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Protecting the Public in Partnership

Multi-Agency arrangements for managing sexual,

violent and other dangerous offenders
Annual Report 2003–2004
■ Metropolitan Police Service
■ City of London Police
■ London Probation
033 –– 2


Alternative languages 2

This document, how to contact us, further copies 5

Foreword - Metropolitan Police Service/London Probation/City of London Police 6

Metropolitan Police Service “Mission, Vision & Values” 8

London Probation “Pledge to Londoners” 8

City of London Police overarching aim and policing style 9

Introduction 10

Who are the MAPPA offenders? 10

How are they managed? 11

The Strategic Management Board of MAPPA 13

Other legislative measures 14

The focus on victims 15

Key achievements 15

How the MAPPA operate locally 18

What happens in practice 18

Case studies 19

Crimestoppers 23

Victim Support Services 24

Appendix A - Statistical Information 25

Appendix B - Commentary on Statistics 26

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To keep crime levels as low as Three locally set initiatives are not relevant to
Alternative languages this report.
possible we will focus on six
priorities during 2002/2003. Three
This is aarejoint
of these report
national of the Metropolitan Police Service
PrioritiesCity of London
and are set by thePolice
Home (CoLP) and London Probation
(LP) setting
Secretary. They out
: we manage the risks posed by sex
offenders and other dangerous offenders in London.
■ to help create safe communities by

It reducing
is the crime, anti-social behaviour and
third such report covering the period April 2003
disorder through effective partnership
March 2004
including andavailability
reducing has been and produced in accordance

with Section
use of 67(4) of the Criminal Justice & Courts
Class A drugs;
■ to increase the number of offences
Services Act 2000.
for which offenders, and particularly

addition offenders, are caught and
to describing details of the development of
brought to justice, in partnership with other
criminal justice agenciesfor London, it provides some statistical
■ Theseand
prioritiescontact points.
will be addressed specifically
2 by our partnership approach through our Crime
It and
is aDisorder
Strategy. report because London Probation

■ To reduce the fear the City
of crime in allof London,
sections of whilst the MPS and City
the community and in particular to increase
London Police are two distinct police services.
trust and confidence in policing
amongst minority ethnic communities.
A summary of the report is available in this sized type
■ The aim of the City of London Police Diversity
writingis “ To to either
provide ofhigh
an ethical the addresses on page 5.
policing service to the whole community of the
City of London, which treats all people without
prejudice and respects the right of individuals
to be different in their abilities, culture, values
and beliefs”This is directed at building trust and
confidence within minority groups. The Force
is driving forward its Diversity Agenda through
training and the implementation of Force-Wide
033 –– 2

Alternative languages

M A P PA A N N U A L R E P O R T 2 0 0 3 – 2 0 0 4

M A P PA A N N U A L R E P O R T 2 0 0 3 – 2 0 0 4

This Document
This is a joint report of the Metropolitan Police Service (MPS), City of London Police (CoLP) and London
Probation (LP) setting out how we manage the risks posed by sex offenders and other dangerous offenders
in London.
It is the third such report covering the period April 2003 to March 2004 and has been produced in
accordance with s. 67(4) of the Criminal Justice & Courts Services Act 2000. In addition to describing
details of the development of arrangements for London, it provides some statistical data and contact points.
It is a tripartite report because LP incorporates the City of London whilst the MPS and City of London Police
are two distinct police services.

How to contact us
We welcome feedback and if you have any comments to make about the report they should be sent
to either of the addresses below.
Marketing and Communications
London Probation Headquarters
71-73 Great Peter Street,

Tel: 020 7222 5656 5

Metropolitan Police Service
Operation Jigsaw
Territorial Policing Headquarters
Room 1.33
Victoria Embankment

Tel: 020 7321 7367

Further copies
Copies of the report can be obtained from either the MPS or LP internet site at
or The report can also be seen at your local main library or main
police station. You may also write to us requesting a copy at either of the addresses above.

Alternatively make a request by e-mail to:
M A P PA A N N U A L R E P O R T 2 0 0 3 – 2 0 0 4


We have pleasure in presenting this third report on behalf of the Metropolitan Police Service (MPS),
City of London Police (CoLP) and London Probation (LP). It sets out how we have developed our work
together protecting the public from sexual, violent and other dangerous offenders in London, within the
Multi-Agency Public Protection Arrangements (MAPPA).

In April 2003 a national Manual of Guidance was introduced and we have delivered this to all our staff, who
have improved practice in order to conform with these very helpful standardised procedures and terminology.

We recognise that the nature of much of the offending described in this report is of a particularly disturbing
nature, making public debate difficult and highly charged. Although these types of offences comprise but a
small proportion of all recorded crime, it is not surprising that it causes the greatest concern. We therefore
believe that it is vital that communities understand the size, nature and complexity of the problem and what
we do to manage risk. This report presents one opportunity to do that.

Our services are challenged by competing demands. For example, the police effort against the terrorist threat
to the capital city is demanding, resource intensive, rigorous and merits continuous vigilance. London Probation
faces unprecedented demand on its services and is restructuring in order to streamline resources and improve

At the same time, as will be seen from the statistics at the end of this report, we recognise that the numbers
embraced within the MAPPA portfolio are increasing and will continue to do so. This demand has to be
managed within our existing resources so, whilst we need to focus on the ‘critical few’, we must remain
vigilant to any changes or risk escalation amongst ‘lower risk’ offenders.

We are sadly reminded of the significance of this work by tragic events such as the murders in Soham and
other dreadful crimes committed against adults and children alike. We have to work closely together, pooling
our resources to identify and manage the most dangerous offenders. It is important to recognise this in
London, with such a large and diverse population, mirrored by the highest volume of offenders in the country.
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Over 2002-2003 the MPS have introduced an interim version of the ViSOR (Violent and Sex Offender Register),
database of registered sex offenders in London; our staff views on this system are very positive and favourable.
Over 2002-2003
More the be
about this can MPS have
found introduced
within an interim
this report. version
It will help of the
us to ViSOR
manage (Violent
and and Sex Offender
use intelligence Register),
about these
database in
offenders of aregistered sex offenders
more standardised andinefficient
London; ourThe
way. stafffullviews on this
national system
version will are very positive
be introduced and favourable.
during 2004-
2005. about this can be found within this report. It will help us to manage and use intelligence about these
offenders in a more standardised and efficient way. The full national version will be introduced during 2004-
We look forward to working more closely with Her Majesty’s Prison Service in MAPPA now that it is part of
the Responsible Authority. We have already arranged a number of events and groups to extend and formalise
We look
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to offenders during
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established by the
through different parts of the Criminal Justice System. We will also be doing some considerable work to
Criminal Justice Act 2003. Finally we look forward to selecting and appointing two lay advisors to our Strategic
develop and improve
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oversight andinreview
the ‘duty to operation
of the co-operate’
of established
by the
London.Criminal Justice Act 2003. Finally we look forward to selecting and appointing two lay advisors to
our Strategic Management Board, to provide an important, independent oversight and review of the
operation of MAPPA in London.
Public protection is a high priority for every agency involved with MAPPA. We are pleased with progress made
thus far and hope that this report will inform and reassure you that MAPPA in London are developing and
Public protection
working effectivelyistoa make
high priority
London fora every
safer agency
place forinvolved
all who with MAPPA.
live and workWe are pleased with progress
made thus far and hope that this report will inform and reassure you that MAPPA in London are developing
7 and working effectively to make London a safer place for all who live and work here. 7
Brian Moore John Powls James Hart QPM
Commander, Crime Chief Officer Commissioner
Territorial Policing
Brian Moore John Powls James Hart QPM
Metropolitan Police Service London Probation Area City of London Police
Commander, Crime Chief Officer Commissioner
Territorial Policing

Metropolitan Police Service London Probation City of London Police

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MPS Mission, Vision and Values

Making London safe for all the people we serve

Our Mission Our Values Our Vision

To make places safer To treat everyone fairly To make London the safest
major city in the world
To cut crime and the fear To be open and honest
of crime
To work in partnership
To uphold the law
To change to improve

London Probation

Our Pledge to Londoners

The protection of the public

The reduction of re-offending

The proper punishment of offenders

The rehabilitation of offenders

The proper care of victims

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City of London Police

Our Overarching Aim

“We will provide a high-quality police service in the City of London and work
with the community, other organisations and agencies, to promote a safe,
peaceful and crime-free environment.”

Co-operation, consultation and working in partnership are consistent themes of this aim, which is also directly
supported by the Force’s priorities: Counter Terrorism; Economic Crime; Public Order; and Community Policing.

Our overarching aim, and the individual priorities adopted by the Authority for policing the City, also supports
and complements the Corporation of London’s vision, which is:

“To continue to be the world’s leading international financial and business

centre, with high quality accessible and responsive services benefiting its
communities, its neighbours, London and the nation.”

Our Policing Style

Our Values As a Force We Will
• Be open, honest, sensitive and polite • Consult with each other and our stakeholders
to the public and our own staff and communicate our intention
• Acknowledge and value diversity • Empower and encourage staff to make decisions
• Encourage equality of opportunity • Work in partnership with Police Committee
and City communities
• Support participation and consultation
• Be transparent in the way we make decisions
• Encourage quality through continuous
and lasting improvements • Be consistent in our approach to policy
• Have pride in our service • Publicise our success and be honest
about failure
• Aim to be the best urban police force
• Recognise, praise and reward success
• Value the diversity of our staff and the
contribution different people make
• Focus policing priorities on community needs
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Sexual and violent offences are dreadful crimes that deeply affect the lives of victims and their families
and cause fear in local communities. Their impact can be profound and long lasting, leaving victims feeling
unsafe even in their own homes. The Government regards tackling sexual and violent crimes as one of its
highest priorities. Having set up the MAPPA in 2001 – which provided for the first time a firm statutory basis
for the work police and probation jointly undertake to protect the public from sexual and violent offenders –
it has in the last year done a great deal to strengthen the MAPPA and the wider public protection framework.

The Multi-Agency Public Protection Arrangements (the MAPPA) grew out of the closer working relationship
which developed between the police and probation (and latterly other agencies) in the late 1990s. Sections
67 & 68 of the Criminal Justice and Court Services Act (2000) first enacted these arrangements. Sections
325-327 of the Criminal Justice Act (2003) re-enacted and strengthened those provisions. Essentially, the
legislation requires the police, prison and probation services (acting jointly as the ‘Responsible Authority’)
in each of the 42 Areas of England and Wales:

i to establish arrangements for assessing and managing the risks posed

by sexual and violent offenders

ii to review and monitor the arrangements; and, as part of the reviewing

and monitoring arrangements

iii to prepare and publish an annual report on their operation.

Who are the MAPPA Offenders?

There are principally three categories of offender who fall within the MAPPA:

i registered sex offenders (RSOs), that is those sexual offenders required to register
under the terms of the Sex Offenders Act (1997) and its amendments

ii violent offenders and those sexual offenders who are not required to register; and

iii any other offender who, because of the offence(s) committed by them are
considered to pose a risk of serious harm to the public.
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How are they managed?

Guidance has been issued which covers the three levels at which offenders can be managed. With such
a large number of offenders falling to be managed under MAPPA, it is important that limited resources
and skills are used proportionate to the risk management need of the individual (see the statistics at
Appendix A of this report).

Level 1 risk management is the level used in cases in which the risks posed by the offender can be managed
by one agency without actively or significantly involving other agencies. Typically the lead agency will be police,
prison, probation or YOTs (Youth Offender Teams). Generally, offenders managed at Level 1 will be assessed as
presenting a low or medium risk – the largest proportion of all MAPPA offenders are managed at this Level.

Level 2 local inter-agency risk management is used where the active involvement of more than one agency
is required. The agencies involved are agreed locally and the agencies involved in managing any particular
case will be determined by the characteristics of that case. A permanent representation from core agencies
contributes significantly to robust risk management. Level 2 management usually requires a monthly meeting
to determine risk management plans for a number of offenders. These meetings are normally chaired by
a local senior police or probation representative.

Level 3 Multi-Agency Public Protection Panel meetings deal with offenders who present a high or very high 11
risk of causing serious harm and who present 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 demands
it creates or, if not high risk, the case is exceptional because of the likelihood of media interest and/
or public scrutiny. These cases are often referred to as the ‘critical few’ and most frequently relate to offenders
being released from prison or hospital.

The Criminal Justice Act 2003, which came into effect on 1st April 2004, has further strengthened the original
legislation. National development has concentrated on preparing to implement the MAPPA provisions as

The Prison Service has now become part of the Responsible Authority and will be expected to make an
active contribution to the assessment and management of the risk posed by an offender. This will enable the
exchange of valuable information about the offender’s behaviour within prison, including their response to any
treatment programmes. Prison staff often have valuable information which can help to prevent further harm
to victims or potential victims. For example, attempts made by offenders to contact victims by letter.
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Such activities can be closely monitored and this will help the police and probation services better manage
the offender on release. The restructure of the prison and probation services into an integrated National
Offender Management Service (NOMS) will further extend this ‘joined up’ approach.

The Act also introduces a “Duty to Co-operate” in respect of the following agencies:

Local Authority Social Services

Primary Care Trusts, Strategic Health Authorities and

other NHS Trusts

Jobcentres Plus


Local Housing Authorities/Registered Social Landlords

Local Education Authorities

Electronic Monitoring Providers

The legislation formalises existing good practice and helps to maximise collaborative work, in line with each
agency’s role and function. Agreements as to how this will work in practice will be drawn up locally
between each agency and the Responsible Authority, which will enhance multi-agency working and
12 build trust and mutual understanding.

The third part of the new legislation concerns the appointment of independent Lay Advisors to the Strategic
Management Board, which monitors and oversees local arrangements (see below). This has been
piloted and evaluated in a number of areas with very positive results, not least the vital contribution
made by members of the public who bring a range of experience. As Home Office Minister
Paul Goggins said: “Lay Advisors will play a vital role…We are committed to giving them not only
an insight into how this work is carried out but, more importantly, an opportunity to question what
is being done and why.”
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The Strategic Management Board of MAPPA

First established in July 2001, the role of the Board has been
to evaluate and audit MAPPA activities and resolve issues that
may be problematic between participating agencies.

The launch of the new national MAPPA Guidance Manual in April

2003 emphasized the importance of the Strategic Management
Board (SMB) in bringing greater rigour and scrutiny to the review
and monitoring of MAPPA work.

The new functions of the SMB can be summarised as follows:

• Monitoring and evaluating the operation of the MAPPA across London

• Establishing connections with other key public protection bodies,

such as the Area Child Protection Committees and the London Criminal Justice Boards
• Preparing and publishing the Annual Report and promoting the work of
the MAPPA in London

• Planning the longer-term development of the MAPPA in the light of regular

reviews and any legislative change

• Identifying and planning how to meet common training and developmental

needs of those working in the MAPPA.
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Further significant changes this year have seen the expansion of the Responsible Authority, comprising
the Police and Probation Services, to include the Prison Service. Training events are planned to consolidate
the working partnership between these agencies and improve practice in the management of high risk

The Board will have a primary role in monitoring the effectiveness of the MAPPA and the results of an
audit of the structure, processes and management of MAPPA undertaken by De Montfort University
will help its development.

The year ahead will see a significant change in the composition of the Board with the recruitment and
appointment of lay advisors. They will provide the Board with an important external dimension to its
work and strengthen its public accountability.

Other Legislative Measures

In addition to this work to develop the MAPPA, the Government has also begun to strengthen other statutory
provisions, the most significant of which are the Sexual Offences Act (2003) and the measures
to introduce new sentences for ‘dangerous’ offenders, which provide the potential for their detention until
they no longer pose a serious risk to the public.

14 The Sexual Offences Act overhauls many antiquated sexual offences and plugs loopholes in the law.
It strengthens the law on rape and on sex offences against children. It introduces new offences of ‘sexual
grooming’ and extends the protection from exploitation in prostitution or pornography to children up
to the age of 18. For the first time, it will be an offence to buy sexual services from a child below this
age, targeting those who abuse children in this way.

The Sexual Offences Act also extends the sex offenders register, which has proved a valuable
means by which the police can monitor convicted sex offenders within their area, and introduces
new civil orders to help prevent further offences from being committed.
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The Focus on Victims

In addition to this work to tackle offenders, greater emphasis has been placed on meeting the needs
of victims. Victims of sexual offending are identified as a priority group within the National Victims
and Witnesses Strategy which aims to improve support and protection for victims and witnesses by:

• reducing the adverse effects of crime on victims and witnesses,

and preventing secondary victimisation

• encouraging more victims and witnesses to come forward

• offering more options to victims and witnesses,

including attendance at court.

These initiatives will also help improve public confidence in the criminal justice system.

This work is part of the Domestic Violence, Crime and Victims Bill currently going through Parliament.
It will create a new independent Commissioner for Victims and Witnesses to be a champion for all
victims of crime and a new statutory Code of Practice which will consolidate existing procedures.

Key Achievements
Much of our activity in London has focused on preparing for the new legislation and this has included
further developing our relationship with the Prison Service.

The Strategic Management Board now includes representation from the Prison Service and has forged links
with other agencies included in the Duty to Co-operate provisions, for example Electronic Monitoring Providers.
Joint training events have paved the way for developing better ways of working together, for example
by ensuring that information from prisons is shared appropriately.
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We have held a number of successful multi-agency training events in London over the last 12 months,
for example between Police, Probation and Mental Health Services, which focused on how we can work
more effectively with offenders with mental health issues. A series of MAPPA training events has been delivered
to police and probation staff in London by the Lucy Faithfull Foundation (a child protection
charity). This has included an event focused on sexual offending via the internet, an area of growing

There has also been an expansion of the central MPS Operation Jigsaw whose role, in conjunction
with probation staff, is to develop and co-ordinate consistent practice across the London Boroughs.
A significant aspect of Operation Jigsaw’s role is to develop dedicated training for staff working in this area,
which includes contribution from various MAPPA agencies, for example, the Mental Health Services.

Hence, a training course for police practitioners in MAPPA and public protection has been designed
and will be delivered during 2004.

This also enables practitioners to keep up to date with developments and the important messages
from ground-breaking research, such as that of a recent Home Office and MPS study which has
demonstrated the links between homicide, domestic and sexual violence.

One of our notable achievements has been in the field of domestic violence.

London Probation received a mayoral award on account of the work done with perpetrators of
domestic violence through the Nationally Accredited Programme. This is unique in both holding
offenders to account for their behaviour, but also providing victim safety planning through Victim Safety
Workers. Close liaison with partner agencies has meant that information is shared as necessary
and that there is a timely response to any crisis.

Linked with domestic violence is the work in London with regards to Safeguarding Children and
responding to the issues identified by the Laming Report, in particular, the need for closer working
relationships between the different agencies. A multi-agency group in London is currently developing
a training package based on new pan-London procedures, which will provide comprehensive training
to staff across all agencies that come into contact with children. This will include clear guidance
about how to respond to any concern about a child.
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Advances in information technology are important in supporting public protection so that information
can be shared swiftly and efficiently. The last year has seen the pilot of a national police and probation
database for sexual and violent offenders, known as ViSOR (Violent and Sex Offender Register).
An interim version of the system has now been introduced to all the Borough Public Protection Units,
known in London as Jigsaw Teams. Wandsworth, a unit where police and probation work together in the
same premises, has been one of two sites to pilot the full ViSOR system, which will be rolled out nationally
to police within the next year, including the City of London Police. The Probation Service is in the process
of updating their technology, which will help to pave the way towards accessing ViSOR in due course.
Boroughs have reported benefits from this system in managing sexual offenders, for example, improving
systems to monitor offenders through home visits. It will also help in preparing for the full ViSOR

London has recently taken part in a national research project about local MAPPA being carried out by the
De Montfort University, Leicester. This follows up some earlier research, and will provide valuable information
about local and national practice. In London, we are currently in the process of evaluating the results and
have already been able to identify areas on which we need to focus, for example, some of our processes
in identifying MAPPA offenders. The survey also gives further support towards police and probation staff
co-locating and London is currently working with internal and external consultants to look at the benefits
and how this can best be achieved.

Diversity is important in our work with communities and offenders in London. We actively strive to work
with communities in a way which values the different contributions which can be made in managing offenders.
For example, in helping minority ethnic offenders to access services which are sensitive to their needs.
A conference held earlier this year drew together a wide range of cultural, religious and minority ethnic
organisations and a seminar run by the London Probation Victims’ Service was well received by this audience.

We are also continuing to develop a dialogue with communities in various ways, for example, through
innovative projects such as Stop It Now (NSPCC) and engagement with the media to publicise how we
work with offenders, for example, in a recent BBC programme, Policing the Paedophiles.

More importantly, our work in protecting victims has been given increased emphasis, and we have
significantly improved performance in reaching our target for timely contact with victims. Victim protection
is central to our work and the following section includes a number of examples of how effective MAPPA
can be in preventing further harm to victims and potential victims.
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How the MAPPA operate locally

MAPPA have been developed in each London Borough in order to assess and manage sexual, violent
and other dangerous offenders. Police have a public protection unit, known as a Jigsaw Team, in each
Borough and the City of London. There are 20 sets of probation teams covering the 32 Boroughs and
the City . Each Borough and the City Of London will also include the other agencies which have a duty
to co-operate, for example, Education, Social Services and Housing.

The MAPPA process helps agencies work together, sharing relevant information about offenders,
planning and putting into action strategies to protect the public. An important part of the work is to
help offenders reintegrate into the community so that they can be assisted to lead more law-abiding
lives. This is intended to reduce the number of victims of violent and sexual crime.

What happens in practice?

The organisation of MAPPA may vary across Boroughs but should always be responsive to the diversity
of the local community. The agencies identified as having a duty to co-operate share information
and develop risk management plans, based on the assessed risk, which may draw on a variety of
18 contributions. Agreement is reached about the level of risk management so that only those ‘critical few’
most dangerous offenders are referred to the MAPPP, which is convened when the need arises.

Other offenders requiring active multi-agency input are discussed at regular multi-agency meetings.
Some offenders are managed by agencies acting alone, after information sharing has been carried
out. The meetings work to an agenda drawn up in advance and are generally attended by staff from
the police and probation services, victims services, health, social services, young offender teams,
local authority housing, prisons, employment services and other agencies who might have involvement,
for example registered social landlords. Meetings are confidential and chaired by either police or
probation with the aim of maximising participation. A record of the meeting is kept which documents
any decisions made and who is responsible for any tasks agreed. A date is set to review each case
at an appropriate interval, unless circumstances demand an earlier meeting.
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Risk management plans are tailored to the individual circumstances and focus on the risks identified in each
case, and the steps needed to protect the victim. There is a balance between the need to impose conditions
and controls on the offender with the provision of treatment through programmes and services to reduce
further offending. The following case studies illustrate this approach.

Case Studies

In one Borough, an offender subject to life licence was alleged to have racially harassed
a neighbour. An emergency meeting was convened and it was agreed that the immediate
priority was to offer support and protection to the neighbour. Through the MAPPA, the
local housing department was able to rehouse the offender promptly to single storey
accommodation, thereby preventing any further incidents. The police are pursuing charges
in relation to the incident and probation supervision will aim to address this man’s
unacceptable attitudes and behaviour.

Another example of good work with the housing department concerns ‘Henry’who has a 19
conviction for rape and is required to register on the sex offenders register for life. He was
a resident at probation approved premises but when the hostel rules were explained to him,
he became abusive and threatening towards the staff. His licence was revoked and he was
returned to prison. He was released and registered an address at a privately run bed and
breakfast. His landlord received an anonymous telephone call stating that ‘Henry’ was a sex
offender and ‘Henry’ was evicted through the courts. He then moved to another hotel and
was evicted for violent behaviour. The police Jigsaw Team met with the Homeless Persons
Unit and it was agreed that ‘Henry’ should be housed in a unit staffed only by male workers.
It was agreed that he would not be offered housing without the police being informed and
he would not be offered housing in a mixed scheme. The assessments conducted by police
and housing have meant that ‘Henry’ has been placed in accommodation that ensures he
is monitored effectively, reducing the opportunity to commit further offences.
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‘Sammy’ was released from prison after committing offences of sexual assault.
He had tried to self-harm and mental health agencies had assessed him in the past as
having a personality disorder. He had not therefore been able to attend the Sex Offender
Treatment Programme in prison. Following consideration at a multi-agency meeting,
‘Sammy’ was referred to the Probation Service psychologists who assessed him and
provided individual work to improve his general functioning. It was hoped that with support,
he could be helped to access the Community Sex Offender Treatment Programme: this
would focus on changing his behaviour and attitudes and will contribute to reducing the
risk to the public.

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Forward planning by a Borough was able to stop an offender with a history of racist violent
offending from claiming another victim.

While in prison, a 20-year-old high-risk offender who is white had to be moved several
times for racially abusing and threatening staff and inmates.

A probation officer worked with him in prison on a Diversity Awareness Programme,

up until his release. Because of this work, it was possible to conduct a full risk assessment
based upon the information emerging during the programme.

As his release date approached, the case was referred to MAPPA. Prison staff attended
this Borough meeting. The panel thought it required special attention and a Level 3 MAPPP
meeting was called. A Level 3 meeting is the highest Level under MAPPA where more
senior staff become involved, ensuring that appropriate resources are released to manage
exceptional risk or notoriety. Such cases are generally referred to as the ‘critical few’.

This meeting set up an action plan for his release, which looked at the risk he posed
to his family and minority ethnic communities. As the meeting progressed, it became clear
that certain individuals had become ‘targets’ and what was necessary to protect them.

A comprehensive action plan was put in place, including conditions to be put on his 21
licence, such as exclusion zones. Because of his engagement with the diversity awareness
programme, he was allowed to live at a probation hostel.

Alcohol misuse was identified as one of the things that put him most at risk of reoffending.
This was addressed in the action plan. Two weeks after the offender was released into
the community, he returned to the hostel having consumed alcohol. He was offensive
and abusive to staff and tried to bring women into the hostel. Due to his lack of
co-operation with the hostel rules, he breached the terms of his licence and was returned
to prison.

The Borough MAPPA have identified key factors that could put public safety at risk
and acted swiftly when the potential for trouble arose.
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When further offending appears imminent, the MAPPA is able to mobilise resources quickly
and effectively.

‘Tony’, a high risk offender being transferred from outside London was escorted by police
to the approved premises where he was accommodated. The following day, staff at the
hostel found a knife in his room. Police surveillance tracked ‘Tony’to a pub where he was
seen drinking . Alcohol had been a factor in ‘Tony’s original offence, as was the use of
a knife to commit a serious assault.

Immediate enforcement action was taken involving collaboration between police, probation
and hostel staff. ‘Tony’ was returned to prison within a couple of hours of the knife being
found and before any further offence was committed.

Another example concerns Bob, a man on licence following a serious offence of domestic
violence. His ex partner, the victim of the offence, had moved away from London. She
made contact through the Victim Liaison Service to report that Bob had been contacting
her by text message, against a condition in his licence. The police interviewed Bob who
denied having made any contact. Police therefore met the victim who gave them her SIM
card. Checks on this proved that calls and messages had been made from Bob’s mobile
phone. His licence was immediately revoked and he was returned to prison in order
to protect the public.

Raymond, a sex offender who targets vulnerable male victims, had his licence revoked and
during the last 10 years he has spent only 56 days in the community. Prior to his release,
the MAPPA designed a very detailed release plan involving housing, mental health, alcohol
agencies and the Lucy Faithfull Foundation addressing his sexual offending. He is not subject
to licence but was offered voluntary contact with probation and is subject to police
monitoring as a registered sex offender. He is making good use of support from the mental
health agencies and is subject to regular review meetings. Careful monitoring indicates that
he is developing more appropriate community ties and there have been no reported causes
for concern.
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M A P PA A N N U A L R E P O R T 2 0 0 3 – 2 0 0 4

Victim Support Services

Victim Support is the national charity Survivors UK

for people affected by crime. It is an For male victims of sexual abuse.
independent organisation, offering a Tel: 0845 1221201
free and confidential service, whether Website:
or not a crime has been reported.
Trained staff and volunteers at local Women’s Aid International
branches offer information and support For victims of domestic violence.
to victims, witnesses, their families and
Tel: 0845 7023468

Victim Support also provides the Witness Service,

NSPCC Child Protection Helpline
based in every criminal cout in England & Wales,
For anyone concerned about a child at risk of abuse.
to offer assistance before, during and after a trial.
Tel: 0800 8005000
Further information for victims and details of local
services and other relevant organisations are
available as follows:
24 ChildLine
For children, about any problem, at any time.
Victim Support Service Helpline
Tel: 0800 1111
Tel: 0845 3030900 Website:
Rape and Sexual Abuse Centre RASASC For mental health issues.
Providing a London service for women and girls
Tel: 0845 7660163
who have been raped or sexually abused, no matter
when it happened.

Tel: 020 8683 3300 Southall Black Sisters

Website: Services for black, Asian and other
minority women.

Tel: 020 8571 9595

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Appendix A - Statistical Information

Category 1
(i) The number of Category 1 registered sex offenders (RSOs) in the community on 31 March 2004.
This represents 31 offenders per 100,000 population (London population 7,375,065
Census 2001). 2272
(ii) The number of RSOs who were either cautioned or convicted for breaches of the requirement,
between 1 April 2003 and 31 March 2004. 99
(iii) The number of Sex Offenders Orders applied for and imposed between 1 April 2003
and 31 March 2004
total applied for 12
total imposed 5
(iv) The number of Interim Sex Offender Orders applied for and imposed by the courts
between 1 April 2003 and 31 March 2004.
total applied for 6
total imposed 5
(v) The number of Restraining Orders issued by the courts between 1 April 2003 and 31 March 2004
for offenders within MAPPA in London 15
Category 2
(vi) The number of Category 2 violent and other sexual offenders considered under MAPPA during
the year 1 April 2003 and 31 March 2004 (as defined by section 68 (3), (4) and (5) of the Act) 1422
Category 3
(vii) The number of Category 3 ‘other offenders’ dealt with under MAPPA during the year 1 April 2003 and 31
March 2004 assessed by the Responsible Authority as posing a risk of serious harm to the public (but
who did not fall within either of the two categories, as defined by
section 67 (2) (b)) 400
(viii) For each of the three categories of offender covered by the MAPPA (“registered sex offenders”, “violent
and other sex offenders” and “other offenders”), the number of offenders that are or have been dealt with
by MAPPP (Level 3)
registered sex offenders 19
violent and other sex offenders 7
other offenders 4
(ix) Of the cases managed by the MAPPP (Level 3) during the reporting year the number of offenders:
(a) Returned to custody for breach of licence 4
(b) Returned to custody for breach of a Restraining Order or Sex Offender Order 0
(c) Charged with a serious sexual or violent offence 0

1 This figure does NOT include: offenders who have failed to register; those with a registration requirement but who have not yet registered
as they are currently in custody; nor those who have registered but are in custody for a further offence.
2 This figure does not include offenders in custody or who are registered as Category 1.
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Appendix B - Commentary on Statistics

Registered Sex Offenders (RSO)

The figure of 2272 RSO represents an increase of 9% (187 offenders) compared to the same period
last year. This is lower than the national average of 15%. There could be several reasons for this,
e.g. the sentencing rate in London being such that offenders spend longer in custody before returning
to the community; or representative of a higher breach rate in London, resulting in fewer offenders in
the community; or it could be a statistical anomaly linked to the disproportionately higher numbers of
offenders in London compared with the national average.

Number of RSO Cautioned etc.

This increase of 2 cases (2.1%) compared with last year’s figure is insignificant, but indicative of
continued enforcement activity where appropriate.

Violent and Other Sexual Offenders

This figure represents a significant decrease of 70% (3332 offenders) compared to the same period
26 last year. This is more than the anticipated national average decrease of 50%. This does not in itself
indicate that violent crime has decreased or that fewer offenders are being detected and sentenced
to 12 months imprisonment or more. However, whilst last year’s figure incorporated offenders in custody
AND new sentences, this year’s figure ONLY represents those relevant offenders in the community
who effectively amount to London Probation’s caseload for this category of offender.

Other Offenders
This reduction of 51 offenders (11.3%) compared with last year is probably due to the introduction
of a specific definition for this category of offender at the beginning of the year, leading us to review
and weed out this category. Clearly, new offenders are being identified and referred to MAPPA.
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Use of Orders
The apparent reduction in the number of Sex Offender Orders “granted” means rather that they have
not yet been granted and are still in process at the time of reporting. This is reflected by the number
of Interim Sex Offender Orders granted. Whilst there is a small reduction in the total number, these
Orders are reserved for the most serious and difficult offenders, and the larger number granted last
year remain in place as an effective risk management power.

The increase in Restraining Orders is encouraging, yet we feel that more use can be made of these
highly desirable and effective tools by sentencers. These Orders can now be granted in Magistrates’
Courts as well as the Crown Courts when imposing any sentence of imprisonment for a relevant
sexual offence. We have alerted our staff to the existence and significance of these powers and will
continue to promote their use.

MAPPP Offenders within MAPPA

This reduction in the number of offenders being dealt with at a higher level (Level 3) Multi-Agency
Public Protection Panel is due to the introduction of a clear definition of levels of risk management
and the type of risk management need which would trigger such a Level 3 response. Additionally,
as mentioned above, this year’s figure does not incorporate ‘in custody’ cases for the violent offender

Outcome Measures
The significant reduction in the number of offenders recalled to prison for breach of licence is partly
because of the reduction in numbers dealt with by Level 3 MAPPP. However, the proportional number
is still lower than last year and could be an indication of the effectiveness of the risk management
plans designed and delivered by the MAPPP agencies. Across the board, London Probation’s
enforcement activity is showing improvement.

The reduction in numbers of breaches of Sex Offender Order and serious reoffending (as defined)
by offenders dealt with at MAPPP is highly encouraging.
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