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MAPPA

PROTECTING THE PUBLIC IN PARTNERSHIP: LONDON MAPPA

Multi-Agency Public Protection Arrangements (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 1
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.

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 ANNUAL REPORT 2005-2006

Contents

This report, how to contact us, further copies 1

Foreword by Gerry Sutcliffe MP 3

Introductions by Heads of Service 4-6


2
MAPPA - The first five years 6

Strategic Management Board Business Plan 7

MAPPA in London 8

Duty to Co-operate Agencies 9

What actually happens? 10 - 12

Civil Orders 13 - 14

Strengthening MAPPA through lessons learnt 15

Lay Advisers 16 - 17

Victim Liaison 18

Key Achievements 19 - 22

Victim Support Services and Helplines 23

Contact Points 24

Appendix A: SMB Business Plan 25 - 30

Appendix B: Statistical Information 31 - 32

Appendix C: Commentary on Statistics 33 - 35

Breakdown of registered sex offenders by Borough Operational Command Unit 36

Alternative languages and format 37 - 38

Glossary of terms 39

Notes 40

MAPPA
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 3
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 under-
taken by the probation, police and prison services, as well as by those other agencies that
contribute to the assessment and management of offenders. The publication of MAPPA
Business Plans by each Area in this year’s annual reports offers a helpful and necessary
programme of local development and review and must lead to enhanced practice. It will be
essential that this progress is transparent and shared with local communities.

In addition to this, however, it is important that no opportunity is missed to consider other


measures that will further enhance public safety. That is why we are undertaking the Child Sex
Offender Review, to look at how a particular group of offenders, who provoke anxiety for many,
are best managed in the community. The review is consulting a wide range of practitioners
and key stakeholders including the MAPPA lay advisers, and will report around the end of the
year.

Finally, in commending this report to you, I want to take the opportunity to thank all those
involved locally in working with sexual and violent offenders, or in ensuring that these
arrangements are fit for purpose. Where MAPPA is working well it is based on maintaining high
professional standards and effective multi-agency collaboration in the delivery of robust risk
management plans. While it is not possible to eliminate risk entirely, where all reasonable action
is taken the risk of further serious harm can be reduced to a minimum and fewer victims will be
exposed to repeat offending.

Gerry Sutcliffe MP
Parliamentary Under Secretary of State for Criminal Justice and Offender Management
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
4 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.

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 multi-
agency 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 5

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 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.

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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.

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
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; 7
• Planning our business within a strategic framework.

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 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.
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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.

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
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 9


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.

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.
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
10
that identifies the concerns, and balances confidentiality with public protection. A risk assess-
ment 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
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 11
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.


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
12 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
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) 13


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.

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 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
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.
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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.
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
16
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
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
17
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.

Mick Robinson & Barbara Macauley


Lay Advisers
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
18 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:

19
• 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.

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.
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
20 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
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.
21

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.
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
22 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
MAPPA ANNUAL REPORT 2005-2006
Victim Support Services and Helplines

NSPCC Child Protection Survivors UK


If you need help or advice, or are For male victims of sexual abuse.
concerned that a child may be at risk. 0845 1221 201
0808 800 5000 www.survivors.uk.org
www.nspcc.org.uk 23
National Domestic Violence Helpline
Victim Support For victims of domestic violence.
Free and confidential; support 0808 2000 247
for people affected by crime. www.womensaid.org.uk
0845 30 30 900
www.victimsupport.org Inter Faith Network for the UK
Provides information and advice on inter-
Southall Black Sisters faith issues, as well as promoting good
Services for black & minority ethnic relations between the faiths in this country.
women. 020 7931 7766
020 8571 9596 www.interfaith.org.uk
www.southallblacksisters.org.uk
GALOP
Mind Third party reporting services on behalf
For better Mental Health. of the Metropolitan Police Service. Support
and advice to victims of homophobic and
0845 766 0163 transphobic incidents and crime.
www.mind.org.uk
0207 704 2040
www.galop.org.uk
The Zito Trust
A registered charity seeking to highlight
Broken Rainbow
issues relating to mental health, and care
of those who are affected by it. Support and advice to lesbian, gay, bisexual
and transgender people who experience
01497 820011 domestic violence.
zitotrust@btinternet .com
0845 260 4460
www.lgbt-dv.org
The Suzy Lamplugh Trust
‘The leading authority on personal safety’
There 4 me.com
020 7091 0014 Confidential online advice for teenagers.
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
MAPPA ANNUAL REPORT 2005-2006

Contact Points

Commander Steve Allen


Metropolitan Police Service,
Violent Crime Directorate,
Territorial Policing Headquarters,
24 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 Delivery Plan Milestones Resource Outcome

Achieve Responsible Strategic Responsible By April 2007


dedicated MAPPA Authority and Conference in Authority and LCJB all SMBs able 25
co-ordination and London Criminal July 2006 in collaboration to confirm
administration Justice Board with MAPPA SMB dedicated
capacity across all will meet as the coordinator &
boroughs during strategic leadership administration
2006/07. authority to assess posts in place
resourcing needs
and fitness for
purpose of London
MAPPA
 ecruit 16 dedicated
R From April 2006 London Probation
MAPPA
administrators
(0.5 per borough)
 eview of SMB
R By March 2007 SMB
funding arrange-
ments and devise
a funding strategy

2 Monitoring & Evaluation Strategy

Strategic Aim Delivery Plan Milestones Resource Outcome

MAPPA SMBs
implement
Business Plan
for 2006/07 which
will incorporate
monitoring
arrangements
to support:

Publication of To work to national SMB Publication


Annual Report template of report

Creation of Annual November 2006 SMB


Report sub-group
to reflect agency
responsibility for
content

To ensure statistical Between January SMB


information is and March 2007
accurate and verified

To identify case Between January SMB - Annual Report


studies and March 2007 sub-group

To agree content By April 2007 SMB - Annual Report


sub-group
MAPPA ANNUAL REPORT 2005-2006

Strategic Aim Delivery Plan Milestones Resource Outcome

Publication of To publish report Awaits national SMB - Annual


Annual Report in line with national direction Report sub-group
cont: time-scales

To review Between October SMB - Annual Report


other areas’ Annual 2006 and December sub-group
Reports to identify 2006
good practice

26
Analysis of use
of MAPPA risk Implementation of Full compliance by All SMB members To establish the
management 3312 and 3315 form July 2006 London SMB
thresholds at all series (information performance
levels exchange/minutes) monitoring regime

Field visits to To commence April All SMB members


facilitate/monitor 2006
compliance

To initiate a To commence April All SMB members


programme of 2006
joint visits and
attendance at Level
2 meetings from
SMB members

A representative To commence April All SMB members


from SMB to attend 2006
all Level 3 MAPPP
meetings

Analysis of MAPPA Establishment of To commence April All SMB members


offenders who information sharing 2006
commit serious and notification
further offences process to the
SMB Performance
and Review
sub-group
following the
identification of
an SFO (Probation
definition)

To agree a Pan- To commence April SMB - Performance


London process 2006 and Review sub-
for the notification group
of SFOs convicted
by offenders not
subject to
probation
supervision

To develop and To commence April SMB -


enhance the 2006 Performance and
multi-agency Review sub-group
review process to be endorsed by
Chair of SMB
MAPPA ANNUAL REPORT 2005-2006
Strategic Aim Delivery Plan Milestones Resource Outcome

Analysis of MAPPA To appoint London To commence April SMB - Performance


offenders who Probation SFO 2006 and Review sub-
commit serious Inspector group
further offences
cont: To ensure that the By 1st June 2006 LInked to
DTC Agencies are Peformance and
represented at the Review sub-group
SMB

To provide a To commence July SMB Chair


template for Pan 2006 27
London DTC
protocol

Analysis of Metropolitan Police By April 2007 SMB Chair


attendance Service to collect
and level of monthly data on
cooperation of attendance at
agencies MAPPA meetings
contributing
to Level 2 & 3
meetings

Analysis of diversity Awaits clarification To commence SMB


profile of offenders from NPD April 2006
assessed at Level 2
and Level 3

3 Communication & Strategic Partnerships Strategy

Strategic Aim Delivery Plan Milestones Resource Outcome

a) The Responsible Draft SMB Annual April 2006 SMB - Annual Public
Authority for reports submitted to Report sub-group confidence
MAPPA to publish PPLRU. agenda
annual report, in enhanced through
consultation with National data publication and
Lay Advisers and assembled and engagement with
SMB, and publication date media of MAPPA
supported by determined by annual reports
Ministers and the Minister
collection of national June 2006 PPLRU
MAPPA data from
PPLRU each year.

b) Annual reports Publication of Annual National - April PPLRU & SMB MAPPA
are improved Reports, supported 2006 Coummunication communication
and developed by national and Local - March and Annual Report strategy
to improve public local communication 2007 sub-groups contributes to
understanding and strategy improved public
engagement. understanding
and confidence
MAPPA ANNUAL REPORT 2005-2006

Strategic Aim Delivery Plan Milestones Resource Outcome

b) Annual reports Communication Starts April 2006 SMB - SMB able to


are improved and Annual Report Communication develop local
and developed sub-groups to meet and Annual Report strategy building
to improve public in May and June to sub-groups from national
understanding and develop a delivery strategy
engagement cont: campaign for the
Annual Report
2005/06 in line
with the national
guidance.
28
c) Develop Identity By April 2007 SMB - National
Communication opportunities Communication requirements
Strategy to work sub-group delivered and
constructively SMB able to
with media to develop local
improve public strategy. Building
understanding from MAPPA
of MAPPA communica-
tion strategy
contributes to
improved public
understanding
and confidence

i) Implement the local By April 2007 SMB -


requirements of the Communication
national communica- sub-group
tion strategy

ii) To develop, December 2006 SMB -


prioritise and Communication
implement those sub-group
strands of the 3-year
London MAPPA
Communication
Strategy (2006-2008)
as directed/tasked
by the SMB

iii) To design, print December 2006 SMB -


and distribute a Communication
leaflet explaining sub-group
how MAPPA works
in London to inform
and educate
communities,
agency staff and
other stakeholders

iv) To explore how October 2006 SMB -


the MAPPA Communication
explanatory/ sub-group
communication
leaflet can be
effectively
distributed and
introduced into
communities and
implement

v) To identify a By April 2007 SMB -


centrally focused, Communication
locally delivered sub-group
communication
strategy
MAPPA ANNUAL REPORT 2005-2006
Strategic Aim Delivery Plan Milestones Resource Outcome

c) Develop vi) To identify at By April 2007 SMB -


Communication least 3 opportunities Communication
Strategy to engage with key and Annual Report
stakeholders and sub-groups
promote
understanding
of MAPPA issues

4 Training Strategy 29

Strategic Aim Delivery Plan Milestones Resource Outcome

a) Deliver 2nd Training schedule September 2005 PPLRU Lay Advisers have
module of and programme in received training
national training to place to support to support the de-
Lay Advisers understanding and velopment of their
encourage shared role and enhance
learning from Lay understanding of
Advisers MAPPA.

Training delivered. During 2005/07 Lay Advisers


able to provide
independent
advice and
represent public
perspective at
MAPPA SMBs
Deliver 3rd module Training will take the By 2007
of national training to form of a conference
Lay Advisers. or a workshop

b) Deliver National To plan and April 2006 PPLRU MAPPA


MAPPA deliver national Coordinators are
Coordinators MAPPA coordinators kept informed of
conference conference to good practice
disseminate current and legislative
developments and developments
promote shared that support
good practice. MAPPA.

c) Collation of core Establish a library By August 2006 SMB - Training


training of existing training sub-group
material to support materials held by
MAPPA SMBs the responsible
training strategy authority.
and benefit from
shared learning Explore November 2006 SMB funding
and ensure development of required
efficient use an internet site
of developed for training
training materials. materials and FAQs

d) MAPPA SMBs Produce October 2006 SMB - Training


include a Induction Pack sub-group
training strategy for new
in business plans, practitioners
to address:

Induction to MAPPA
for new practitioners
MAPPA ANNUAL REPORT 2005-2006

Strategic Aim Delivery Plan Milestones Resource Outcome

Training for MAPPA Training bulletins To commence April SMB - Training


SMB members cont: to be produced on 2006 sub-group
relevant topics and
circulated to staff
via e-mail from SMB
leads

Training for MAPPA Themed training To commence SMB - Training


coordinators and seminars for October 2006 sub-group
administrators RA/DTC participants
30 to be organised
- one per quadrant
i.e. four per year

5 Strengthening MAPPA links

Strategic Aim Delivery Plan Milestones Resource Outcome

a) Develop a
strengthening the
links element to
SMB Business Plan
by engaging with:-

(i) DTC agencies (i) Develop a September 2006 SMB PPLRU Procedures for
protocol for the compliance by
involvement offenders and
of electronic enforcement
monitoring are clear and
providers (SERCO) adhered to.
with MAPPA locally,
incorporating the
potential value of
access to central
database

(ii) Other (ii) Build a April 2007 SMB Better


stakeholder relationship with understanding of
organisations Courts Service and MAPPA issues
CPS, establishing within the CPS
lines of and improved
communication consistency
and develop in prosecutions
disposals guidance policy

(iii) initiatives (iii) Develop April 2007 SMB MAPPA


opportunities offenders who
to engage with are DV
Mayor’s DV strategy, offenders
DV Courts, Project are properly
Umbra identified and
appropriately
dealt with either
in MAPPA or
RAMP (in
development)
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 Category 1 MAPPA offenders: registered sex offenders (RSOs)


31
i The number of RSOs living within the area covered by the Metropolitan 3113
Police Service on 31st March 2006

ii The number of RSOs per 100,000 head of population 42

iii The number of sex offenders having a registration requirement who 202
were either cautioned or convicted for breaches of the requirement,
between 1st April 2005 and 31st March 2006

iv The number of (a) Sexual Offences Prevention Orders (SOPOs) a) 48


applied for (b) interim SOPOs granted and (c) full SOPOs imposed b) 14
by the courts within the Metropolitan Police area between 1st April 2005
c) 55
and 31st March 2006

v The number of (a) Notification Orders applied for (b) Interim Notification a) 15
Orders granted and (c) full Notification Orders imposed by the courts b) 1
within the Metropolitan Police area between 1st April 2005 and 31st
c) 21
March 2006

vi The number of Foreign Travel Orders (a) applied for and (b) imposed a) 1
by the courts witin the Metropolitan Police area between 1st April 2005 b) 1
and 31st March 2006

2 Category 2 MAPPA offenders: Violent offenders and Other


Sexual offenders (V&OS)

vii The number of violent and other sexual offenders (as defined by 1985
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

3 Category 3 MAPPA offenders: Other Offenders (OthO)

viii The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the 434
Criminal Justice Act (2003)) between 1st April 2005 and 31st March 2006
MAPPA ANNUAL REPORT 2005-2006

4 Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency


management)

ix 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 Level 2
32 (1) RSOs RSO 20 1597
(2) V&O V&O 14 767
(3) OthO OthO 6 288

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

x 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:
Level 3 Level 2
(a) Were returned to custody for a breach of licence? a) 2 212

(b) Were returned to custody for a breach of a restraining order b) 0 14


or sexual offences prevention order?

(c) Were charged with a serious sexual or violent offence? c) 0 4

MAPPA
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 33
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).

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)

Initial notification (Sec 83 SOA 2003)


8% 64%
Foreign travel (Sec 86 SOA 2003)
7% 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.
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%.

34
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
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 35
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’.

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.
MAPPA ANNUAL REPORT 2005-2006

Breakdown of the numbers of registered sex offenders by Borough


Operational Command Units across London

Borough Number

Barking & Dagenham 70


36 Barnet 79

Bexley 57

Brent 132

Bromley 128

Camden 73

Croydon 142

Ealing 145

Enfield 98

Greenwich 115

Hackney 106

Hammersmith & Fulham 52

Haringey 102

Harrow 64

Havering 49

Hillingdon 78

Hounslow 71

Islington 92

Kensington & Chelsea 77

Kingston 40

Lambeth 184

Lewisham 164

Merton 77

Newham 117

Redbridge 76

Richmond 60

Southwark 150

Sutton 57

Tower Hamlets 81

Waltham Forest 165

Wandsworth 126

Westminster 83

City of London 3

Total 3113
MAPPA ANNUAL REPORT 2005-2006
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MAPPA ANNUAL REPORT 2005-2006

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MAPPA ANNUAL REPORT 2005-2006
Glossary of terms

AP Approved Premises

CEOP Child Exploitation and Online Protection Centre

DTC Duty to Co-operate Agencies 39

EPP Extended Public Protection sentence

HMIP Her Majesty’s Inspectorate of Probation

IPP Indeterminate Public Protection sentence

MAPPA Multi-Agency Public Protection Arrangements

MAPPP Multi-Agency Public Protection Panel

MPS Metropolitan Police Service

NOMS National Offender Management Service

OASys Offender Assessment System

OthO Other offenders

PPLRU Public Protection Licence Release Unit

RAMP Risk Assessment Management Process

RSO Registered sex offender

SOA Sexual Offences Act

SMB Strategic Management Board

SOPO Sexual Offences Prevention Order

VLO Victim Liaison Officer

ViSOR Violent & Sex Offender Register

V&Os Violent and Other Sexual Offenders


Notes
MAPPA ANNUAL REPORT 2005-2006

40
Notes
design studio G19187-516©MPA, City of London Police, London Probation and HM Prison Service London Area 2006.