Protection of the public, especially victims, children, vulnerable adults and additional ‘at risk’ persons. BUSINESS AREA 2: Monitoring and Evaluation • Controlled criminality and the reduction of crime and re-offending. • Community safety. • Offender awareness of the effects of crime on victims and the public. • Public confidence in the criminal justice system and the public protection activity of agencies. • Compliance with the human rights of victims, offenders and communities. BUSINESS AREA 4: Training and Development

BUSINESS PLAN 2006 – 2007


BUSINESS AREA 3: Communications

Sally Lewis Chair -Strategic Management Board



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Responsible Authority Contact Details
Lincolnshire Police
Peter Davies Assistant Chief Constable PO Box 999 Nettleham Lincoln LN5 7PH Tel: 01522 532222

National Probation Service, Lincolnshire
Sally Lewis Assistant Chief Officer 7 Lindum Terrace Lincoln LN2 5RP Tel: 01522 520776 The most important work undertaken within the MAPPA is done locally, led by the Police, Probation and Prison Service – who act together as the ‘Responsible Authority’. The experience and good practice upon which this work is based began in the 1990s – most significantly as a result of the closer working relationship required by the Sex Offender Act (1997). The Criminal Justice and Courts Services Act (2000) formalised that relationship and built on the existing experience by requiring the Police and the Probation Service to establish arrangements (the MAPPA) for assessing and managing the risks posed by certain sexual and violent offenders. The Prison Service has now joined Lincolnshire Police and the National Probation Service, Lincolnshire to become part of the MAPPA ‘Responsible Authority’.

Glen Harris Detective Chief Inspector PO Box 999 Nettleham Lincoln LN5 7PH Tel: 01522 532222

Tony Eyres Senior Probation Officer MAPPP Office PO Box 999 Nettleham Lincoln LN5 7PH Tel: 01522 532222

Key to the development of the MAPPA in recent years has been the ever closer involvement of other agencies, such as Housing, Health and Social Services, working alongside Police and Probation. The truly multi-agency nature of the MAPPA and the collaboration which underpins it, was strengthened further by the Criminal Justice Act (2003). The Prison Service, which became part of the Responsible Authority in 2004, regularly assists Lincolnshire agencies in assessing and managing the risk presented by prisoners. The Act has placed a ‘duty to co-operate’ on a wide range of organisations including Youth Offending

Her Majesty’s Prison Service
Damian Evans Governor HMP Morton Hall Swinderby Lincoln LN6 9PT Tel: 01522 666700

Teams, local Health Authorities and Trusts, Housing Authorities and registered social landlords, Social Services departments, Jobcentres and Local Education Authorities. Supporting and co-coordinating the development of the MAPPA throughout the 42 Areas of England and Wales is the National Probation Directorate’s Public Protection Unit (PPU). This Unit acts as a central point for advice and, increasingly, involvement in the management of difficult cases. These include, for example, UK citizens who have committed serious offences abroad and return to this country without anywhere to live. The Unit is also able to provide financial support when the risk-management plans make exceptional demands upon local resources.



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Lincolnshire Police
A crucially important part of the Police role is protection from harm. This includes identifying dangerous and high risk offenders and working with other organisations to manage their risk.

Homelessness Forum. John is Chair of the Boston Homelessness Forum, Lincolnshire Housing Benchmarking Group and Lincolnshire Housing Training Group. Darren Clayton Principal Housing Officer, East Lindsey District Council Darren has been working in housing since 1991 in a variety of roles with increasing responsibility and he has considerable experience in working with multi-agency public protection panels. His current role involves front line management of homelessness, housing advice and more recently housing support services. The East Lindsey Housing Support service has been acknowledged as an area of good practice within Lincolnshire by Supporting People. Darren is a corporate member of the Chartered Institute of Housing, has an MA in housing, a BA Hons in Business Studies and a postgraduate Diploma in Housing Management. May Read Housing Operational Manager, South Holland District Council May is the Chair of the Domestic Violence Forum for South Holland District Council and is a member of the Crime & Disorder Reduction Partnership. Her housing responsibilities are housing management and homelessness.

Paul Kirkham Housing Co-ordinator Acis Group Paul has worked in housing since 1992 as Housing Officer for Sanctuary Housing Association. Paul joined Acis group in 2003 as the Senior Housing Officer and in 2004 took up the post of Housing Co-ordinator. Paul manages the day to day housing management operations at Acis Group. Paul is a corporate member of the Chartered Institute of Housing, has a Professional Graduate Diploma in Housing Studies and Higher Diploma in Land Management and Administration. Paul is also a board member for the Gainsborough Early Years Centre. Nicole Norton Senior Probation Officer Nicole Norton has worked for the Lincolnshire Probation Service since 1994. After qualifying as a Probation Officer in 2000, she held management responsibility of the South Division, before becoming the Probation MAPPA Manager in May 2004. Nicole has honours degrees in European Studies and Criminal Justice and has recently completed an MSc in Forensic Psychology at Leicester University.

National Probation Service, Lincolnshire
The Probation Service has legally enshrined responsibilities towards victims and to provide public protection. The Service in Lincolnshire has carried out pioneering work in Multi-Agency Public Protection and continues to drive this work forward.

Her Majesty’s Prison Service
The risks posed by prisoners subject to MAPPA will be assessed prior to release from custody through case conferences attended by multi agency staff, such as Prison Service staff, seconded Probation Service staff, Police Liaison Officers, and nominated risk management staff. A range of measures is available to facilitate the release process, including imposing stringent and effective licence conditions.

Youth Offending Service, Lincolnshire
The Youth Offending Service manages the risk presented by offenders under 18 years and is actively involved in working in partnership in Multi Agency Public Protection Arrangements.

(**All Key Personnel information correct at time of publication – October 2006)



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David Ward Tenancy Enforcement Manager, City of Lincoln Council David has twenty years’ housing management experience. His qualifications include an MA in Housing Policy and Practice and he is a Corporate Member of the Chartered Institute of Housing. His duties include officer responsibility for anti-social behaviour, crime and disorder issues and high risk cases housed by the Authority. He represents the City of Lincoln Council at public protection meetings for high and very high risk cases. Debbie Locker Housing Services Manager, North Kesteven District Council Debbie Locker has been a core panel member since taking up the position of Housing Services Manager at North Kesteven District Council in December 2005. Her service manager role requires taking the lead responsibility for housing services functions to include; anti-social behaviour, tenancy management, housing needs, sheltered and floating support, rent administration and tenant liaison functions. Debbie started her local government career in 1978, and gained a range of local authority experience before joining Housing Services in 1988 as a housing officer. Debbie studied for the Housing Diploma at De Montfort University, Leicester and became a Member of the Chartered Institute of Housing in 1992. In July 1997 she was promoted to Housing Needs Manager, having responsibility for the homelessness, allocations, housing register and homelessness floating support functions. Debbie also acted as the lead officer for the Crime and Disorder Reduction Partnership domestic violence priority, being tasked to develop, in partnership with Victim Support, a range of services to assist victims of domestic abuse, including drop-in surgeries and a floating support service delivered throughout the district.
**Debbie Locker took over from Peter Campbell with effect from July 2006

Mandy Gee Housing Services Coordinator, South Kesteven District Council** Mandy Gee has worked for South Kesteven District Council for twenty-six years. She started work in Environmental Health Department administration for private sector house renovation grants and disabled facilities grants, then moved to Housing Services and continued work on grants. Mandy changed direction to a Housing and Homelessness Advice Officer, then on to Private Sector Housing Enforcement Officer and Empty Homes and Houses in Multiple Occupation. A further change took her to Pre-Tenancy Services Manager, managing a team of ten people delivering homelessness and housing advice. A promotion followed to Housing Strategy Manager and finally to Housing Solutions as the Partnership Project Officer. Mandy has gained qualifications of HNC in Public Administration, HNC in Housing and finally an MSc in Housing.
**Mandy Gee took over from Stuart Sheardown with effect from July2006

Lincolnshire Partnership NHS Trust
Mental health staff have a unique role in the early identification and specialist assessment of risk and are involved in joint working. Health professionals are ideally placed to provide interventions aimed at reducing risk where mental disorder is a key factor in offending behaviour. Other health professionals are also involved across all levels of Multi Agency Public Protection from Strategic Planning to Clinical Risk Management, and work collaboratively with many agencies to co-ordinate effective care management.

Lincolnshire Children’s Services
Formed from the Children’s arm of social services and the education service, it provides a comprehensive child protection and development service and works closely with the MAPPA system

John Cooch Principal Housing Officer, Boston Borough Council John has worked in housing for over twenty-five years and is currently Principal Housing Officer, with direct responsibility for the Housing Register, Housing Aid and Advice, Homelessness, the Homelessness Hostel, Boston & East Lindsey Domestic Violence Forum and management of the Housing Needs Team. He works closely with the Council’s Registered Social Landlord partners in the provision of housing, development of housing policies and the rehousing of applicants. He is a member of the Chartered Institute of Housing, the Boston and East Lindsey Domestic Violence Committees and Boston

Housing Authorities and Registered Social Landlords
Housing Authorities and Registered Social Landlords work with a wide range of tenants and prospective tenants. Multi-Agency Public Protection work enables us to protect the community by providing appropriate housing and being aware of risk to staff and other members of the community.



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Andy Campbell Youth Offending Service, Lincolnshire Andy has been Service Development Officer since 2001. He qualified as a Probation Officer in 1974 and worked in the north east of England before coming to Lincolnshire in 1990. Andy has a wide-ranging experience of roles in the criminal justice system, having worked in prisons, probation offices, youth offending teams and in Family Court Welfare. Ann Dodd Team Leader, Countywide Rehabilitation Services, Lincolnshire Partnership NHS Trust** Ann qualified as a mental health nurse in Lincolnshire in 1978. She has worked in a variety of in-patient settings including with older people, acute psychiatric care and social rehabilitation. In 1991 Ann moved into a ward management role in rehabilitation working with seriously mentally ill adults. In 1997 she led the Commissioning Group to move in-patient rehabilitation services from Rauceby Hospital, Sleaford into smaller community based units in Grantham. In 2000 Ann project-managed the implementation of assertive outreach teams in Lincolnshire as part of the National Service Framework for Mental Health. In 2002 Ann was promoted to a team manager’s position within Lincolnshire Partnership NHS Trust and managed rehabilitation in-patient services for Lincoln and a community mental health team in Lincoln. Ann also managed the forensic in-patient unit, Francis Willis Unit in Lincoln between 2005-06. Ann now has overall responsibility for countywide rehabilitation services including a community rehabilitation team.
**Ann Dodd took over from Louise Tomlinson with effect from July 2005

Tim Barker Child Protection Manager Social Services Directorate Tim has been a social worker and manager since 1976, specialising in childcare / child protection. He worked for two years as Chair of child protection conferences, and then worked for the National Society for the Prevention of Cruelty to Children, where he managed a project specialising in assessments of families and therapeutic work with abused children. Tim has been Child Protection Manager since 1996 and advises the Lincolnshire Area Child Protection Committee. Sheridan Dodsworth Child Protection Officer, Education and Cultural Services Sheridan has worked for the Education and Cultural Services, which is responsible for support services to schools and the Youth Service, for the last eight years and she was appointed lead officer for child protection in 2002. She holds a BSc in Psychology and has worked in residential care homes as an educational welfare officer and part of a criminal defence team. Sheridan represents the directorate on the Lincolnshire Area Child Protection Committee, Case Monitoring Group and other fora. She coordinates training for and provides support to Directorate and school colleagues in all aspects of child protection.

Registered Sex Offenders
Any offender convicted or cautioned for a sex offence since September 1997, or serving a sentence of imprisonment at that time, who is required to be registered as a sex offender

Level 1 - Low to Medium Risk Cases
These form the majority of cases which are managed within their own organisations, but essential information is shared with others e.g. in child protection cases.

Violent and other Sex Offenders
Normally sentenced to at least twelve months’ custody or detained under relevant mental health legislation, who are currently supervised by the probation, youth offending or health services.

Level 2 - Higher Risk Cases
The Probation Service organises meetings throughout Lincolnshire in co-operation with the Police and other organisations to assess and manage the risk presented by higher risk offenders.

Other Offenders
Who have been convicted of a relevant offence and who pose a risk of serious harm to the public. Full information about offences covered by MAPPA management is available in Sections 67 and 68 of the Criminal Justice and Court services Act (2000).

Level 3 - Very High Risk Cases
These cases are known as The Critical Few. Though few, these cases require maximum resources. A panel consisting of senior officers and staff from all multi-agency partners meets at least monthly to assess, review and manage the risk that these individuals could present.

A number of statistically reliable tools for the assessment of the risk of re-offending have been developed in recent years including: • ASSET • OASys • MATRIX 2000 • SARA for young offenders for adult offenders for sexual and violent offenders for those who are violent against partners

All of these are used as required in Lincolnshire. As well as using these proven assessment systems, staff involved are required to collect and thoroughly evaluate all information, to record and carry out decisions, follow policies and procedures and take all reasonable steps in order to achieve high quality risk assessment and management.



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Sally Lewis Assistant Chief Officer, National Probation Service, Lincolnshire Sally has been a qualified probation officer since 1984. Her previous responsibilities have included National Training Manager, the Bail Information Scheme, Groupwork Training and Approved Premises Manager. Sally’s current responsibilities include public protection and chairing the Multi-Agency Public Protection Management Group. Karen Head Head of Regimes and Resettlement, HMP Lincoln Karen joined HM Prison Service in 1988 and has served in several establishments, including female and high security prisons. She has been a Governor at HMP Lincoln since 2002, with responsibility for providing prisoners with work, education and training, offending behaviour programmes and resettlement services, including induction procedures, sentence management and custody to work programmes. Glen Harris Detective Chief Inspector, Head of Public Protection Unit, Crime Support, Lincolnshire Police** Glen has been a police officer with Lincolnshire Police since 1985, having worked in a number of roles, including child protection, Divisional Crime Manager and Director of Intelligence. Glen has been a core panel member representing public protection for Lincolnshire Police since June 2006.
**Glen Harris took over from Tanya Bridgeman with effect from June 2006

Multi-Agency Public Protection Panel Members
MAPPP Manager and Chair Mandy Cooke Senior Probation Officer, National Probation Service, Lincolnshire** Mandy Cooke joined the National Probation Service Lincolnshire in 1986, after graduating from Sheffield Hallam University with a BA Hons. degree in Applied Social Studies and CQSW. She obtained a Masters degree in Criminology at Nottingham University in 1990. During her twenty years in the Service, Mandy has worked in a variety of partnership roles spanning the county, which include accredited programme delivery, case management and courts management. She joined the Multi Agency Panel in August 2006 having recently completed a secondment with the Prison Service.
**Mandy Cooke took over from Tony Eyres with effect from August 2006


Lincolnshire Procedures




In cases when it is essential to inform members of the public about a potential public risk the Multi Agency Public Protection Panel will propose disclosure as part of a wider risk management plan. However, the final decision will be taken at Chief Constable level and full advice and guidance will be included. If organisations in Lincolnshire become aware of an individual whose behaviour is giving concern and he does not respond to warnings, it may be necessary to consider public disclosure. This is done as a last resort, as we wish to avoid driving worrying offenders underground or creating undue public concern. If disclosure is necessary, approval is required from a Chief Constable and those who receive the disclosure are told what to do with the information and whom to contact for help or action. If disclosure is required the following principles are followed: 1. 2. 3. 4. 5. 6. Actions are proportionate to risk Individual poses a risk of serious harm No other practical means exist to protect the public All risks are considered Disclosure is to the right person The person receiving the information knows what they need to do with it in order to provide effective public protection

Risk assessment can change due to new information or improvements or decline in offender behaviour, and procedures and practice are flexible to allow for changed risk assessment.

Risk Definitions

MAPPP Administrator Amelia Wilson Senior Administrator, National Probation Service, Lincolnshire** Amelia has worked as senior administrator in offender management for the National Probation Service since October 2003, and has been MAPPP Administrator since July 2006. She acts as the first line of communication for MAPPP related enquiries and co-ordinates all matters relating to MAPPP meetings.
**Amelia Wilson took over from Gill Fraser with effect from July 2006

Lincolnshire Multi-Agency Procedures Review Meeting Process





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In 2006 Lincolnshire Police undertook a reconfiguration of the departments involved in the work of sex offender management, adult and child abuse investigation and domestic violence. All disciplines were brought under the central management of the new Public Protection Unit, the key aim being improved use of resources, intelligence arrangements and more effective services for all stakeholders. This specialist unit is made up of 49 police officers and three Police staff and focuses on the investigation of the serious crime areas of domestic violence, child abuse, dangerous offender management, adult protection and vulnerable witness management. The Head of the Public Protection Unit from June 2006 will be Detective Chief Inspector Glenn Harris who is based at Police Headquarters in Nettleham. The Public Protection Unit works at a very close multi-agency level on a number of aspects of its work, in particular, with the local teams of the National Probation Services, Child and Adult Services within the County Council and many specialist voluntary sector providers such as the Women’s Aid and Jigsaw groups who operate throughout the county. The Public Protection Unit also includes the County Domestic Violence Management Team and this part of the Unit is not only multi agency-led, in terms of the work undertaken, but is multi agency funded. Both County DomesticViolence Management and the Public Protection Unit as a whole, place good inter-agency relations at the centre of their work. Lincolnshire has excellent, established and productive multi-agency arrangements and as such, it makes the protection of the public and the delivery of critical services far easier to achieve and to constantly improve.

All prisoners over 18* years old and sentenced to more than twelve months imprisonment are subject to management on release by the Probation Service. They are required to keep to the terms of a licence which requires them to co-operate in reducing their risk of re-offending. Other requirements include living in approved accommodation, and obeying conditions which ensure the protection of past and future victims. If they do not keep to these requirements they are normally recalled to prison. • Separate arrangements are in place for young offenders

contacts all victims of serious violent offences soon after the offender has been sent to prison. Victim Contact Officers work closely with public protection colleagues and offer to meet victims in order to give information about prison sentences and enable the victims’ concerns to be forwarded to those considering future release conditions. Phil Keller is a Victim Contact Officer. He has over forty years experience in the criminal justice system having served as a police officer, prison governor, and for the last six years as one of the first dedicatedVictim Contact Officers.Victims and their families are offered appointments in their own homes or other convenient venues. Phil says that in the last six years he‘s been in contact with almost two hundred victims, some just want a single meeting, but over one hundred and forty have had regular contact at each stage of a sentence. The beauty of this system is that victims know what is going on. If victims require other specialist help Phil can point people in the right direction. He says the best part of his job is knowing that by acting as a vital link within the criminal justice system victims are better protected and less anxious about the future.

The Multi-Agency Public Protection Arrangements are overseen by a board of representatives from the organisations involved in Public Protection as well as two members of the public. As a county, Lincolnshire has developed excellent multi-agency co-operation. In addition to working closely through the Responsible Authority and the Duty to Co-operate agencies, the Strategic Management Board has close links with other county multi-agency public protection groups. These include Crime & Disorder Reduction Partnerships, the Children’s Safeguarding Board, the Local Criminal Justice Board and the Adult Protection Committee. The Strategic Management Board meets quarterly,reviews work in hand and drives forward new developments. The reviewing function includes detailed assessment of effectiveness and action delivery reports. For example, 92% attendance at Risk Assessment Management meetings was achieved and 90% of risk prevention actions were delivered, a further 8% were overtaken by events. At present the following are Board members: Sally Lewis Assistant Chief Officer, National Probation Service, Lincolnshire Assistant Chief Constable, Lincolnshire Police

These orders can be imposed by courts at time of sentence, or on a police application after consideration by the Multi Agency Panel. They require an offender to register with the police and obey prohibitions designed to protect public. Failure to keep to these requirements can result in a prison sentence of up to five years.

Peter Davies

Colin Pettigrew Head of Strategic Modernisation, Children and Families, Social Services Directorate Dick Pike Sharon King ** John Bibby Pupil & Schools Services Group, Education and Cultural Services General Manager, Specialist Services, Lincolnshire Partnership NHS Trust Director of Housing and Community Services, City of Lincoln Council Governor, HMP Morton Hall (Representing HM Prison Service) Head of Care Management – Adults, Lincolnshire County Council


This report has concentrated on explaining Multi Agency Public Protection Arrangements in general and their success during the last year in particular. However it is not possible to stand still and a business plan has been developed (appendix A) which the Strategic Management Board will follow in future years. This plan is designed to provide a clear framework for multi agency public protection work in Lincolnshire.

Damian Evans Nigel Sheridan


Protecting current victims is a key principle of all the organisations involved in MAPPA. One aspect of this vital work is the job of a Victim Contact Officer, who

Unique to Lincolnshire is the Victims Panel. Panelists are either victims of serious crime or their relatives. The panel, which was created by the Lincolnshire Criminal Justice Board, has already met the MAPPP manager. Their views will assist the MAPPA strategic board in its aim of keeping victim interests at the forefront of its operations.

Roberta Ashton Lay Adviser Michael Burton Lay Adviser Jakki JamesClarke Lay Advisor (Representing Victims and Witnesses)

** Sharon King took over from Mary Quint with effect from March 2005



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From April 2005 all violent and sexual offences could attract longer sentences specifically imposed to improve public protection. Almost any violent offence can attract the new sentences for public protection, even a first offence. If an offender has a previous conviction for a sexual or violent offence the court must normally presume that the risk is present and impose a public protection sentence. What are the new sentences? • an extended sentence of up to five years for some violent offences • an extended sentence of up to eight years for some sexual offences • For more serious offences the court has the power to impose a sentence of imprisonment for Public Protection - this will be quite similar to a life sentence and will ensure that the offender cannot be released whilst he presents a risk of public harm. Those who provide risk assessment in MAPPA cases work closely with public protection panels to provide courts with the best possible risk advice. • Management by experienced workers who are trained to monitor those who potentially present a high risk • All residents who reside at Approved Premises are required to keep a night-time curfew and this can be extended in appropriate cases Approved Premises enjoy close links with the Police Service and have access to specialist Probation Officers as well as links to medical, substance abuse and employment training services. They are a proven method of providing public protection in the community. Probation Approved Premises, formerly called Hostels, are managed by the National Probation Service and provide: • Staffing 24 hours a day, 365 days per year • Monitoring through closed circuit television and night-time curfews If low or medium risk, manage within own organisation

Individual Organisations assess risk of harm

If high risk, manage through MAPPA level 2 Risk Meeting

If very high risk, refer to Multi-Agency Public Protection Panel via a Core Panel Member

Risk assessment can change due to new information or improvements or decline in offender behaviour, and procedures and practice are flexible to allow for changed risk assessment.

Risk Definitions
Low Risk No significant current indicators of risk. Medium Risk There are identifiable indicators of risk of harm. The offender has the potential to cause harm, but is unlikely to do so unless there is a change of circumstances. High Risk There are identifiable indicators of risk of serious harm. The potential event is not imminent but could happen at any time and the impact could be serious. Very High Risk There is imminent risk of serious harm. The potential event is more likely than not to happen imminently and the impact could be serious.



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Required for the reporting period 1st APRIL 2004 - 31st MARCH 2005 1. Category 1 MAPPA offenders: Registered Sex Offenders (RSOs)
Number of offenders

MAPPA level 2 Meeting and Multi-Agency Public Protection Panel Review Meeting Process (at least quarterly)

i) The number of RSOs living in your Area on 31st March 2006 ia) The number of RSOs per 100'000 head of population ii) 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 iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in your Area between 1st April 2005 and 31st March 2006 iv) The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in your Area between 1st April 2005 & 31st March 2006 v) The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in your Area between 1st April 2005 & 31st March 2006 2. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS)
a) b) c) a) b) c) a) b)

401 63 10 8 8 8 1 0 1 0 0

Review progress against risk management strategy and share any current concerns. Re-assess Risk level.

Possible Outcomes

Considered to be Medium/Low Risk

Considered to be High Risk

Considered to be Very High Risk

vi) 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 your Area between 1st April 2005 and 31st March 2006 3. Category 3 MAPPA offenders: Other Offenders (OthO)


Remove from register and recommend single agency action to manage risk

Continue registration as potentially dangerous offender. Formulate updated protection plan. Set review date.

Continue registration as dangerous offender. Formulate updated protection plan. Refer to / continue with Multi-Agency Public Protection Panel (MAPPP) Set review date.

vii) 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 though Level 3 (MAPPP) & Level 2 (local inter-agency management) (viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (1)- RSOs, (2)- V&O and (3)- OthO 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 (ix) 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

7 9 3

61 23 23
Level 2

Level 3
a) b) c)

5 0 0

12 0 0



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Many sex offenders are required to remain on the Sex Offenders Register for life, so it is expected that the total number of registered offenders will rise in all areas of the country. It should be noted that totals in Lincolnshire are rising slowly, fewer than last year are assessed as at very high risk and most fall into the lowest risk category. This has allowed all agencies to concentrate their efforts on those presenting greater risk. The number of cautions and convictions for breaches of registration requirements has fallen by 40% and the number of Sexual Offences Prevention Orders, which help to control sex offenders, has increased by 25%.


One man, who was managed at Level 2, for an offence of affray and possession of a weapon, was convicted of entirely different behaviour, namely two sexual attacks. At the time that he was managed at Level 2 he was not required to sign on the Sex Offender Register and therefore not assessed or managed by Lincolnshire Police. As is customary in such instances of serious further offences, a report of the management of this case was sent to the Home Office. This report concluded that all procedures had been followed correctly.

Figures alone do not, of course, tell the whole story. The anonymised case studies illustrate the practical work of the MAPPA, and demonstrate the preventive action which can be taken. Prior to the MAPPA, action of this kind was mainly taken by one agency alone, with the effect that, on occasion, offenders’ behaviour which might have triggered preventative action went unnoticed. The multi-agency approach of the MAPPA helps to ensure that if an offender does breach the condition of the licence under which they were released from prison or breach a Court Order prohibiting certain activities, then action to enforce the condition or Order and protect the public can be taken more swiftly. All those involved in Lincolnshire’s public protection arrangements want those who live in Lincolnshire to know how effective their work has been and hope that the small sample of case studies which follow will bring this work to life.

This case illustrates the benefits that multi agency working has for the victim, potential future victims and other organisations such as Housing Authorities. Mr. A has many convictions for violence when drunk against the general public, the police, and his partners. He also has convictions for very serious sexual assaults on his former partner. Before he was released from prison the police and probation services realised that in order to protect potential victims a multi agency approach was required. By working together the following actions were put in place which have proved effective. • Registration at MAPPP Level 3 • Requirement to live where directed in fully supervised accommodation • Relocation support and active alarm system for former victim • Protection systems for staff who deal with Mr. A • Assistance with future single person accommodation subject to good behaviour • Safety warnings to potential new partners All the above actions were supported by police contingency plans and probation supervision planning. The local housing manager commented, “The Panel provided invaluable guidance as to the most appropriate area and environment to re-house Mr. A. and I knew I had unanimous support.”


This group of offenders is assessed as higher risk but is not required to register as sex offenders or to be managed by the Probation Service under prison release licences. However, they are still managed by public protection panels and only one person is known to have reoffended.



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• No serious offences committed by MAPPP - managed cases (Risk Level 3) • Creation of Police Public Protection Unit

This year the annual report provides monitoring information on public protection work on the same basis as in 2004/5, which allows accurate comparisons to be made.

An example that it is possible to successfully protect the public even though not all offenders can be changed. J was sexually abused as a child at a boarding school and soon began to offend. At first he began stealing, but later exposed himself to, indecently assaulted, and carried out very serious sexual assaults on children. As a result of his offending he has been sent to prison frequently either on conviction or for failing to comply with licence release conditions. His case is managed through the MAPPP process because it has required close cooperation between the Police, Probation, and Prison services, together with a local church. Whilst in prison he was put through a specialist Sex Offender Treatment Programme, which enabled him to start to understand his offending, but more crucially enabled those who would have to manage his behaviour on release to learn about his risk and the most effective ways of managing that risk. It became clear that although his release was legally required his risk would still exist, and therefore the Multi Agency Public Protection Panel worked together to control his risk. On release he was given numerous conditions to try and control his behaviour. Authorities at the church he was likely to attend were also warned by the Police and the MAPPP manager so they could protect their members while allowing him to worship. In addition he was placed under surveillance so that he could be arrested before anybody was harmed. For some time he did not offend, which was his longest period in the community for several years. Unfortunately his compulsion to indecently expose himself started again and he was arrested before any member of the public was harmed or even aware of what was about to happen.


• Effective and regular risk management meetings continue throughout Lincolnshire

• Joint risk training between different agencies such as Police, Health, Housing and Probation • Continued high levels of attendance at Public Protection meetings to help manage serious risks • All actions to manage risk are effectively targeted and measured • Formation of Children’s Safeguarding Board with full MAPPA involvement • Inclusion of Victim Representation Panel into MAPPA strategic management • Launch of Leisurewatch to strengthen child protection in leisure centres • Early stage work on Circles of Support to increase monitoring and support of those at risk of reoffending • Plans to increase public awareness through the Stop It Now campaign • Joint MAPPA work with other East Midlands counties to ensure coordinated work if offenders or victims move • Cooperation and information-sharing with churches to increase community involvement in public protection It is pleasing to report the total of MAPPA cases in Lincolnshire has reduced by 11% in the last year which allows the specialist staff who deal with these cases, in particular those in the Police and Probation services more time to concentrate on this aspect of public protection. Of critical significance is the reduction by more than 20% of those that required managing at Level 3 - the critical few who presented the greatest risk, this reduction has been achieved by a continued strengthening of the Multi-agency Public Protection Arrangements in each of Lincolnshire’s police divisions.

An illustration of how many different organisations need to work together for multi agency public protection to be effective. Mr. B has a long history of very violent assaults in particular against his ex-wife, and members of his community. His children have been abducted on two occasions and though not physically harmed have been emotionally damaged. Both children and their mother live in fear of his actions when he leaves prison and have moved several times to protect themselves. Mr. B moves around the country but because he was in Lincolnshire when he was last sentenced the local Probation Service had to plan his release. Through the MAPPP process a large number of organisations worked together to protect the family. These included three probation areas, the Home Office Public Protection Unit, two police forces, the fire brigade, housing authorities, social services and specialist women’s protection groups. In a public report such as this, it is not possible to give details of these plans, but without Multi-Agency Public Protection Panels a straight forward system to work together in this case would not have been easily available. The head of the local women’s protection arrangements said, “We now have really effective working across borders and between all the responsible organisations.”