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By Chief Officer John Stafford

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

Chief Officer Chief Constable

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.

2. The Operation of MAPPA
This annual report is part of an ongoing process to Throughout 2003/04 local agencies have been active in
engage with Merseyside residents, in advising them assessing and managing some high risk offenders.
about a very particular area of crime managed under
MAPPA (Multi-Agency Public Protection Levels of seriousness have been introduced to assist
Arrangements). the process i.e.:-

Previous annual reports have advised on the history of Level One

MAPPA, which - in short - brings together all the When a single agency e.g. the Probation Service, can
relevant agencies/organisations to share information safely manage the individual.
on the minority of offenders who cause the most
concern i.e. sexual or violent offenders. Level Two
When the combined forces of at least two agencies are
Such individuals are usually well known to the required to manage the individual.
authorities, but until the mid to late 1990s working
together in a 'joined up way' was patchy. Agencies Level Three
tended to work in isolation, guarding their own This is the highest level of risk, reserved for the 'critical
information, with offenders often managed in isolated few' who pose a particular risk to the public, which
pockets of time. This could mean one agency closing a requires input from a range of agencies. Senior
file, while another opened a new one. managers come together to allocate significant
resources to manage an individual.
To-day there is a very different approach, with
agencies realising that working together offers the best In 2003/04 a total of 67 individuals were subject to a
form of public protection. Consequently all effort and Level 3 Multi-Agency Public Protection Panel
expertise is now harnessed in a single, co-ordinated (MAPPP). Of that number only two were charged with
direction. a new/serious offence.

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.

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

Case Study (2)

Case Study (1) AA, aged 20 years of age has been in trouble with
BB has committed various sexual offences against the law all his life. He is now serving a long prison
children both inside and outside his family. sentence for violent muggings on trains. He has a
history of psychological problems, made worse by
While in prison, on his last sentence, the relevant drink and drug abuse.
agencies regarded him as a very high risk offender,
who was not motivated in confronting his offending During his current prison sentence he has completed
behaviour. Consequently a strict control/surveillance intensive offending behaviour programmes and (for
package was put in place during his parole licence, the first time in his life), acquired some educational
which includes: qualifications.

■ residence at an approved probation hostel, with He has been made to face up to the traumatic effects
24 hour staff cover and CCTV in operation. of his offending on his victims. AA will soon be
released on licence - to complete his prison
■ a requirement to sign in at the hostel, be on site at sentence under supervision in the community.
certain times of the day and abide by a 12 hour
curfew, 7.00pm to 7.00am. He will resettle in an area away from Merseyside and
take up a full time college course. While AA has
■ interviews with probation and police officers on a made good use of his time in custody, all his hopes
weekly basis, and the registering of his details with and promises still have to be tasted out in the
specialist police officers who manage all the sex community.
offenders within the local area.
Consequently a Multi-Agency Public Protection
■ a ban on his visiting certain locations in Panel meeting will be called to ensure all
Merseyside. release/supervision arrangements are in place to
monitor his progress.
■ a ban on his having any contact with children
through any employment/activities or Any failure to co-operate while on licence, or if there
hobbies/pastimes. is any evidence to show he drops out of his college
course, would result in an immediate recall to prison.
■ his being subject to covert police surveillance.
Recall can be activated within the hour, 24 hours a
■ the monitoring by Social Services of any day, 7 days a week.
attempted contacts with his own family.

■ regular meetings with the agencies involved to

share information and monitor progress. A level three MAPPP meeting is the practical/
operational method of working to:
To date, BB has not been charged with any new
offence, nor behaved in a way that has caused a) share all available information;
serious concern.
b) assess the level of risk, to whom, and in
what circumstances and with what
potential implications;

c) to agree specific areas of action to be

taken by agency representatives to
manage and minimise the perceived risk.

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

In addition to senior agency managers coming service, and therefore comprises Social Workers and
together at MAPPP meetings, Merseyside has also health staff. I attend most meetings for Knowsley, in order
formed a Strategic Management Board (SMB) made that as many actions required can be agreed
up of relevant senior agency/organisational immediately, and resources committed where
representatives. The Police, Prison and Probation appropriate. Additional attendance will be routinely the
Services now hold the overall statutory responsibility relevant team manager practitioners, medical staff if
for such work - this trio is known as the 'Responsible appropriate, and criminal justice liaison practitioners.
Locally, there is a very good working relationship
However, the full SMB membership works to ensure between Mental Health services and the Probation
the best possible inter-agency working arrangements Service, and a speedy response to requests for strategy
are in place. The Merseyside SMB has made meetings and MAPPPs themselves.
significant progress since it came into being in early
2002. The SMB membership is listed at the end of The nature of the work is thus that there are some
this report, but the following comments are service users who present with very high risk in
contributions from individual SMB members:- conjunction with their mental health problems, often in
addition to offenders’ behaviour. The MAPPP system has
helped us considerably, to jointly manage very complex
Gaynor Bell situations to the benefit of the service user, and the wider
Support after Murder & Manslaughter (SAMM) safety issues to both staff and the general public."

"The Strategic Management Board is a huge step in Marian Bullivant

progress, agencies sharing information is vital. Deputy Director of Adult Mental Health at University
Hospital Aintree
My objective is to represent victims and I feel it is
important that they are always fully informed of their "Mersey Care NHS Trust is the mental health
rights. provider in Liverpool, Sefton and Kirkby. As with all
mental health Trusts we have service users who also
I have been pleasantly educated as to what MAPPA have contact with the Criminal Justice System.
does and feel it is a huge step forward for victim's Mersey Care has a team of practitioners employed to
peace of mind. Unfortunately being Chair of SAMM work at the interface between these services, the
and being involved with hundreds of victims, I can say Criminal Justice Liaison Team. This team has over
that the victims do not know MAPPP exists. If more the years become involved with many service users
victims were informed they would feel a lot safer. who have been through the MAPPA process.
There are still gaps to be filled on victim's rights, Recently, a senior manager of Mersey Care has been
mainly keeping them fully informed, and educating given a place on the SMB. This has proved to be
them on what MAPPA can and cannot do. It is also extremely helpful to the Trust, as it has enabled them
important to inform them very early on about their to make a contribution to the development of the local
rights to submit Impact Statements". policy.

Members of the SMB have also contributed to the

Dr Stephen Noblett development of a Trust policy for high risk individuals
Consultant Forensic Psychiatrist who fall outside the MAPPA process, but who need a
similar multi-agency approach. We are also being
“The role of Clinical Director within the Mersey Forensic supported by the SMB in developing information-
Psychiatry Service involves the assessment and sharing protocols".
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
Strategic Management Board (continued)
Mark Livingstone
Carol Chalmers North West Prison Service Public Protection Manager
Chief Exec. Victim Support & Witness Services Merseyside
"Her Majesty's Prison Service contributes to the
"I very much welcome the recent changes in legislation protection of the public, by keeping in custody those
which provides greater sensitivity towards victims and offenders committed by the courts and working to reduce
witness issues by the Criminal Justice agencies. Previous the risk they pose. It does this by:
to these changes, both victims and witnesses have been
made to feel marginalised, under-represented, ignored and a) Identifying and risk assessing those individuals who
even patronised. present a risk to the public.

Research has shown that a collaborative approach in b) Designing and implementing sentence plans, which
addressing the issues surrounding serious offenders is are designed to reduce the risk individuals pose before
essential to prevent re-offending occurring. It has also they are released.
highlighted that public protection is dependant upon
thorough co-ordination by all the key agencies. c) Sharing information with other agencies during
custody and immediately prior to release.
At Victim Support & Witness Services Merseyside, we
believe that if agencies are given the opportunity to share While in custody, offenders are able to access a range of
information about particular offenders, this will assist the interventions aimed at addressing offending behaviour,
'Responsible Authorities' to work together more effectively. including sex offender treatment programmes, cognitive
skills programmes and substance misuse work, as well
I look forward to taking part in this important multi-agency as a wide range of resettlement activities related to
partnership arrangement, and believe that it will continue to accommodation, employment and education.
assist in building the trust and confidence of not only Charlie Barker
victims and witnesses, but also the general public overall". Social Services
Since Director
April 2004, the Prison Service has joined the Police
and Probation Services on Merseyside as part of the
"I amResponsible
currently the Social Services
Authority Director for
- those agencies withSefton,
a statutory
and duty
represent my colleague
for protection of theDirectors
public". across
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
Alan Critchley SMB matters".
Youth Offending Team Head Manager
Merseyside - like all county areas in England & Wales
"During the last twelve months, as Head of the Youth is obliged to have an SMB in place to oversee MAPPA
Offending Services I have been re-focussing the work work. It is essential that the public have both
of the Service upon victim involvement, and developing knowledge of, and confidence in, such arrangements.
the use of restorative justice. This has been informed
by my work with the SMB, and has helped me more To increase public involvement, all SMBs are to be
clearly understand the issues which exist with regard to extended to include 2 Lay Advisors - (following
individual victims of crime and the wider community. successful pilots in other parts of the country).
Merseyside will be recruiting its Lay members during
The need to ensure the transfer of relevant information the summer period of 2004.
concerning the risk to young people as they pass into
6 the adult Criminal Justice arena, has also begun to be
5. Statistical Information No. of Offenders

i. The number of registered sex offenders on 31 March 2004 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 39
convicted for breaches of the requirement, between 1 April 2003 and 31 March 2004

iii. The number of Sex Offenders Orders between 1 April 2003 and 31 March 2004
a) applied for 19
b) imposed 19

iv. The number of interim Sex Offender Orders between 1 April 2003 and 31 March 2004
a) applied for 9
b) imposed 9

v. The number of violent and other sexual offenders considered under MAPPA during the year 431
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)

vi. The number of "other offenders" dealt with under MAPPA during the year 1 April 2003 and 31 14
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])

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

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) 30
b) Violent and Other Sex Offender (see section (v) above 24
c) Other Offender (see section (vi) above) 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 6
b) returned to custody for breach of a Restraining Order or Sex Offender Order 1
c) charged with a serious sexual or violent offence 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.

6. Strategic Management Board (SMB) Membership

Terry Eastham Assistant Chief Officer National Probation Service, Merseyside

Mick Giannasi Assistant Chief Constable Merseyside Police

Charlie Barker Director of Social Services Sefton Social Services

Kath Fielding District Housing Manager Knowsley Housing Trust

Howard Cooper Director of Education & Wirral Education Authority

Cultural Services

Alan Critchley Area Manager Youth Offending Team, St Helens

Dr Stephen Noblett Head of Services Mersey Forensic Psychiatry Services

Gaynor Bell Chairperson Support After Murder & Manslaughter (SAMM)


Mark Livingstone Risk Manager North West Prison Service Area

Co-Ordinator Office

Graham Wright Chief Superintendent Merseyside Police

Marjorie Webster Clinical Management South Knowsley Community

Mental Health Team

Geoff Fryer Crown Prosecution Service Liverpool Magistrates Court

Brian McNeill Detective Chief Inspector Merseyside Police

Marian Bullivant Deputy Director of Nursing Mersey Care Trust

Carol Chalmers Chief Executive Victim Support & Witness Services Merseyside

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,
L22 0PJ

Tel: 0151-920 9201

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