by Baroness Scotland QC, Minister of State for Criminal Justice and Offender Management

The work being undertaken to improve the safety of communities through the MultiAgency Public Protection Arrangements (MAPPA) is vitally important and a priority for government. The annual reports for 2004/5 provide evidence of that active engagement. Violence and sexual abuse are unacceptable wherever they occur, and it is evident that through MAPPA such offenders are identified and better managed than ever before. As the number of offenders within MAPPA continues to grow as expected, there is clear evidence that the Responsible Authority, that is the local police, probation and prison service, is addressing these additional demands by strengthening local partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where they breach their licence or order, and using the findings of research and inspection to strengthen national guidance and local practice. Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration, together with the scrutiny of policy and practice, must become the hallmark of these arrangements. Similarly MAPPA must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me one of the most exciting developments in this arena in the last 12 months has been the appointment of lay advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public these lay advisers represent a diverse, able and committed group of people who are now helping the statutory agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively. Without a growing sense of public knowledge and confidence about this work, much of the benefits of the public protection arrangements will be lost. I hope this annual report will be useful, informative and re-assuring to local communities. The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.


John Stafford – Chief Officer, Merseyside Probation Area Public Protection is the overriding priority for the National Probation Service, and inter-agency arrangements lie at the heart of Merseyside Probation Area’s commitment to making this region a safer place to live and work. The MAPPA annual report concentrates on the minority of offenders who pose a high risk to the community, and how we in the Probation, Police and Prison Services join forces with professionals from a wide range of other agencies to manage those offenders to rigorous and exacting standards. This joint approach, with a single focus, is now well established in Merseyside. Senior managers in all Criminal Justice agencies meet regularly to ensure field staff work together in the most collaborative and productive way. Primarily this is by sharing information to manage the critical few offenders who require particular attention, and by delivering intensive interventions through the various avenues of the Criminal Justice System.


Bernard Hogan-Howe – Chief Constable, Merseyside Police I want Merseyside Police to be the best force in the country. To achieve this aim, I insist on the highest standards of professional competence from all those who work for Merseyside Police: officers and police staff. However, in delivering this professional service, I also want those who work for the force to display a caring attitude towards those they serve. Professional competence without a caring approach will not do; neither will a caring approach without professional competence. With our partners in the Probation and Prison Services, we have achieved tangible results over the past year through targeting those offenders who present a real threat to our communities. I believe that we are capable of delivering more. Through improved partnership working, we will target repeated activity relating to victims, offenders and locations. Together we will build an area in which it is safe to live, visit and invest. The MAPPA arrangements present a great opportunity to deliver on these promises.


Ian Lockwood CBE – Area Manager, HM Prison Service North West The inclusion of HM Prison Service as part of the Responsible Authority for MAPPA has been an important one. The Prison Service has a long history of protecting the public by holding securely those individuals sentenced to custody by the Courts. The statutory involvement in MAPPA brought about by the Criminal Justice Act (2003) has provided a springboard for greater collaboration with colleagues in the Police, Probation and ‘duty to co-operate’ agencies. By preparing thorough risk assessments, managing robust sentence planning and working closely with MAPPA in the crucial period prior to an offender returning to the community, the Prison Service has been able to discharge its duty to protect the public from those individuals who present the most significant risk.


One of the important ways in which the Criminal Justice Act (2003) strengthened the MAPPA was to make the Prison Service part of the Responsible Authority with police and probation in each of the 42 Areas in England and Wales. The Prison Service has been given the enhanced role in recognition of the important part it plays in protecting the public by keeping offenders in custody, helping them to address the cause of their offending behaviour, and by undertaking other work to assist their successful resettlement. As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs) in the 42 Areas. The Prison estate is configured differently from Police/Probation areas in that its establishments are contained within only twelve geographical areas and two functional areas - the High Security estate and the Contracted Prisons. For this reason arrangements for Prison Service representatives on SMBs vary across the country, but each Prison Service Area Manager has entered into an agreement with the SMBs on how the Service will contribute both strategically and operationally to the MAPPA. The main focus of the Prison Service contribution is at operational level. A number of measures have been put into place across the prison estate to ensure that this will be effective, viz: ■ Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk. Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with police and probation colleagues. All relevant risk management information being provided to multi-agency meetings which help plan an offender's release. At least three months notification to police and probation of the expected release dates of those offenders who have been referred to the Multi-Agency Public Protection Panel (MAPPP), and at least six weeks notification of those being managed at Level 2 risk meetings. No changes to release dates or arrangements being made without prior consultation with police and probation.

Playing an effective role in the multi-agency risk management of MAPPA offenders requires good communication between criminal justice partners. The Prison Service has taken steps to ensure that there are dedicated points of contact for public protection at both Area level and in every prison establishment, and that these are published together with police and probation contacts to ensure better communication across the Responsible Authority. With the ever increasing MAPPA population, and the proportion of those received into prison likely to grow with the introduction of the new public protection sentences, the inclusion of the Prison Service as part of the Responsible Authority will continue to be vital in protecting the public.


All community/custodial sentences passed by the Courts are now involved in a nationally recognised risk assessment process called OASys (Offender Assessment System). This is a detailed and complex process that focuses on the potential risk any offender may cause to others. It then concentrates on the interventions that are required during a period of supervision which are strictly enforced. Both the Prison and Probation Services now use this single risk assessment system. In fact the two Services have now been brought together under a single structure called the National Offender Management Service (NOMS). This approach offers the consistency of one integrated system to manage an offender from the day the Court passes sentence, to the day the sentence/supervision period has been completed. Throughout the year senior managers in the relevant agencies and organisations have met as the Strategic Management Board for the Multi-Agency Public Protection Arrangements to ensure best practice is operating across the Merseyside Area. For example a single information sharing protocol has been agreed by the SMB, and is now in the process of being agreed by all the relevant agencies. In May 2004, colleagues in Merseyside took part in a North West Regional seminar entitled 'MAPPA and Mental Health'. This was pursued as there is now a 'duty to cooperate' expectation on health colleagues (along with other relevant agencies) to share information on patients who may pose a risk to others. Quote from Marian Bullivant, Deputy Director of Nursing, Mersey Care Health Trust: "The Mersey Care Trust has continued to work within, and be supported by, the MAPPA process. We have agreed to sign up to the information sharing protocol. In 2004/5 22 Mersey Care service users came under MAPPA, totalling 45 inter-agency meetings. The majority of patients were suffering from mental illness e.g. schizophrenia, or from a personality disorder - the main concern being the potential for violent behaviour". The MAPPA process in the Merseyside Area has very close links with the community psychiatric services and more specialist forensic psychiatric services, which are closely linked to the facilities at Ashworth Special Hospital in Maghull and the Secure Unit, Scott Clinic in Rainhill. Health colleagues also hold their own risk assessment meetings to assist with MAPPA cases. Excellent working relationships exist between health colleagues and those in the criminal justice agencies. In 2004/5 the courts and the criminal justice agencies dealt with thousands of cases. The critical few are managed via the MAPPA process and broken down into 3 levels.


Level 1 Where a single agency, e.g. the Probation Service, can safely manage an individual. Level 2 Where the combined forces of at least 2 agencies are required to manage an individual. Level 3 This is the highest level of risk, reserved for the 'critical few' who pose a particular risk to the public,requiring input from a range of agencies. Senior managers come together to allocate significant resources to manage each individual. In 2004/5 a total of 141 individuals were managed at either Level 2 or Level 3. Each case is reviewed regularly throughout the year, totalling over 500 meetings. Of that number only three were charged with a new serious offence. In addition, 31 were returned to custody for failing to co-operate to the required standard. In the same period Merseyside Police recorded 941 offenders on the sex offender register of which 25 were cautioned or charged with a failure to register within required timescales etc. The annual figure will increase year on year, as some offenders will remain on the register for the rest of their natural lives. Merseyside Police have specialist units concentrating on this work and, in addition, in January 2004 introduced a central Public Protection Unit to co-ordinate area activities. The authority for MAPPA activities was formalised (as a statutory duty) in the Criminal Justice and Court Services Act 2000. That same Act also brought victim issues into the centre of the criminal justice process, and for the first time gave statutory rights to victims of sexual or violent crime where the offender received a prison sentence of one year or more.

A Victim's Experience:
George is retired, and was assaulted while out doing some voluntary work during which he had his wallet stolen. He was pushed to the floor, and sustained an injury in the process. He was especially concerned for his grandson who was with him at the time. After being visited by a Probation Victim Liaison Officer, George said: "I did not know this service existed, but I am glad it does, it makes me feel that someone still believes that the victim matters and is not forgotten, when the offender has a network of people who are waiting to assist them. I felt isolated at the end of the trial and did not even know how to get out of the court room. I am glad that you have come to give me information that I feel I should have, to enable me to try to get on with my life, instead of wondering when the offender is coming out of prison and feeling no-one cares. I am also glad that I have a voice by way of being part of the release plan. I now feel better in myself and in a better position to cope with things".
All MAPPA work has the protection of the public and victims as its driving influence, and a new Victims’ Charter is due out in late 2005.


An Offender Case Study (Alan, aged 30)
Alan had a long, escalating record of violent crime - robbing victims to gain money to buy drugs, and spending between £50 and £100 per day on his drug habit. He had been in care and served a number of prison sentences. Even in prison he was difficult, not wanting to confront his offending. His family had disowned him, he had nowhere to live and fully expected to return to his life of crime on release from prison. All the risk assessments showed him to be a high risk to the public, and consequently he came to the attention of MAPPA. The relevant Criminal Justice representatives met to plan for his return to the community. All effort was focused on preventing Alan re-offending and minimising opportunities for him to do so. This included intensive and disruptive tactics. Alan’s prison release was subject to strict Licence conditions, ie. ■ ■ ■ ■ ■ To reside at a Probation Hostel, subject to curfew arrangements. To receive prescribed drug treatment. To undergo regular drug treatment. Not to engage in any employment, without the prior approval of his supervising officer. Not to contact the victim of his previous offence.

As Alan was regarded as a high risk, prolific offender, he came under the supervision of an inter-agency group who give intensive oversight to such offenders. The team is made up of police, probation, health and drug treatment colleagues - with access to other relevant support services such as accommodation providers. Alan had to report four to five times per week, and was tested regularly to see if he had returned to drug misuse. At first Alan was difficult and demanding, seeing himself as 'the victim' and had no appreciation of the misery caused by his previous offending behaviour. Some drug tests showed Alan had returned to drug misuse so extra oversight was put into place. After receiving a formal warning Alan started to co-operate with the agencies concerned. He responded well to his prescribed medication and soon his drug tests were negative. Alan's life started to stabilise for the first time in years. He moved out of the Probation Hostel to semi-supervised independent living, where he has settled well. He started to co-operate with probation and police colleagues who work together from the same location. He slowly recognised he had a final opportunity to sort his life out and any further slip-ups would mean an immediate return to custody. Alan's educational standard improved, and he started to look for work. Quite unexpectedly his family renewed contact with him, and hopes are high for a more stable future. Alan has a long prison licence yet to complete and after a rocky start, meaningful and sustained improvement has been seen. So far so good - but criminal justice representatives remain alert and vigilant. They know Alan well and will quickly pick up any sign of deterioration in his behaviour.


Category 1 – MAPPA Offenders: Registered Sex Offenders (RSOs)
i. The number of registered sex offenders in Merseyside on 31 March 2005:

No. of Offenders



The number of registered sex offenders per 100,000 head of population:



The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1 April 2004 and 31 March 2005:



The number of a) b) c) Sexual Offences Prevention Orders (SOPOs) applied for: Interim Sexual Offences Prevention Orders granted: Full Sexual Offences Prevention Orders imposed: 13 12 12

between 1 April 2004 and 31 March 2005


The number of a) b) c) Notification Orders applied for: Interim Notification Orders granted: Full Notification Orders imposed: 1 1 1

between 1 April 2004 and 31 March 2005


The number of Foreign Travel Orders a) b) Applied for: Imposed: 0 0

between 1 April 2004 and 31 March 2005

Category 2 – MAPPA Offenders: Violent Offenders and Other Sexual Offenders (V&OS)
vi. The number of Violent and Other Sexual Offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justic Act (2003)) living in the Merseyside area between 1 April 2004 and 31 March 2005: 684


Category 3 – MAPPA Offenders: Other Offenders (OthO)
vii. The number of Other Offenders (as defined by Section 325 (2) (b) of the Criminal Justice Act (2003)) living in the Merseyside area between 1 April 2004 and 31 March 2005: 4

Category 4 – Offenders managed through Level 3 (MAPPP) and Level 2 (Local Inter-Agency Management)
viii. The number of MAPPA offenders in each of the three categories who have been managed through MAPPP (Level 3) and through Local Inter-Agency Management (Level 2) between 1 April 2004 and 31 March 2005 a) b) c) Registered Sex Offenders Violent and Other Offenders Other Offenders Level 3 Level 2

30 31 4

30 32 14


The number of MAPPA offenders between 1 April 2004 and 31 March 2005, managed at Levels 2 or 3 that were a) b) c) Returned to custody for breach of Licence Returned to custody for beach of a restraining order or sexual offences prevention order Charged with a serious sexual or violent offence

Level 3

Level 2

11 0 1

20 0 2

A serious sexual or violent offence is defined as one of the following: Murder Attempted murder Arson (where there is an attempt 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.


Terry Eastham Assistant Chief Officer National Probation Service Merseyside Merseyside Police Sefton Social Services Knowsley Housing Trust Wirral Education Authority

Mick Giannasi Charlie Barker Kath Fielding Howard Cooper

Assistant Chief Constable Director of Social Services District Housing Manager Director of Education & Cultural Services Area Manager

Alan Critchley

Youth Offending Team (St Helens) Mersey Forensic Psychiatry Services SAMM (Merseyside) North West Prison Service Area Office Merseyside Police South Knowsley Community Mental Health Team Liverpool Magistrates Court Merseyside Police Mersey Care Trust Victim Support & Witness

Dr Stephen Noblett

Head of Services

Gaynor Bell Mark Livingstone

Chairperson Risk Management Co-Ordinator Chief Superintendent Clinical Management

Graham Wright Marjorie Webster

Geoff Fryer Brian McNeill Marian Bullivant Carol Chalmers

Crown Prosecution Service Detective Superintendent Deputy Director of Nursing Chief Executive Services Merseyside

NB: The Strategic Management Board will expand in 2005/06 to include two Lay members; recruitment is currently underway. This is an important development which has worked well in pilot areas around the country. The Lay members will bring a helpful public view to MAPPA work in Merseyside.


This annual report has attempted to explain current arrangements that are in place to bring all the relevant agencies/organisations together to jointly manage difficult, high risk offenders. These offenders are ones that tend to hit the headlines and can quickly come to seem the norm, when in fact this is far from the case. This report includes all the latest statistical information, and gives actual examples of high risk offenders who have been safely managed within the community. We hope this report has reassured you, whilst recognising there will always be concerns and worries, especially by individuals who feel particularly vulnerable. The SMB members would welcome any comments or queries concerning the content of this report. Should you wish to make contact please do so via:Terry Eastham - SMB - Co-Chair National Probation Service (Merseyside Area HQ) 4th Floor, South Wing, Burlington House Crosby Road North Waterloo Liverpool L22 0PJ Tel: 0151-920 9201 Ext 261


Printed by Lancashire County Council Printing Services, County Hall, Pitt Street, Preston, Lancashire PR1 8XJ Tel: 01772-531000 Fax: 01772-263645 12