MAPPA

Multi-Agency Public Protection Arrangements (MAPPA)

PROTECTING THE PUBLIC IN PARTNERSHIP: LONDON MAPPA

Annual Report 2005-2006

MAPPA in London Boroughs

MAPPA ANNUAL REPORT 2005-2006

London MAPPA Annual Report 2005-2006
This report of the Metropolitan Police Service, City of London Police, London Probation and Her Majesty’s Prison Service London Area sets out how these agencies, together with the Duty to Co-operate Agencies, manage the risks posed by registered sex offenders and other dangerous violent offenders in London. The report covers the period from 1st April 2005 to 31st March 2006 and has been produced in accordance with section 326 of the Criminal Justice Act 2003. In addition to describing the details of the Multi-Agency Public Protection Arrangements (MAPPA) for London, it provides some statistical data and contact points.

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How to contact us
We welcome feedback and if you have any comments to make about the report they should be sent to: Marketing and Communications London Probation 71-73 Great Peter Street London SW1 2BN Further copies of the report can be obtained from the following websites: www.met.police.uk/annualreport www.cityoflondon.police.uk www.london-probation.org.uk www.hmprisonservice.gov.uk The report can be seen at your local main library, or you may write to us at the above address requesting a copy, or e-mail us at: New.Scotland.Yard@met.police.uk

MAPPA

PROTECTING THE PUBLIC IN PARTNERSHIP: LONDON MAPPA

MAPPA

MAPPA ANNUAL REPORT 2005-2006

Contents
This report, how to contact us, further copies Foreword by Gerry Sutcliffe MP Introductions by Heads of Service MAPPA - The first five years Strategic Management Board Business Plan MAPPA in London Duty to Co-operate Agencies What actually happens? Civil Orders Strengthening MAPPA through lessons learnt Lay Advisers Victim Liaison Key Achievements Victim Support Services and Helplines Contact Points Appendix A: SMB Business Plan Appendix B: Statistical Information Appendix C: Commentary on Statistics Breakdown of registered sex offenders by Borough Operational Command Unit Alternative languages and format Glossary of terms Notes 1 3 4-6 6 7 8 9 10 - 12 13 - 14 15 16 - 17 18 19 - 22 23 24 25 - 30 31 - 32 33 - 35 36 37 - 38 39 40

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MAPPA ANNUAL REPORT 2005-2006

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

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

MAPPA ANNUAL REPORT 2005-2006

Introductions by Heads of Service
Metropolitan Police Service
A number of high profile cases, over the last year, have raised the public profile of the work that is done to protect our communities from the most dangerous people. Those cases have also raised concerns about the way in which this work is carried out. Thoughtful criticism and challenges to our way of operating are an essential part of improving the service. Those of us charged with leadership in this field are committed to driving continued improvement, to increasing public confidence in our arrangements and to ensure the highest levels of protection practically possible for all our communities. The work that doesn’t enter the public domain, however, forms the contents of this report. Every day of every week professionals across London, working at a local level, develop plans and deliver interventions that keep Londoners safe. The challenges are significant and the levels of risk are high. Committed and highly capable people, working in cross-agency partnerships, confront and manage these risks to great effect. Success in this work does not make for a high profile story but the importance of the work is recognised and the contribution of all involved is valued as a major contribution to the quality of life in this city. Over the next year I look forward to continuing to work alongside the London Criminal Justice Board and other partners. Those we work for have a right to be safe. The work of MAPPA is at the heart of delivering the kind of communities of which we all want to be a part.

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Stephen Allen, Commander, Violent Crime Directorate, Metropolitan Police Service

City of London Police
This report clearly demonstrates the importance that the City of London Police place on a multiagency approach to the management of sex offenders and others who pose a serious risk to the community. We are committed to working alongside our partners in MAPPA to ensure that the City remains a safe and pleasant environment for people to go about their daily lives. During the past 12 months the MAPPA process has continued to evolve and I am delighted to report that our Director of Intelligence now co-chairs the MAPPP meetings and we have continued to commit additional resources to this priority area of our work. I wholeheartedly support the robust approach to community safety that the MAPPA has demonstrated over the last year. They have shown that a combined approach to risk management, utilising the resources of the Police Service, Probation, HM Prison Service, the local authority, health care professionals and local charities, offers the most effective means of managing those who pose a significant risk to our community.

MAPPA ANNUAL REPORT 2005-2006

Over the next 12 months we will further strengthen our links with all of the partner agencies as we continue in our commitment to MAPPA and effective community safety.

Temporary Commissioner Mike Bowron City of London Police

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London Area Prison Service
Since the Prison Service became part of the Responsible Authority within MAPPA, London establishments have successfully implemented Prison Service Order 4745 MAPPA, which enables offenders who pose a risk to the public, to be identified, monitored and managed appropriately. Offenders within the prison environment will receive effective management to reduce the risk of re-offending. The management structure includes appropriate release plans for the offender, as well as an early notification system to indicate an offenders release date to the Police, Probation Service and Social Services in advance of their actual release. This enables all relevant agencies to be proactive and constructive in protecting the public. There are eight establishments within the London Area, which have made significant progress regarding the processes for public protection and have contributed to the development of a good communication strategy. A teamwork approach promotes the sharing of relevant information with those agencies who have a responsibility for the safety of the public. In the near future, a new Offender Management system will be introduced between the Probation and Prison Services to improve partnership working. This will assist greatly with the MAPPA processes already in place, building on what we have achieved and further empowering agencies to deliver a safer environment for all. Together, the Police, Probation Service and Prison Service have a commitment to provide a quality service, which will effectively control and manage the risks posed by offenders whilst in custody and in the community. I am confident that this initiative will continue to strengthen and I look forward to working with a team that is dedicated and motivated in its approach to the protection of the public.

Keith Munns, London Area Manager, HM Prison Service

MAPPA

MAPPA ANNUAL REPORT 2005-2006

London Probation
I became the Chief Officer of London Probation in April 2005 and from my first day in post, I made a personal commitment to focus on public protection. Strong and effective Multi-Agency Public Protection Arrangements are essential to protecting the people of London as no agency can manage this work alone. Ensuring high standards and consistency across the capital is a challenge in any sphere of work, not least the criminal justice service. The case studies and statistics in this report demonstrate that in London we are successfully managing some very challenging and dangerous offenders. However, we are all acutely aware that we need to maintain vigilance and the highest possible standards of professional expertise to reduce re-offending even further. During 2005-06, the Chief Inspector of Probation published an investigation into the case of two offenders who committed murder while under supervision in London. The report contained valuable lessons about improving public protection, particularly in terms of probation practice. Individual agencies have promptly introduced improvements in response to recommendations in the report. The report and others published by the Inspectorate during the year have encouraged criminal justice agencies to work together and to learn together. My colleagues and I are determined to lead this strategically and operationally. We also plan to strengthen the MAPPA link to the London Criminal Justice Board (LCJB), which aims to improve the delivery of justice. I have the lead role at the LCJB on raising the confidence of the general public in the criminal justice service, and am keen to raise awareness of MAPPA work. There can be no more important work than protecting the people of London.

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David Scott, Chief Officer London Probation

MAPPA - The first five years
A National Overview of the Multi-Agency Public Protection Arrangements 2001 - 2006
Representatives of the Responsible Agencies National Steering Group have completed an overview of MAPPA since its inception. Full details of the overview can be obtained through the Home Office website www.probation.homeoffice.gov.uk/output/page30.asp or via the contact details shown on page 1 of this document.

MAPPA ANNUAL REPORT 2005-2006

Strategic Management Board Business Plan
It has been three years since the relaunch of the Multi-Agency Public Protection Arrangements Strategic Management Board (SMB) and this year we have concentrated on two important areas of work: • Strengthening the links with key organisations, such as the education and housing authorities across the capital; • Planning our business within a strategic framework.

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Strengthening the links
This was the theme of the SMB’s annual conference in recognition of the significance that we attach to working in partnership with other key organisations, such as the London Child Protection Committee and the London Criminal Justice Board. The SMB is clear that the only way of ensuring that public protection remains central to the multi-agency agenda is to work collaboratively across agency boundaries and to enhance the unique contribution of each agency to community safety. To this end, the SMB has forged stronger links with housing, youth justice and education networks and there is now representation at a strategic level on the SMB from these three agencies.

Business Planning
The SMB has been working towards the development of a Business Plan as an integrating framework for a number of key activities during 2006-2007. The document, now completed, will lay the foundations for a number of key strategies in the following areas: • Achieving dedicated MAPPA co-ordination and administration capacity across all London boroughs so that there is a consistent approach to the resourcing and management of MAPPA; • Monitoring and evaluation of the effectiveness of MAPPA based on accurate statistical information and regular analysis of offenders who commit serious further offences so that lessons are learnt and put into practice. The appointment of an Internal Inspector will improve the quality of our work in this area; • The Communication Strategy will identify opportunities to raise awareness of MAPPA work, including the publication of this Annual Report, leading to improved public understanding and confidence; • The Training Strategy will ensure that all staff working in MAPPA are receiving the best possible training and those new to it can be inducted to the highest professional standards. The year ahead will see the first fruits of the Business Plan and the SMB is particularly indebted to its Lay Advisers for their invaluable role in strengthening its public accountability and bringing an external perspective to public protection in London.

Malcolm Jenkin Director, North and Public Protection, London Probation Chair of London SMB

MAPPA

MAPPA ANNUAL REPORT 2005-2006

MAPPA in London
The MAPPA structure in London enables all agencies to work together sharing information regarding offenders and to plan and implement management strategies to control the risk that those offenders present to the community. Due to the size and complexity of London, MAPPA has been organised in a way which ensures consistency of practice, whilst being flexible enough to meet local, individual needs and situations in such a diverse and multi cultural society. Each of the 32 London boroughs and the City Of London have their own Multi-Agency Public Protection Panels, which are responsible for identifying, assessing and managing those offenders deemed to be sexual or violent in nature and who, therefore, pose the greatest risk of harm to the community.

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City of London Police
The City of London is policed independently from the rest of London and is the financial centre of the capital. The resident population of the City is approximately 7,000, but this rises on a daily basis to in excess of 350,000. This makes the City unique in terms of the crimes committed and the types of individual frequenting it. The City of London Police currently monitors registered sex offenders resident in the Force area. However, officers patrolling ‘the square mile’ regularly stop transient sex offenders and others subject to MAPPA restrictions. The City of London Police liaise closely with Public Protection Units across London. Its officers engaged in this area of work have undertaken relevant training courses in order to fulfil this role.

Prisons
To support the MAPPA structure, the Public Protection manager for the London Area Prison Service, the Metropolitan Police, the London Probation Risk Unit and MAPPA personnel from all London Area prisons attend quarterly meetings, known as the 3 Ps Forum. The purpose of the forum is to provide training and problem solving and to share good practice. This is an invaluable forum, which provides and sustains a professional service and promotes a safer environment for the public.

MAPPA ANNUAL REPORT 2005-2006

Duty to Co-operate Agencies
The Metropolitan Police Service, City of London Police, London Probation and HM Prison Service London Area is the MAPPA Responsible Authority. The organisations detailed below have a statutory ‘Duty’ to Co-operate with MAPPA.

Youth Offending Teams
Whilst the vast majority of MAPPA offenders are adults, some will be young offenders under 18 years. These offenders will be managed by the Borough Youth Offending Team who can put intensive supervision arrangements in around these juvenile offenders.

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Jobcentre Plus
Jobcentre Plus will be notified if restrictions are placed on the conditions of an offender’s employment.

Education
Education Services and schools have an important role to play in the MAPPA process.

Housing
Permanent and stable accommodation is extremely important in the management of those offenders who pose a risk of sexual or violent offending. Therefore each of the 32 borough MAPPA includes a representative from Local Authority Housing or Housing Associations.

Social Services
MAPPA works extremely closely with Social Services across the 32 boroughs to ensure that children and vulnerable adults are protected from sexual and violent offenders.

Health
Health has a significant part to play in MAPPA, dealing with offenders who have health issues, including mental health problems. Each MAPPA across the 32 boroughs has a representative available to give guidance and direction when dealing with these offenders.

Electronic Monitoring
Electronic monitoring can provide an important control as part of an offender’s risk management plan.

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MAPPA

MAPPA ANNUAL REPORT 2005-2006

What actually happens?
Each agency has an extremely important part to play in the identification of MAPPA offenders, who will be referred to the relevant borough unit. To support this, HM Prison Service identifies and manages MAPPA prisoners through advanced notification of release dates. This enables planning to aid offenders’ reintegration into society and, ultimately, to protect society. On a practical level, information is shared appropriately between the relevant agencies in a way that identifies the concerns, and balances confidentiality with public protection. A risk assessment is then carried out against accurate and considered information about the offender. The risk assessment tools employed are tried and tested and used throughout the UK to provide an accurate reflection of an offender’s risk within the community. Following the risk assessment process, consensus is reached about how the offender will be managed. Consideration is given to reducing the likelihood of their re-offending, protecting the public and assisting the offender to settle back into society, through the creation of a specific risk management plan. There are three tiers to the MAPPA management system:

Level 1: Ordinary risk management
Level 1 management is used in cases where the risk posed by the offender can either be mainly managed by one lead agency, such as the Police or Probation Services, or where there is another active risk management process such as within the Health Service environment or Youth Offending Teams. Generally, Level 1 offenders will have been assessed as being low or medium risk of causing harm. Currently 51.3% of offenders in London are grouped within this level.

Level 2: Local inter-agency risk management
Every London borough has a regular (usually monthly) Level 2 meeting that is chaired by either a senior police or probation representative. These meetings are where the active and co-ordinated risk management plans for offenders are devised and agreed. Permanent representatives of the core agencies, including the Probation Victim Unit, Housing, Health and Social Services attend this meeting. Currently 47.9% of offenders in London are grouped in this level.

MAPPA ANNUAL REPORT 2005-2006

Level 3: Multi-Agency Public Protection Panel (MAPPP)
Level 3 meetings are for those defined as the ‘critical few’, the MAPPP is responsible for the risk management, drawing together key active partners at a senior level who will take responsibility for the community management of these complex cases. In London during 2005-2006, 0.7% of offenders in the community were managed at this level. Risks can, and will, change so it is important that regular reviews are undertaken to ensure that each offender is being managed in a robust way and at the appropriate level. Risk management plans should be a balance between the requirement to place controls or restrictions around an offender, and the need to offer help and treatment to reduce the likelihood of offending. Risk management plans may include: • Monitoring the offender; • Intelligence/information sharing; • Addressing accommodation requirements; • Prohibition of behaviours; • Curfews; • Attendance at programmes, such as alcohol abuse; • Limited disclosure to third parties where necessary; • Contingency planning; • Reviewing of the risk assessment and risk management plans.

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MAPPA

MAPPA ANNUAL REPORT 2005-2006

Case Studies
Tom, a convicted paedophile, was in custody for breaching his Sexual Offences Prevention Order (SOPO) and was due for release. One of the SOPO conditions prevents him from talking to children. His case was managed at Level 2 and he was assessed as being at a very high risk of re-offending. Following intelligence, both from HM Prison Service and Probation, a meeting took place between the MAPPA agencies. As a result of this, on release, the offender was placed under surveillance. Over a four day period the offender did not commit any offences against the public but did breach his prevention order on a number of occasions. Following his arrest the offender was placed before the Court in custody and immediately entered a guilty plea. This, coupled with revocation of his Probation licence, resulted in the offender being returned to custody. This case study demonstrates how early intervention, planning and information sharing detected early breaches by the offender of his Sex Offender Prevention Order. By taking swift action, MAPPA prevented the offender from perpetrating offences against the community.

William, who was not subject to the notification requirements under the Sexual Offences Act, had been demonstrating a desire both verbally and in written documents to commit serious sexual offences against children. The concern was so great that a Level 3 MAPPP meeting was called. The panel, working together, were able to provide suitable accommodation, social worker visits to maintain regular contact and mental health assessments. In addition the subject agreed to allow the police to voluntarily monitor him on a regular basis. Through this robust planning and intervention the subject has been prevented from committing any offences and there has been a marked change in his behaviour. The result of the MAPPA intervention is that the general public are safer.

MAPPA ANNUAL REPORT 2005-2006

Civil Orders
The Sexual Offences Act 2003 is the primary legislation that is used in the management of sexual offenders. This act introduced four civil orders, which can be used to protect the public, especially children and other vulnerable adults.

Sexual Offences Prevention Orders (SOPO)
A SOPO restricts preparatory behaviour by convicted sexual offenders. The conditions of the order can be used to prevent an offender undertaking certain activities or behaviour. Below are examples of conditions imposed through Sexual Offences Prevention Orders in 2005-2006 in London: • Seeking the company of, or being in the company of, any young person under the age of 16 years; • Entering any park, or taking a recreational walk, which takes the offender off a public road or pavement, unless a person over the age of 18 years accompanies him; • Subscribing to, accessing, or attempting to access, either directly or indirectly, by any method whatsoever, the internet; • Possessing equipment capable of creating or storing stationary or moving photographic images of children, for example, but not exclusively, cameras, mobile telephones and video recorders. The minimum duration of a Sexual Offences Prevention Order is five years.

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Notification Orders
A Notification Order requires offenders convicted of certain sexual offences abroad to register their details with Police on their return to the UK.

Foreign Travel Orders
This order places restrictions upon offenders convicted of sexual offences against children regarding their travel abroad. Foreign Travel Orders are normally used to protect children abroad from sexual offending by known sexual offenders based in the UK.

MAPPA

MAPPA ANNUAL REPORT 2005-2006

Risk of Sexual Harm Orders
This Order is similar to that of a Sexual Offences Prevention Order, in that its aim is to restrict and prevent the activities of individuals involved in grooming children for sexual activity. The main difference is that a Risk of Sexual Harm Order can be sought and granted against an individual who has no previous convictions or cautions for a sexual offence. The minimum duration of a Risk of Sexual Harm Order is two years.

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Case Studies
Alan is monitored through MAPPA in London as a registered sex offender because of his conviction for sexual assaults on sex industry workers. Information was gathered by various agencies that suggested that Alan was undertaking actions that could lead to further offending in a similar pattern to his previous convictions. As a result, the Police made an application for a Sexual Offences Prevention Order prohibiting Alan from entering designated areas of London and from meeting, communicating with, or engaging the services of sex industry workers. The Order was granted, creating greater control over Alan and further protecting a section of the community in London.

Clive is a London offender convicted of offences involving indecent assaults on adult females during medical examinations, whilst posing as a medical adviser. He was placed on a Sex Offender Prevention Order with restrictions to prevent a recurrence of similar offences. These restrictions included providing or advertising medical services or advice, dealing with medical negligence claims, and weight loss advice. When dealing with the offender at the time of his annual notification, the Police visited his home address. The Police discovered the offender to be in possession of advertising material offering his services, in contravention of his Order. As a result of this breach of his order he was arrested and returned to court for re-sentencing. This case study demonstrates how active and intrusive supervision through the MAPPA process leads to early detection and the prevention of further serious offending.

MAPPA ANNUAL REPORT 2005-2006

Strengthening MAPPA through lessons learnt
Prior to the requirement to produce a business plan, the London SMB had identified the need for a structured approach to its activity, to include communication, performance, review and training. We have been working together to ensure that these core elements are used as a basis to improve performance, enhance the abilities of our staff, and most importantly reduce the risk to the community of offenders committing Serious Further Offences. The Responsible Authority has initiated a number of multi-agency reviews of Serious Further Offences. These reviews, for the first time, brought together key areas of business, assessing in a multi-agency forum the effectiveness of MAPPA. We reviewed how agencies worked together, and assessed the suitability and appropriateness of the arrangements, taking into account the offender’s history, risk, and criminogenic needs. This approach has placed a spotlight on MAPPA, ensuring that lessons can be learnt and that good practice is recognised. This work will continue to develop over the next 12 months, when it is envisaged that a national review process will be introduced. MAPPA is an evolving process. In London, we have the stimulating challenge of developing consistent practice across all boroughs and ensuring that all reasonable steps are taken to manage offenders effectively in order to reduce the risk of serious harm to the public. The tragic death of John Monkton, and the subsequent conviction of Damien Hanson and Elliot White for his murder, brought into sharp focus the work of the correctional services. A review by Her Majesty’s Inspectorate of Probation (HMIP) identified areas where agencies/bodies, particularly the Probation Service, had failed to manage the risk posed by these offenders as effectively as they should. The report made five key recommendations and proposed 31 practice recommendations to improve future work. The report highlights the need for clear, unambiguous guidance for referring cases to MAPPA. This includes clearer guidelines on the management of MAPPA offenders in custody. For London, the revised guidance is work in progress. It includes agreed procedures and practices for the Police, Probation Service and Duty to Co-operate Agencies. This will be accompanied by ongoing training on risk assessment and risk management. In addition, the HMIP report called for improved collation of data on offenders managed under MAPPA. In line with the 2006-2007 Business Plan, performance will be more closely monitored and reviewed. This data will be available in the 2006-2007 Annual Report.

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MAPPA

MAPPA ANNUAL REPORT 2005-2006

Lay Advisers
Mick Robinson and Barbara Roy-Macauley, Lay Advisers to the London MAPPA Strategic Management Board (SMB), were appointed in April 2005 and have attended all SMB meetings since. Mick was a Fire & Rescue Service Officer and now works as a Government Inspector of Fire Services. He is a parent and grandparent. Barbara is a teacher by profession and currently works for Social Services in the London borough of Redbridge as an advisory teacher for children in care. They report on their experiences as Lay Advisers below.
We both undertook a surprisingly rigorous recruitment process, but now we know more about the MAPPA process, we see the reasons for the demanding criteria and the selection process drawn up by the Home Office. Our induction process was very thorough and involved local training with the Police, Probation and Prison Services in London. This was followed by two excellent weekends of national training, where we met other Lay Advisers from around the country. We both found the training weekends very useful and informative, giving us a far greater understanding of why offenders and victims might act in the way that they do, and the utterly devastating effects that this can have on whole generations of families. We are both resolved to always bring the feelings of victims to the table. We also learnt about the myriad of legislation dealing with sexual and violent behaviour, together with the cycle of sexual abuse and work that is being done with abusers. We were concerned to learn of the prevalence of domestic abuse and how this fits into the MAPPA process. Our training needs will continue to be addressed throughout our appointment as Lay Advisers in order to support public protection initiatives through local visits to the Responsible Authority and Duty to Co-operate Agencies, regional and national seminars and also networking with other Lay Advisers. As Lay Advisers we are encouraged to play a full and active role independent of other agencies. We both bring a wealth of life, community and business experience to the process. We have the ability to voice our concerns, our opinions and our endorsements to the appropriate people at the appropriate time. We can offer the public’s point of view and input ordinary concerns to a team of highly trained professionals. In other words we act as informed “critical friends” by challenging the views of agencies and professionals to ensure the concerns and issues of the wider community are reflected in the arrangements. Additionally, we are serving on working parties to improve our communications and training initiatives on public protection matters.

MAPPA ANNUAL REPORT 2005-2006

We have been impressed with the level of co-operation between the Responsible Authority and the Duty to Co-operate Agencies, openly working together to ensure the public are protected from offenders that would otherwise be a threat. However, more and closer co-operation has to be shown by all agencies involved in the MAPPA process. We, the public generally only hear about the work of MAPPA ‘when things go wrong’. As a society we seem all too willing to point the finger of blame at faceless bureaucrats that we presume just don’t understand or care. Our experience of professionals working in the public protection field has been, without exception, that they are highly trained, caring and totally committed to protecting ‘us’ the public. This is despite the fact that they are often working with tight budgets and frequently have scarce resources. We would welcome any comments from the public after reading this informative MAPPA Annual Report.

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Mick Robinson & Barbara Macauley Lay Advisers

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MAPPA ANNUAL REPORT 2005-2006

Victim Liaison - Reducing Crime, Changing Lives
London Probation has been working with victims of serious sexual and violent crime for many years. The Victim Liaison Service provides victims of offenders sentenced to over 12 months’ imprisonment with information about the offender’s release plans. Victims are also consulted about specific conditions in the offender’s licence to prevent unwanted contact. Last year this service was extended to victims of mentally disordered offenders who were sentenced to a hospital order with a restriction order, or a hospital direction and limitation direction for a violent or sexual offence. Victims really appreciate having contact with a Victim Liaison Officer (VLO) who can not only explain the criminal justice system and keep them up to date with the key stages in the offender’s sentence, but also take their concerns seriously.

Case Studies
Helen had been held hostage by her former partner who shot his way through her front door. As a result of her contact with a VLO, she was able to access security measures from the Community Safety Unit and obtain further support and counselling. She thanked her VLO for “working so quickly and efficiently to get things done”.

Cliff was acquitted of rape on a legal technicality. The case had previously been discussed at MAPPA and the VLO ensured that the victim was contacted by the Community Safety Unit and Victim Support so that she had ongoing support in obtaining a Protection from Harassment Order. The victim said that she felt reassured by her contact with her VLO.

The Victim Liaison Service in London has been involved in Restorative Justice work for several years. This process encourages offenders to acknowledge the impact of their offences and enables victims to have their experience acknowledged.

Case Study
Terry imprisoned for murdering a man during the course of a burglary. The victim was found by his daughter who, 20 years after the murder, asked to meet the offender. The meeting was very positive for her as she felt Terry took the process seriously and tried to give her the information she needed. As a result, she has agreed to speak to other victims in a similar situation.

MAPPA ANNUAL REPORT 2005-2006

Key Achievements
Training
Centrally appointed staff have continued to provide MAPPA training across the agencies this year as part of the programme coordinated by the SMB Training sub-group. This training has included: • Bespoke training on risk management of offenders and investigation strategies for detectives managing police teams; • MAPPA awareness training for staff in the Youth Offending Teams; • Training on information sharing and MAPPA for professionals working in mental health units. In addition, there is a MAPPA representative on the London Safeguarding Children’s Board training committee to ensure MAPPA processes are aligned to child protection procedures.

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Violent Offender and Sex Offender Register (ViSOR)
ViSOR is the Violent Offender and Sex Offender Register. It is used to store and share information and intelligence on individuals who have been identified as posing a risk of serious harm to the public. ViSOR is currently used by all police forces in England, Wales, Scotland and Northern Ireland. The National Offender Management Service (NOMS) plans to deploy the system to prisons and probation offices during 2006-2007. In London, this will begin in September 2006 for London Probation. ViSOR provides a UK-wide shared database of information and intelligence on dangerous persons. Full details are available to officers whenever an offender travels within or beyond the UK. The system is very secure. It is rated at ‘confidential’ level in the Government Protective Marking Scheme, ensuring that details of both offenders, and those contributing intelligence to the system, are kept safe. It is used by specially trained and security-cleared public protection professionals. ViSOR is currently being used across London very successfully by police to manage registered sex offenders. It is regularly checked in the investigation of serious violent or sexual offences. During the year 2005-2006 training, and access to the system, has been provided to a further 200 staff, bringing the total number of staff in London using the system to 550. The Metropolitan Police Service has also assisted in training staff from the Child Exploitation and Online Protection Centre formerly known as National Criminal Intelligence Service.

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MAPPA

MAPPA ANNUAL REPORT 2005-2006

Work is scheduled to take place through 2006 and 2007 to roll ViSOR out to prisons and probation offices throughout the UK. Once completed, this will facilitate end-to-end multi-agency offender management.

Criminal Justice Act 2003
The Criminal Justice Act 2003 was implemented, in part, in April 2005. The Act makes radical changes to the structure of prison and community sentences. It sets out the purpose of sentencing, which includes reform, rehabilitation and reparation as well as punishment and deterrence. It introduces a single generic community sentence to replace orders such as the Community Rehabilitation Order and the Community Punishment Order. This allows the Courts greater flexibility to tailor the sentence to individual offenders by adding a number of requirements. These requirements are designed to fit the purpose of sentence. The Act also introduces new sentences of imprisonment: an indeterminate sentence for public protection (IPP), and an extended sentence for public protection (EPP). The IPP is similar to a life sentence in that the Court sets a tariff period, which must be served before there is any consideration of release. Release is then at the discretion of the Parole Board on grounds of public safety. The EPP allows for the supervision of offenders in the community for an extended period. Both these sentences are intended to provide improved protection to the public from those offenders assessed as being the most dangerous.

Approved Premises
Approved Premises (Probation Hostels) have proved themselves to be a key element of London’s management of the risk posed by violent and sexual offenders. Approved Premises in London fulfill their responsibilities to victims, the public, partner agencies such as the police, and the staff who work there, by ensuring they can all have confidence that offenders are managed to the highest standards. All Approved Premises test residents for drug misuse using an oral swab that is sent off for analysis. Those whose risk demands close monitoring may be tested every three or four days. Alcohol testing is also carried out where the risk management plan identifies this requirement. Staffing has been increased to provide continuous cover by two staff at all times of the day and night. CCTV coverage has been upgraded to use digital recording technology providing better quality images. As members of MAPPA, Approved Premises managers help to identify those cases where a placement can contribute to managing risk as well as ensuring that risk management plans are implemented locally.

MAPPA ANNUAL REPORT 2005-2006

The close working relationships derived from MAPPA with the Police and Probation Public Protection Teams enable information and assessments to be shared quickly and increasing risk to be identified and acted on. Offenders’ behaviour and compliance are closely monitored by Approved Premises staff, as enforcement of orders and licences is a key element in protecting the public. Approved Premises managers provide on-call arrangements at night and weekends that can include instigating an emergency recall if the offender’s risk warrants such action.

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Electronic Borders monitoring
E-Borders is a national system, designed to monitor passenger movements into and out of the UK. The Metropolitan Police Central MAPPA Unit has formed a working relationship with the staff of E-Borders. This has enabled Police to obtain more intelligence about travelling sex offenders. It has also assisted Police to bring to justice those offenders who have failed to comply with the notification requirement under the Sexual Offences Act 2003.

Offender Assessment System (OASys)
OASys (Offender Assessment System) has been developed jointly by the Probation and Prison Services. It is structured to help practitioners assess how likely an offender is to re-offend, and the potential seriousness of any offence they may commit. It assesses the risk an offender poses to themselves and others. The aim of OASys is to deliver a common, efficient and effective offender risk and needs assessment system that enables the Prison and Probation Service to achieve Home Office targets for reduction in re-offending/reconviction rates and for increased protection of the public. The assessment is on-going, continuing throughout the sentence. The system is now fully connected between both services and it enables the electronic exchange of information between probation officers and prison establishments. Quick effective transfer of information enables practitioners to build an appropriate sentence plan that addresses an offender’s criminogenic factors. The information is also used to develop an appropriate risk management plan, which, for MAPPA offenders, may include other agencies. OASys is a world leading tool for the assessment of offenders. Over the last year London Probation has embedded its use in assessing risk, and formulating plans, to manage that risk where identified. Each borough can now derive a breakdown of factors which are most commonly linked to offending within the local offender population. OAsys is a tool that is used across the offender profile, not only with high risk offenders. Across London, within OASys, there are 39% of offenders who are assessed as low risk of causing serious harm, 48% where the risk of harm is assessed as medium and 13% where it is assessed as high or very high.

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MAPPA

MAPPA ANNUAL REPORT 2005-2006

National Offender Management Service (NOMS)
The National Offender Management Service (NOMS) was created in 2004 following a review of correctional services. The review identified key gaps in the work of prisons and probation. As a single service, NOMS brings together the work of correctional services. It ensures that court sentences are effectively implemented across organisational boundaries and that the focus is on end-to-end management of the offender. NOMS will also be responsible for designing interventions and services for offenders that are designed to reduce re-offending and protect the public. NOMS covers a number of organisations, including prisons and probation, to ensure that a range of services is available to adult offenders and to those on remand throughout England and Wales. Organisations from all sectors work with NOMS to provide services including offender management, custody, community punishments, programmes and interventions.

Introduction of Metropolitan Police Standard Operating Procedures
The management of people convicted of violent or sexual offences has been improved by the release of a new set of guidelines in 2005. The Standard Operating Procedures were developed by the Metropolitan Police Central MAPPA Unit to help staff effectively manage those offenders covered by MAPPA. The procedures give staff in local borough teams clarity and reassurance in relation to their role, providing comprehensive guidance on the management of offenders who fall within the remit of MAPPA.

MAPPA ANNUAL REPORT 2005-2006

Victim Support Services and Helplines
NSPCC Child Protection
If you need help or advice, or are concerned that a child may be at risk.

Survivors UK
For male victims of sexual abuse.

0808 800 5000 www.nspcc.org.uk

0845 1221 201 www.survivors.uk.org

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National Domestic Violence Helpline Victim Support
Free and confidential; support for people affected by crime. For victims of domestic violence.

0808 2000 247 www.womensaid.org.uk

0845 30 30 900 www.victimsupport.org

Inter Faith Network for the UK
Provides information and advice on interfaith issues, as well as promoting good relations between the faiths in this country.

Southall Black Sisters
Services for black & minority ethnic women.

020 8571 9596 www.southallblacksisters.org.uk

020 7931 7766 www.interfaith.org.uk

GALOP Mind
For better Mental Health. Third party reporting services on behalf of the Metropolitan Police Service. Support and advice to victims of homophobic and transphobic incidents and crime.

0845 766 0163 www.mind.org.uk

0207 704 2040 www.galop.org.uk

The Zito Trust
A registered charity seeking to highlight issues relating to mental health, and care of those who are affected by it.

Broken Rainbow
Support and advice to lesbian, gay, bisexual and transgender people who experience domestic violence.

01497 820011 zitotrust@btinternet .com

0845 260 4460 www.lgbt-dv.org

The Suzy Lamplugh Trust
‘The leading authority on personal safety’

There 4 me.com
Confidential online advice for teenagers.

020 7091 0014 www.suzylamplugh.org

www.there4me.com

Rape and Sexual Abuse Support Centre
Male or female survivors of rape or sexual abuse as well as friends, family and partners.

0845 1221 331 www.rasasc.org.uk

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MAPPA ANNUAL REPORT 2005-2006

Contact Points
Commander Steve Allen Metropolitan Police Service, Violent Crime Directorate, Territorial Policing Headquarters, Room 1.41 Victoria Embankment London SW1 2JL tel: 020 7321 7210 email: stephen.allen2@met.police.uk

Temporary Commissioner Mike Bowron City of London Police Headquarters Wood Street London EC2P 2NQ tel: 020 7601 2222 email: mike.bowron@city-of-london.pnn.police.uk

Keith Munns, London Area Manager HM Prison Service Room 726 Cleland House Page Street SW1P 4lN tel: 020 7217 6180 email: keith.munns@hmps.gsi.gov.uk

David Scott, Chief Officer London Probation 71-73 Great Peter Street SW1P 2BN tel: 020 7960 1006 email: david.scott@London.probation.gsi.gov.uk

MAPPA ANNUAL REPORT 2005-2006

Appendix A: SMB Business Plan 2006 - 2007
1 MAPPA Development Strategy
Strategic Aim
Achieve dedicated MAPPA co-ordination and administration capacity across all boroughs during 2006/07.

Delivery Plan
Responsible Authority and London Criminal Justice Board will meet as the strategic leadership authority to assess resourcing needs and fitness for purpose of London MAPPA Recruit 16 dedicated MAPPA administrators (0.5 per borough) Review of SMB funding arrangements and devise a funding strategy

Milestones
Strategic Conference in July 2006

Resource
Responsible Authority and LCJB in collaboration with MAPPA SMB

Outcome
By April 2007 all SMBs able to confirm dedicated coordinator & administration posts in place

25

From April 2006

London Probation

By March 2007

SMB

2 Monitoring & Evaluation Strategy
Strategic Aim
MAPPA SMBs implement Business Plan for 2006/07 which will incorporate monitoring arrangements to support: Publication of Annual Report To work to national template Creation of Annual Report sub-group to reflect agency responsibility for content To ensure statistical information is accurate and verified To identify case studies To agree content November 2006 SMB SMB Publication of report

Delivery Plan

Milestones

Resource

Outcome

Between January and March 2007 Between January and March 2007 By April 2007

SMB

SMB - Annual Report sub-group SMB - Annual Report sub-group

MAPPA ANNUAL REPORT 2005-2006

Strategic Aim
Publication of Annual Report cont:

Delivery Plan
To publish report in line with national time-scales To review other areas’ Annual Reports to identify good practice

Milestones
Awaits national direction
Between October 2006 and December 2006

Resource
SMB - Annual Report sub-group
SMB - Annual Report sub-group

Outcome

26
Analysis of use of MAPPA risk management thresholds at all levels Implementation of 3312 and 3315 form series (information exchange/minutes) Field visits to facilitate/monitor compliance To initiate a programme of joint visits and attendance at Level 2 meetings from SMB members A representative from SMB to attend all Level 3 MAPPP meetings
Full compliance by July 2006 All SMB members To establish the London SMB performance monitoring regime

To commence April 2006

All SMB members

To commence April 2006

All SMB members

To commence April 2006

All SMB members

Analysis of MAPPA offenders who commit serious further offences

Establishment of information sharing and notification process to the SMB Performance and Review sub-group following the identification of an SFO (Probation definition) To agree a PanLondon process for the notification of SFOs convicted by offenders not subject to probation supervision To develop and enhance the multi-agency review process

To commence April 2006

All SMB members

To commence April 2006

SMB - Performance and Review subgroup

To commence April 2006

SMB Performance and Review sub-group to be endorsed by Chair of SMB

MAPPA ANNUAL REPORT 2005-2006

Strategic Aim
Analysis of MAPPA offenders who commit serious further offences cont:

Delivery Plan
To appoint London Probation SFO Inspector To ensure that the DTC Agencies are represented at the SMB To provide a template for Pan London DTC protocol

Milestones
To commence April 2006

Resource
SMB - Performance and Review subgroup LInked to Peformance and Review sub-group SMB Chair

Outcome

By 1st June 2006

To commence July 2006

27

Analysis of attendance and level of cooperation of agencies contributing to Level 2 & 3 meetings

Metropolitan Police Service to collect monthly data on attendance at MAPPA meetings

By April 2007

SMB Chair

Analysis of diversity profile of offenders assessed at Level 2 and Level 3

Awaits clarification from NPD

To commence April 2006

SMB

3 Communication & Strategic Partnerships Strategy
Strategic Aim
a) The Responsible Authority for MAPPA to publish annual report, in consultation with Lay Advisers and SMB, and supported by Ministers and the collection of national MAPPA data from PPLRU each year.

Delivery Plan
Draft SMB Annual reports submitted to PPLRU. National data assembled and publication date determined by Minister

Milestones
April 2006

Resource
SMB - Annual Report sub-group

Outcome
Public confidence agenda enhanced through publication and engagement with media of MAPPA annual reports

June 2006

PPLRU

b) Annual reports are improved and developed to improve public understanding and engagement.

Publication of Annual Reports, supported by national and local communication strategy

National - April 2006 Local - March 2007

PPLRU & SMB Coummunication and Annual Report sub-groups

MAPPA communication strategy contributes to improved public understanding and confidence

28
c) Develop Communication Strategy

MAPPA ANNUAL REPORT 2005-2006

Strategic Aim
b) Annual reports are improved and developed to improve public understanding and engagement cont:

Delivery Plan
Communication and Annual Report sub-groups to meet in May and June to develop a delivery campaign for the Annual Report 2005/06 in line with the national guidance. Identity opportunities to work constructively with media to improve public understanding of MAPPA

Milestones
Starts April 2006

Resource
SMB Communication and Annual Report sub-groups

Outcome
SMB able to develop local strategy building from national strategy

By April 2007

SMB Communication sub-group

National requirements delivered and SMB able to develop local strategy. Building from MAPPA communication strategy contributes to improved public understanding and confidence

i) Implement the local requirements of the national communication strategy

By April 2007

SMB Communication sub-group

ii) To develop, prioritise and implement those strands of the 3-year London MAPPA Communication Strategy (2006-2008) as directed/tasked by the SMB iii) To design, print and distribute a leaflet explaining how MAPPA works in London to inform and educate communities, agency staff and other stakeholders iv) To explore how the MAPPA explanatory/ communication leaflet can be effectively distributed and introduced into communities and implement v) To identify a centrally focused, locally delivered communication strategy

December 2006

SMB Communication sub-group

December 2006

SMB Communication sub-group

October 2006

SMB Communication sub-group

By April 2007

SMB Communication sub-group

MAPPA ANNUAL REPORT 2005-2006

Strategic Aim
c) Develop Communication Strategy

Delivery Plan
vi) To identify at least 3 opportunities to engage with key stakeholders and promote understanding of MAPPA issues

Milestones
By April 2007

Resource
SMB Communication and Annual Report sub-groups

Outcome

4 Training Strategy
Strategic Aim
a) Deliver 2nd module of national training to Lay Advisers

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Milestones
September 2005

Delivery Plan
Training schedule and programme in place to support understanding and encourage shared learning from Lay Advisers Training delivered.

Resource
PPLRU

Outcome
Lay Advisers have received training to support the development of their role and enhance understanding of MAPPA. Lay Advisers able to provide independent advice and represent public perspective at MAPPA SMBs

During 2005/07

Deliver 3rd module of national training to Lay Advisers.

Training will take the form of a conference or a workshop

By 2007

b) Deliver National MAPPA Coordinators conference

To plan and deliver national MAPPA coordinators conference to disseminate current developments and promote shared good practice.

April 2006

PPLRU

MAPPA Coordinators are kept informed of good practice and legislative developments that support MAPPA.

c) Collation of core training material to support MAPPA SMBs training strategy and benefit from shared learning and ensure efficient use of developed training materials.

Establish a library of existing training materials held by the responsible authority. Explore development of an internet site for training materials and FAQs

By August 2006

SMB - Training sub-group

November 2006

SMB funding required

d) MAPPA SMBs include a training strategy in business plans, to address: Induction to MAPPA for new practitioners

Produce Induction Pack for new practitioners

October 2006

SMB - Training sub-group

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MAPPA ANNUAL REPORT 2005-2006

Strategic Aim
Training for MAPPA SMB members cont:

Delivery Plan
Training bulletins to be produced on relevant topics and circulated to staff via e-mail from SMB leads Themed training seminars for RA/DTC participants to be organised - one per quadrant i.e. four per year

Milestones
To commence April 2006

Resource
SMB - Training sub-group

Outcome

Training for MAPPA coordinators and administrators

To commence October 2006

SMB - Training sub-group

5 Strengthening MAPPA links
Strategic Aim
a) Develop a strengthening the links element to SMB Business Plan by engaging with:(i) DTC agencies (i) Develop a protocol for the involvement of electronic monitoring providers (SERCO) with MAPPA locally, incorporating the potential value of access to central database (ii) Build a relationship with Courts Service and CPS, establishing lines of communication and develop disposals guidance (iii) Develop opportunities to engage with Mayor’s DV strategy, DV Courts, Project Umbra September 2006 SMB PPLRU Procedures for compliance by offenders and enforcement are clear and adhered to.

Delivery Plan

Milestones

Resource

Outcome

(ii) Other stakeholder organisations

April 2007

SMB

Better understanding of MAPPA issues within the CPS and improved consistency in prosecutions policy MAPPA offenders who are DV offenders are properly identified and appropriately dealt with either in MAPPA or RAMP (in development)

(iii) initiatives

April 2007

SMB

MAPPA ANNUAL REPORT 2005-2006

Appendix B: Statistical Information
The following statistical information details MAPPA activity within London for the period 1st April 2005 to 31st March 2006.

1
i

Category 1 MAPPA offenders: registered sex offenders (RSOs)
The number of RSOs living within the area covered by the Metropolitan Police Service on 31st March 2006 The number of RSOs per 100,000 head of population 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 The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts within the Metropolitan Police area between 1st April 2005 and 31st March 2006 The number of (a) Notification Orders applied for (b) Interim Notification Orders granted and (c) full Notification Orders imposed by the courts within the Metropolitan Police area between 1st April 2005 and 31st March 2006 The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts witin the Metropolitan Police area between 1st April 2005 and 31st March 2006

31

3113 42 202

ii iii

iv

a) 48 b) 14 c) 55 a) 15 b) 1 c) 21

v

vi

a) b)

1 1

2
vii

Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS)
The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)), living within the Metropolitan Police area between 1st April 2005 and 31st March 2006

1985

3
viii

Category 3 MAPPA offenders: Other Offenders (OthO)
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

434

MAPPA

MAPPA ANNUAL REPORT 2005-2006

4
ix

Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management)
Identify how many MAPPA offenders in each of the three Categories have been managed through the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2005 and 31st March 2006

Level 3
(1) RSOs (2) V&O (3) OthO

Level 2 1597 767 288

32

RSO V&O OthO

20 14 6

The level 3 figure is the ‘critical few’. The criteria for referring a case to the MAPPP are defined in MAPPA Guidance as those in which the offender: • • is assessed under OASys as being a high or very high risk of causing serious harm; AND presents risks that can only be managed by a plan which requires close co-operation at a senior level due to the complexity of the case, and/or because of the unusual resource commitments it requires; OR although not assessed as a high or very high risk, the case is exceptional because the likelihood of media scrutiny and/or public interest in the management of the case is very high, and there is a need to ensure public confidence in the criminal justice system.

The level 2 figure should include those offenders who have not been managed at level 3 at any point in the counting period & meet the criteria set out in the MAPPA Guidance as follows: • The management of the offender requires the active involvement of more than one agency, but the complexity of managing the risk is not so great as to require referral to Level 3, the MAPPP Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1s April 2005 and 31st March 2006 how many, whilst managed at that level:

x

Level 3
(a) (b) (c) Were returned to custody for a breach of licence? Were returned to custody for a breach of a restraining order or sexual offences prevention order? Were charged with a serious sexual or violent offence?

Level 2 212 14 4

a) b) c)

2 0 0

MAPPA ANNUAL REPORT 2005-2006

Appendix C: Commentary on Statistics
Category 1 Offenders (registered sex offenders)
The data shows an increase in the number of registered sex offenders rising from 2657 offenders to 3113 across London. This equates to a similar growth of 17.2% last year, despite offenders on the five-year register being removed. A significant part of this growth can be attributed to the successful increase in the use of civil orders. Examples are Notification Orders imposed on deportees having committed qualifying offences abroad arriving in the UK and the seeking of Sexual Offences Prevention Orders imposed on offenders not previously subject to the notification requirements of the Sexual Offences Act 2003 (SOA 2003).

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Breach of Notification Requirements
There was an increase of 34.6% in the number of offenders convicted for failing to make appropriate notifications under the Act. The offences (not prosecutions) breakdown is as follows:

21%
Change of details (Sec 84 SOA 2003)

8% 7%

64%

Initial notification (Sec 83 SOA 2003) Foreign travel (Sec 86 SOA 2003) Periodic notification (Sec 85 SOA 2003)

This increase can be attributed to two factors: • The increased performance regime that has been introduced, leading to the production of more accurate statistical information; • The greater use of intrusive offender management, coupled with enhanced proactivity, against those offenders where there is intelligence, and/or evidence, to identify breaches in the requirements of the Act.

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MAPPA

MAPPA ANNUAL REPORT 2005-2006

Category 2 Offenders
This figure represents a 37% increase compared to the same period last year. This is consistent with improved identification processes and a significant number of offenders initially being managed in a multi-agency way on release from custody. The figure for Category 2 offenders managed at level 2 has increased by 46%, and those managed at Level 3 by 54%.

Category 3 Offenders
The identification of Category 3 offenders appears to have stabilised with a growth of only 2.4%. Over the year, a great deal of work has been done to ensure that overcautious identification of risk does not lead to boroughs becoming unnecessarily burdened in the MAPPA process. A Category 3 offender, once identified and dealt with, should be regularly re-assessed and reduced in management level only when the risk has diminished.

Civil Orders
The growth in use of Civil Orders continues on an upward trend with a 67% increase of granted Orders. In addition, this year there have been 24 prosecutions of offenders for breaching the order imposed upon them. Good use of Section 92 Sexual Offences Act 2003 (Notification Orders) has been made this year with double the number of granted applications. This is due to the improved communication between the Metropolitan Police Central MAPPA Unit and authorities overseas regarding the deportation of UK citizens convicted of sexual offences abroad. Only one Foreign Travel Order was obtained this year and that was a result of an application made the previous year. These orders require credible evidence or intelligence that would identify an intention to commit offences in specific countries. Currently the Metropolitan Police Service works with the Child Exploitation and Online Protection Centre (CEOP) and Interpol to disseminate information on travelling sex offenders to the receiving country. The maximum duration of a Foreign Travel Order is six months.

MAPPA ANNUAL REPORT 2005-2006

Levels of Management
The correct level of management of offenders under MAPPA is important to ensure appropriate resourcing and effective risk management planning. To ensure consistent performance across London, the level of management afforded to offenders across the 32 boroughs is now measured on a monthly basis and boroughs are encouraged to review their management levels where appropriate. The total number of Level 3 offenders managed this year has not changed significantly. This year it is 40 compared with last year’s 39. It is important that Level 3 is reserved for the ‘critical few‘. Monthly examination of offender management levels has led to more stringent decision making, which keeps Level 3 resourcing properly focused on the ‘critical few’.

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Breach of Licence
The enforcement of breaches of licence continues to be an effective tool for controlling risk to the community and 214 offenders were returned to custody, a small increase of 7% on last year.

Offenders Charged with Serious Further Offences1
As with last year, no offenders managed at Level 3 went on to commit a serious further offence. There were four confirmed cases involving offenders managed at Level 2. The number of Level 2 and 3 offenders prosecuted for Serious Further Offences represents 0.14% of the total.

1

Murder; Attempted Murder; Arson (where there is an intent to endanger life); Manslaughter; Rape; Kidnap/Abduction or Attempted Kidnap/Abduction. Any other very serious violent or very serious sexual offence; Armed Robbery (defined as robbery involving a firearm), Assault With a Deadly Weapon or Hostage Taking; Any other violent or sexual offence where the offender/offence is likely to attract significant media interest or which raises wider issues of national interest.

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MAPPA ANNUAL REPORT 2005-2006

Breakdown of the numbers of registered sex offenders by Borough Operational Command Units across London
Borough
Barking & Dagenham Barnet Bexley Brent Bromley Camden Croydon Ealing Enfield Greenwich Hackney Hammersmith & Fulham Haringey Harrow Havering Hillingdon Hounslow Islington Kensington & Chelsea Kingston Lambeth Lewisham Merton Newham Redbridge Richmond Southwark Sutton Tower Hamlets Waltham Forest Wandsworth Westminster City of London Total

Number
70 79 57 132 128 73 142 145 98 115 106 52 102 64 49 78 71 92 77 40 184 164 77 117 76 60 150 57 81 165 126 83 3 3113

MAPPA ANNUAL REPORT 2005-2006

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If you would like a copy of this report in another language, in large print, Braille, on disk or audiotape, please contact us at the address on page 1 or at new.scotlandyard@met.police.uk
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MAPPA ANNUAL REPORT 2005-2006

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MAPPA ANNUAL REPORT 2005-2006

Glossary of terms
AP CEOP DTC EPP HMIP IPP MAPPA MAPPP MPS NOMS OASys OthO PPLRU RAMP RSO SOA SMB SOPO VLO ViSOR V&Os Approved Premises Child Exploitation and Online Protection Centre Duty to Co-operate Agencies Extended Public Protection sentence Her Majesty’s Inspectorate of Probation Indeterminate Public Protection sentence Multi-Agency Public Protection Arrangements Multi-Agency Public Protection Panel Metropolitan Police Service National Offender Management Service Offender Assessment System Other offenders Public Protection Licence Release Unit Risk Assessment Management Process Registered sex offender Sexual Offences Act Strategic Management Board Sexual Offences Prevention Order Victim Liaison Officer Violent & Sex Offender Register Violent and Other Sexual Offenders

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MAPPA ANNUAL REPORT 2005-2006

Notes

Notes

design studio G19187-516©MPA, City of London Police, London Probation and HM Prison Service London Area 2006.