Foreword

By Chief Officer John Stafford Merseyside Probation Area and Chief Constable Norman Bettison Merseyside Police

Chief Officer John Stafford Merseyside Probation Area

Chief Constable Norman Bettison Merseyside Police

As the Chief Officers of the Merseyside Police and the National Probation Service on Merseyside, it gives us pleasure to introduce the 2003/04 Annual Report for Multi-Agency Public Protection Arrangements (MAPPA). This has been another demanding year for all the relevant agencies working together to protect the public in our County area. Through regular information sharing, significant progress has been made in identifying the critical few offenders who pose particular risks to the public. This has left offenders in no doubt about their unacceptable behaviour, that they need to rehabilitate to make a positive contribution to community life and that, where necessary, they will be supervised to exacting standards with breach action being taken if required. As part of these arrangements, we also aim to improve the services we offer to victims and witnesses both during the court process, and after sentence has been passed. In 2004/05 the Police and the National Probation Service are joined by the Prison Service, and as the lead agencies will continue to work with many other partners - some of whom are represented in this document. We hope you find this report informative, and that it gives you greater confidence in the work we carry out on your behalf. We are all strongly committed to making Merseyside a safe place to live, work and visit.

John Stafford
Chief Officer

Norman Bettison
Chief Constable

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1. Putting Crime into Context
Crime is an activity that causes enormous concern to us all. The press and media actively report certain elements of crime - be it factual or dramatised. There are many crime/police programmes coming through our television screens every single day of the week. Some crime is reported in an exaggerated or sensationalist way - all of which can heighten people's anxieties, and significantly increase the 'fear of crime'. The latter can often bear very little relation to the actual facts. An irrational response to crime can often be more powerful, and drown out the facts and statistics seen in the cold light day. Fear and anxiety can feed and reinforce an out-of-proportion reaction towards offenders and offending behaviour, resulting in calls for tougher and tougher retribution and punishment. Partly as a consequence, this country currently has a record prison population of over 75,000 (and rising) - the highest of any comparable European country, yet the UK crime rate is no worse than most countries, and is in fact less than many. In Merseyside, over recent years, there has been a marked and sustained reduction in many forms of crime e.g. violence and house burglaries. This matters little of course, if you become a victim of crime. This can range from annoying incidents of youths causing a disturbance, having your car damaged etc - through to the more serious end of being a victim of a serious assault. The police have a very wide range of offences reported to them - covering various levels of seriousness. That total volume of crime has to be managed by all the relevant agencies to ensure an appropriate response is made. This means all cases have to be assessed in terms of the risk posed, before the most appropriate response can be determined. Serious crime, mainly offences against the person, causes both victims and the agencies the most concern, even though it makes up a very small part of all crime. This annual report (our 3rd) concentrates on the inter-agency arrangements that operate in Merseyside, to tackle serious crime, and to ensure that the public is protected in the best possible manner, whilst recognising that there can be no cast iron guarantee as far as human behaviour is concerned. We strive to provide the people of Merseyside with the most effective service possible. But this is a dynamic process, with policies and procedures being constantly revised and updated to reflect best practice. Occasionally the agencies will get things wrong, and not achieve the very high standards that the people of Merseyside have a right to expect. On such occasions, the agencies need to apologise, explain failures and learn from mistakes. The public must have confidence in the inter-agency work carried out on their behalf - getting it right most of the time may not be enough for some. The public can be a hard task master, but their support for the work carried out by the Criminal Justice agencies, and other relevant bodies, is absolutely critical for a healthy and effective Criminal Justice System.

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2. The Operation of MAPPA
This annual report is part of an ongoing process to engage with Merseyside residents, in advising them about a very particular area of crime managed under MAPPA (Multi-Agency Public Protection Arrangements). Previous annual reports have advised on the history of MAPPA, which - in short - brings together all the relevant agencies/organisations to share information on the minority of offenders who cause the most concern i.e. sexual or violent offenders. Such individuals are usually well known to the authorities, but until the mid to late 1990s working together in a 'joined up way' was patchy. Agencies tended to work in isolation, guarding their own information, with offenders often managed in isolated pockets of time. This could mean one agency closing a file, while another opened a new one. To-day there is a very different approach, with agencies realising that working together offers the best form of public protection. Consequently all effort and expertise is now harnessed in a single, co-ordinated direction. The modern Criminal Justice agenda is driven by some important basic principles i.e.: ■ ■ ■ ■ Public protection comes first. Agencies will share information. Agencies manage difficult/high risk offenders in a corporate way. The needs of victims - both in terms of recovery from an offence, through to being satisfied with an efficient court/sentencing process - is central to MAPPA work. Criminal behaviour is challenged with offenders, who are given every opportunity to sort out their lives, to prevent a return to criminal behaviour. Court sentences/prison licences are strictly enforced, with the full weight of the law brought to bear on any offender who is unwilling to fulfil his/her commitments and responsibilities. Throughout 2003/04 local agencies have been active in assessing and managing some high risk offenders. Levels of seriousness have been introduced to assist the process i.e.:Level One When a single agency e.g. the Probation Service, can safely manage the individual. Level Two When the combined forces of at least two agencies are required to manage the individual. Level Three This is the highest level of risk, reserved for the 'critical few' who pose a particular risk to the public, which requires input from a range of agencies. Senior managers come together to allocate significant resources to manage an individual. In 2003/04 a total of 67 individuals were subject to a Level 3 Multi-Agency Public Protection Panel (MAPPP). Of that number only two were charged with a new/serious offence.

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3. Case Studies
The following are examples of real MAPPP cases that have been subject to Level Three arrangements.

Case Study (1)
BB has committed various sexual offences against children both inside and outside his family. While in prison, on his last sentence, the relevant agencies regarded him as a very high risk offender, who was not motivated in confronting his offending behaviour. Consequently a strict control/surveillance package was put in place during his parole licence, which includes: ■ residence at an approved probation hostel, with 24 hour staff cover and CCTV in operation. ■ a requirement to sign in at the hostel, be on site at certain times of the day and abide by a 12 hour curfew, 7.00pm to 7.00am. ■ interviews with probation and police officers on a weekly basis, and the registering of his details with specialist police officers who manage all the sex offenders within the local area. ■ a ban on his visiting certain locations in Merseyside. ■ a ban on his having any contact with children through any employment/activities or hobbies/pastimes. ■ his being subject to covert police surveillance. ■ the monitoring by Social Services of any attempted contacts with his own family. ■ regular meetings with the agencies involved to share information and monitor progress. To date, BB has not been charged with any new offence, nor behaved in a way that has caused serious concern.

Case Study (2)
AA, aged 20 years of age has been in trouble with the law all his life. He is now serving a long prison sentence for violent muggings on trains. He has a history of psychological problems, made worse by drink and drug abuse. During his current prison sentence he has completed intensive offending behaviour programmes and (for the first time in his life), acquired some educational qualifications. He has been made to face up to the traumatic effects of his offending on his victims. AA will soon be released on licence - to complete his prison sentence under supervision in the community. He will resettle in an area away from Merseyside and take up a full time college course. While AA has made good use of his time in custody, all his hopes and promises still have to be tasted out in the community. Consequently a Multi-Agency Public Protection Panel meeting will be called to ensure all release/supervision arrangements are in place to monitor his progress. Any failure to co-operate while on licence, or if there is any evidence to show he drops out of his college course, would result in an immediate recall to prison. Recall can be activated within the hour, 24 hours a day, 7 days a week.

A level three MAPPP meeting is the practical/ operational method of working to: a) b) share all available information; assess the level of risk, to whom, and in what circumstances and with what potential implications; to agree specific areas of action to be taken by agency representatives to manage and minimise the perceived risk.

c)

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4. Strategic Management Board
Marjorie Webster Clinical Management - NHS Trust "The Five Boroughs Partnership NHS Trust has participated in 10 MAPPP meetings. The Community Mental Health provides an integrated service, and therefore comprises Social Workers and health staff. I attend most meetings for Knowsley, in order that as many actions required can be agreed immediately, and resources committed where appropriate. Additional attendance will be routinely the relevant team manager practitioners, medical staff if appropriate, and criminal justice liaison practitioners. Locally, there is a very good working relationship between Mental Health services and the Probation Service, and a speedy response to requests for strategy meetings and MAPPPs themselves. The nature of the work is thus that there are some service users who present with very high risk in conjunction with their mental health problems, often in addition to offenders’ behaviour. The MAPPP system has helped us considerably, to jointly manage very complex situations to the benefit of the service user, and the wider safety issues to both staff and the general public." Marian Bullivant Deputy Director of Adult Mental Health at University Hospital Aintree "Mersey Care NHS Trust is the mental health provider in Liverpool, Sefton and Kirkby. As with all mental health Trusts we have service users who also have contact with the Criminal Justice System. Mersey Care has a team of practitioners employed to work at the interface between these services, the Criminal Justice Liaison Team. This team has over the years become involved with many service users who have been through the MAPPA process. Recently, a senior manager of Mersey Care has been given a place on the SMB. This has proved to be extremely helpful to the Trust, as it has enabled them to make a contribution to the development of the local policy. Members of the SMB have also contributed to the development of a Trust policy for high risk individuals who fall outside the MAPPA process, but who need a similar multi-agency approach. We are also being supported by the SMB in developing informationsharing protocols".

In addition to senior agency managers coming together at MAPPP meetings, Merseyside has also formed a Strategic Management Board (SMB) made up of relevant senior agency/organisational representatives. The Police, Prison and Probation Services now hold the overall statutory responsibility for such work - this trio is known as the 'Responsible Authority'. However, the full SMB membership works to ensure the best possible inter-agency working arrangements are in place. The Merseyside SMB has made significant progress since it came into being in early 2002. The SMB membership is listed at the end of this report, but the following comments are contributions from individual SMB members:Gaynor Bell Support after Murder & Manslaughter (SAMM) "The Strategic Management Board is a huge step in progress, agencies sharing information is vital. My objective is to represent victims and I feel it is important that they are always fully informed of their rights. I have been pleasantly educated as to what MAPPA does and feel it is a huge step forward for victim's peace of mind. Unfortunately being Chair of SAMM and being involved with hundreds of victims, I can say that the victims do not know MAPPP exists. If more victims were informed they would feel a lot safer. There are still gaps to be filled on victim's rights, mainly keeping them fully informed, and educating them on what MAPPA can and cannot do. It is also important to inform them very early on about their rights to submit Impact Statements". Dr Stephen Noblett Consultant Forensic Psychiatrist “The role of Clinical Director within the Mersey Forensic Psychiatry Service involves the assessment and management of patients with mental disorder and their treatment, both within medium secure settings but also within the community. From a clinical point of view I have had regular involvement with Multi-Agency Public Protection Panels in an attempt to clarify risk issues, which relate to mental disorder and provide advice on future management".

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Strategic Management Board (continued)
Carol Chalmers Chief Exec. Victim Support & Witness Services Merseyside "I very much welcome the recent changes in legislation which provides greater sensitivity towards victims and witness issues by the Criminal Justice agencies. Previous to these changes, both victims and witnesses have been made to feel marginalised, under-represented, ignored and even patronised. Research has shown that a collaborative approach in addressing the issues surrounding serious offenders is essential to prevent re-offending occurring. It has also highlighted that public protection is dependant upon thorough co-ordination by all the key agencies. At Victim Support & Witness Services Merseyside, we believe that if agencies are given the opportunity to share information about particular offenders, this will assist the 'Responsible Authorities' to work together more effectively. I look forward to taking part in this important multi-agency partnership arrangement, and believe that it will continue to assist in building the trust and confidence of not only victims and witnesses, but also the general public overall". Mark Livingstone North West Prison Service Public Protection Manager

"Her Majesty's Prison Service contributes to the protection of the public, by keeping in custody those offenders committed by the courts and working to reduce the risk they pose. It does this by: a) Identifying and risk assessing those individuals who present a risk to the public. b) Designing and implementing sentence plans, which are designed to reduce the risk individuals pose before they are released. c) Sharing information with other agencies during custody and immediately prior to release.

While in custody, offenders are able to access a range of interventions aimed at addressing offending behaviour, including sex offender treatment programmes, cognitive skills programmes and substance misuse work, as well as a wide range of resettlement activities related to accommodation, employment and education. Charlie Barker Social Services2004, the Prison Service has joined the Police Since April Director and Probation Services on Merseyside as part of the "I am currently the Social Servicesagencies for Sefton, Responsible Authority - those Director with a statutory and duty for protection of theDirectors across represent my colleague public". Merseyside on the SMB. This is a good example of joined up working and planning with regard to some very challenging issues facing communities. Having the SMB builds on the good working relationships existing in the Merseyside area". Kath Fielding Housing Trust Manager "As a member of the SMB I bring knowledge of the full range of housing issues relating to SMB matters. This knowledge covers:• Housing allocation policies. • Suitability of accommodation not only in type, but also location. • Issues of demography. • Concerns raised by communities. I am also able to be a conduit for best practice in the housing profession. I am fully committed to partnership working, and believe that joint agency working is vital in SMB matters". Merseyside - like all county areas in England & Wales is obliged to have an SMB in place to oversee MAPPA work. It is essential that the public have both knowledge of, and confidence in, such arrangements. To increase public involvement, all SMBs are to be extended to include 2 Lay Advisors - (following successful pilots in other parts of the country). Merseyside will be recruiting its Lay members during the summer period of 2004.

Alan Critchley Youth Offending Team Head Manager "During the last twelve months, as Head of the Youth Offending Services I have been re-focussing the work of the Service upon victim involvement, and developing the use of restorative justice. This has been informed by my work with the SMB, and has helped me more clearly understand the issues which exist with regard to individual victims of crime and the wider community. The need to ensure the transfer of relevant information concerning the risk to young people as they pass into the adult Criminal Justice arena, has also begun to be addressed".

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5. Statistical Information
i. The number of registered sex offenders on 31 March 2004

No. of Offenders
791

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

56

ii. The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1 April 2003 and 31 March 2004

39

iii. The number of Sex Offenders Orders between 1 April 2003 and 31 March 2004 a) applied for b) imposed

19 19

iv. The number of interim Sex Offender Orders between 1 April 2003 and 31 March 2004 a) applied for b) imposed

9 9

v. The number of 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 Criminal Justice and Court Services Act (2000)

431

vi. The number of "other offenders" dealt with under MAPPA during the year 1 April 2003 and 31 March 2004 as being assessed by the Responsible Authority as posing a risk of serious harm to the public (but who did not fall within either of the other two categories, as defined by s.67 [2b])

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vii. The number of Restraining Orders imposed by the courts on any MAPPA offenders between 1 April 2003 and 31 March 2004

1

viii. The number of offenders managed by MAPPP (Level 3) between 1 April 2003 and 31 March 2004 who fall into the following categories: a) Registered Sex Offender (see section (i) above) b) Violent and Other Sex Offender (see section (v) above c) Other Offender (see section (vi) above)

30 24 14

ix. The number of cases managed by MAPPP between 1 April 2003 and 31 March 2004 that were a) returned to custody for breach of Licence b) returned to custody for breach of a Restraining Order or Sex Offender Order c) charged with a serious sexual or violent offence

6 1 2

While more detailed information can be sought by any member of the public, readers may wish to note that the number of offenders who have to register with the police (under the Sex Offender Act 1997) will go up each year, as a court sentence of over 30 months imprisonment requires registration for life. At year ending 31st March 2004 there were 791 such offenders currently registered with the police, in Merseyside.

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6. Strategic Management Board (SMB) Membership
Terry Eastham Mick Giannasi Charlie Barker Kath Fielding Howard Cooper Alan Critchley Dr Stephen Noblett Gaynor Bell Mark Livingstone Graham Wright Marjorie Webster Geoff Fryer Brian McNeill Marian Bullivant Carol Chalmers Assistant Chief Officer Assistant Chief Constable Director of Social Services District Housing Manager Director of Education & Cultural Services Area Manager Head of Services Chairperson Risk Manager Chief Superintendent Clinical Management Crown Prosecution Service Detective Chief Inspector Deputy Director of Nursing Chief Executive National Probation Service, Merseyside Merseyside Police Sefton Social Services Knowsley Housing Trust Wirral Education Authority Youth Offending Team, St Helens Mersey Forensic Psychiatry Services Support After Murder & Manslaughter (SAMM) Merseyside North West Prison Service Area Co-Ordinator Office Merseyside Police South Knowsley Community Mental Health Team Liverpool Magistrates Court Merseyside Police Mersey Care Trust Victim Support & Witness Services Merseyside

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7. Conclusion
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. It also gives direct comments from various SMB members to the people of Merseyside. 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

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