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These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice.

I want,
first of all, to underline the Government’s continued commitment to these arrangements. Protecting the
public from dangerous offenders is a core aim for the new Department. Just as the effectiveness of MAPPA
locally depends on the quality of working relationships, we will work with the Home Office, the Police, and
others, to develop the best possible framework within which the MAPPA can operate.

On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets
out a programme of actions which include developing the use of drug treatment for sex offenders and piloting
the use of compulsory polygraph testing as a risk management tool, enhancements to the regime operating at
Approved Premises, and also a range of actions impacting directly upon the way the MAPPA work. I want to
highlight two of them here.

Firstly, research tells us that the arrangements are already used successfully to disclose information about
dangerous offenders but we think this can be improved upon. MAPPA agencies will be required to consider
disclosure in every case. We will pilot a scheme where parents will be able to register a child-protection
interest in a named individual with whom they have a personal relationship and who has regular unsupervised
access to their child. If that person has convictions for child sex offences and the child is at risk, there will be
a presumption that the offences will be disclosed to the parent.

Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which
show that specific roles and approaches are required to ensure it is managed effectively. We are committed to
strengthening MAPPA arrangements and ensuring that robust performance management is in place. To
achieve this, we intend to introduce new national standards, which will ensure a consistent approach across
areas and we will be making available £1.2million to support areas in implementing the standards.

We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We
know that there is always room for improvement. I commend this annual report to you as an indication of the
commitment, skills and achievements of the professionals, and lay advisers, in managing and monitoring this
essential, often difficult area of business.

Maria Eagle MP
Parliamentary Under Secretary of State
Norfolk MAPPA is now in its 7th year and continues to provide an effective framework for key
agencies to manage the risks to the public posed by violent and sexual offenders. The Norfolk MAPPA provides Mental Health Services with an invaluable structure in which to risk
manage and support complex mentally disordered offenders in order to meet their individual needs
The Norfolk Arrangements and team continue to develop and be refined and are now regarded both with multi-agency input, to promote public protection and individual well-being.
regionally and nationally as a good example of multi-agency working.
Dr Ann Stanley
Public Protection issues continue to pose considerable challenges to the Police and partner agencies Consultant Forensic Psychiatrist (Lead Clinician) - Norvic Clinic
at both a local and national level.

We are confident that the current Norfolk processes and structures provide an efficient and effective
service to manage the considerable challenges in the future, and thereby provide the best protection
to the public of Norfolk. Norfolk Constabulary and Key Partner Agencies have the very difficult task of managing the risk
posed by violent and sexual offenders within the community.

Ian McPherson The Norfolk MAPPA Arrangements are now well established and are a very good example of effective
multi-agency working in a very challenging area of work.
Chief Constable, Norfolk Constabulary
The MAPPA team are co-located with the Police Family Protection Unit in Norwich. This has brought
about close and effective working relationships and an efficient and effective sharing of information.
The work undertaken to manage the risks posed by offenders, who fall within the parameters of
MAPPA, has been further strengthened this year with the introduction of Offender Management Units The FPU has assisted Norfolk Probation Service with its implementation of the “ViSOR system”.
in Prisons. These provide for better continuity of case management and improved sharing of
information. During the past year the Norfolk MAPPA have successfully managed a large number of very
demanding, sensitive and difficult cases.

James Shanley The MAPPA are the most effective and efficient means of managing these cases and reducing the
Prison Governor, HMP Norwich risk of harm to the public.

The protection of the people of Norfolk from offenders who have committed serious sexual or violent Detective Superintendent Wright
offences is the top priority for all the agencies who contribute to the work of the MAPPA. Family Protection Unit, Norfolk Constabulary

It is vital to apprehend, convict, sentence, assess and manage such offenders effectively and this can
only be achieved by all the relevant agencies working together in ways which enable information to
be shared, risk to be assessed and plans for managing such offenders to be developed and
implemented. Norfolk MAPPA continues to work hard to ensure that these aims are achieved as the Young people do not constitute large members within MAPPA, but when they do, the supportive joint
case studies in this report demonstrate. approach is critical to manage their risk and protect the public. Norfolk MAPPA deserves its good
The public often believe that the rights of offenders take precedence over those of victims. The
MAPPA shows that this is not the case. Victims and potential victims are at the heart of MAPPA’s Sue Massey
work and the better we get at assessing the risks posed by offenders to potential victims, the better Head of Youth Justice Service, Norfolk Youth Offending Team
we can manage those risks. As a result of the success of MAPPA in Norfolk, local people can be
confident that all reasonable steps have been taken to protect them against the most serious
offenders in our community and that the chance of becoming a victim of such crimes is reduced.

Martin Graham
Chief Officer, Norfolk Probation Area
MAPPA is an abbreviation for Multi-Agency Public Protection Arrangements. This provides a legal MAPPA deals with the management of sexual or violent offenders who have been convicted by a
framework and guidance for agencies involved in managing people who have committed sexual or Court of a relevant offence or whose behaviour gives cause for significant concern as it poses a risk
violent offences, who are living in the community or returning to the community from Prison or of harm to the public.
Hospital. MAPPA began operating in 2001 and this is the 6th Annual report. Previous reports are
A robust risk assessment is undertaken utilising a system comprising 3 levels to ensure those
available by logging on to
offenders who pose the highest risk receive the greatest scrutiny and oversight.
Within the MAPPA, agencies concerned with the management of sexual or violent offenders work Level 1 This is for offenders who do not require active multi-agency management and are dealt with
closely together, sharing the information they have about the offender so that the best possible risk by one agency; this could be Police, Probation, Youth Offending Teams, Mental Health units etc.
assessment can be made and the best possible risk management plan put in place. The risk
management plan determines what needs to be done to minimise the risk an offender presents to Level 2 This is where there is a need for the active involvement of more than one agency, but the risk
members of the general public and specific victims. Every offender has an individually tailored risk or the complexity of the case is not so great that it requires management at Level 3.
management plan that seeks to reduce their risk of harm. Examples of this could include some or Level 3 These meetings are reserved for those offenders who pose the highest risk of harm to the
all of the following; public (they are often referred to as the “critical few”) or where the complexity of the case or
notoriety of the offender requires the highest level of risk management.
• Suitable housing for the offender
• Placing controls on behaviour through strict licence conditions or orders CASE 2
• Intensive supervision by a Probation Offender Manager or specialist Police Officer
• Completion of programmes that address the causes of offending A man in his 40’s who had previously been convicted of sexual offences against children, targeted
• Appropriate mental health care, if required and “groomed” a vulnerable lone parent with two children by offering money and treats to her and
• Support networks involving voluntary agencies the children. He attempted to take on a fatherly role with the 7-year-old boy and became very
• Electronic tagging close to him. A member of the public who had concerns about this man reported her concerns to
• Contingency plan being put in place and rapid response arrangements made with local Police the Police. A Level 2 meeting was called and information from the Probation Service, the Police
• Where necessary, covert Police surveillance and Children’s Services was shared. A risk management plan was put in place which included
• Rapid recall to Prison when licence conditions are breached. informing the offender that he had been subject to MAPPA management. A Police Officer and a
Social Worker undertook to visit the offender to advise him of this. On arrival at the man’s home it
was discovered that he had the boy at the house and had been sharing his bed with the boy,
CASE 1 although no sexual abuse had taken place. The mother was interviewed by Children’s Services
and due to her having a degree of learning difficulty, it was assessed that she would not be able to
A man in his 30’s had a history of domestic violence, racist assaults and violence to others. He had protect her children from this man’s influence. The children were taken into Care, but the man
become obsessed with his ex partner, whom he had beaten on numerous occasions in the past. persisted in trying to contact them. He was arrested and received a custodial sentence for
He had convictions for assault, Breaches of Restraining Orders and breaches of Harassment Unlawful Detention of a Child and Breach of a Restraining Order.
Orders and persisted in trying to gain access to his ex-partner with the intention of causing her,
her family and her new partner very serious harm. He had threatened to kill several members of
the family and these threats were taken seriously by the Police. He was due to be released from
Prison for Breach of a Restraining Order and concerns were raised that he would, once again, Have you been a victim of sexual or violent crime?
attempt to harm his ex-partner. A Level 3 MAPPA was held and a robust risk management plan Many victims of sexual or violent crimes suffer long lasting effects as a result of
was put in place, including residence requirements and very restrictive curfew times at a Probation the crimes that have been committed against them.
hostel several hundred miles away from the victim and her family. Rigorous arrangements were
made on how he would be transported from Prison to the hostel, and a contingency plan was
made to ensure the ex-partner and her family’s safety, should he fail to comply with transport The following agencies in Norfolk are here to help.
arrangements. Following release from Prison the offender failed to comply with the risk
management plan and the contingency plan was put into action. The potential victims were
removed to a place of safety until the offender was apprehended some 36 hours later. An
National Victim Support line: 0845 303 0900
emergency recall was requested from the Home Office, and when he appeared before the Court he Norfolk Victim Support line: 01603 767383
received a significant custodial sentence for Breach of a Harassment Order, Breach of a
Restraining Order, Breach of a Suspended Sentence and Breach of his licence conditions. Rape Crisis Centre: 01603 667687
This year we are pleased to report that we have reduced our case load significantly; at the time of Lay Advisors
writing there are less than 50 people subject to MAPPA Level 2 and Level 3 in Norfolk. Through the
introduction of Level 1 meetings by the Probation Service many offenders who may have remained at Norfolk MAPPA has two Lay advisors who sit on the Strategic Management Board and participate in
Level 2 are now managed at Level 1. The roll out of a significant number of multi-agency training the Quality Assurance Group, where the performance of MAPPA is evaluated, and the Policies and
sessions has also increased knowledge and understanding of MAPPA and led to more appropriate Procedures Group, which looks at how government policies and research can be integrated in to the
referrals being made. MAPPA process. The main function of the Lay Advisors is to represent the public by overseeing the
For the first time there was a National Conference for Lay Advisors to MAPPA. This was held in MAPPA.
Leeds in February 2007 and focused on the roles and responsibilities of the Lay Advisors. We also
had a Regional Conference, which was held in Cambridge in March 2007 and was well attended by
John, Lay Advisor, writes:
representatives from Probation, Police, Prison Service, Health professionals and victim agencies.
My enthusiasm for MAPPA continues to be strong due to our achievements in public protection,
The Probation Service is likely to have ViSOR (a database for Violent and Sexual Offenders) in place
with none of our Level 2 and Level 3 offenders committing further serious offences, although some
later in the year. The Police already have this database, so the inclusion of ViSOR within the
Probation Service and the Prison will give a joined up approach to managing violent and sexual have been recalled to Prison for failing to observe the conditions for their release.
We are also pleased to welcome to our Strategic Management Board representatives from Mental My involvement in MAPPA is growing. I co-ordinated a presentation by Lay Advisors for the
Health, Health Services and Serco, (the organisation which provides electronic monitoring for Eastern Region Conference. I introduced the idea of a shorter and simpler annual report to one of
offenders). This will strengthen MAPPA and ensure that all agencies have an opportunity to our committees and this was adopted and I hope you like what you are reading now. I contributed
contribute to the management of offenders in the community. to proposals for educating the public through a presentation at a public event, although this is now
MAPPA has also been involved in ensuring integrated information exchange protocols were put in on-hold until a better opportunity arises. I have made one or two minor suggestions to
place for the special Domestic Violence Courts and a new system for victim assistance, Domestic committees that have been adopted and I am looking forward to a greater involvement during the
Violence Protection Conferences, called MARAC (Multi-Agency Risk Assessment Conference).
coming year.
A woman with 3 children was given a 3-year custodial sentence for an offence of Grievous Bodily
Pat, Lay Advisor, writes:
Harm. Whilst she was in Prison, her former partner looked after their children. During the time
the children were with their father they told him that their mother had been violent to them, which Yet another Annual Report, my third since I became a Lay Advisor over 21/2 years ago; like last
she later admitted. Children’s Services arranged for their father to have custody of the children. year I have worked hard to consolidate and further develop my understanding and increase my
On her release from Prison the woman kidnapped the children and absconded with them. As she knowledge base around many complexities that are involved in the delivery of MAPPA in Norfolk.
was on licence to the Probation Service she was recalled to Prison and later given a further
custodial sentence. Three months prior to her release Children’s Services called a MAPPA, as they
were concerned that she may attempt to abduct the children again. Information about the Membership of the Quality Assurance Group continues to offer me an opportunity to work with the
woman’s circumstances was shared between Police, Probation and Children’s Services and a risk professionals to evaluate and measure Norfolk MAPPA’s performance and effectiveness. Indeed
management plan was formulated which included the following: licence conditions, residence at a our work in this group has been acknowledged nationally and consequently we have been asked to
Probation hostel in another county with strict curfew conditions, an exclusion zone preventing her
participate in a nationwide survey of a Document Set by the Home Office.
from entering Norwich, to prevent her from having unsupervised access to her children, no
unsupervised contact with the children, along with a contingency plan should she fail to report to
the hostel at the appropriate time. Communication is one of my own personal interests and for MAPPA this can be extremely sensitive
and difficult. Earlier this year I was asked to speak on the subject at a Regional MAPPA
Children’s Services arranged for the woman to have supervised contact with her children on a
Conference in York. I have also been asked to develop a draft Communications Strategy for
monthly basis, supervised by a social worker. The Probation Service worked with the woman by
focusing on her offending behaviour and the impact this had for the children, her ex-partner and Norfolk MAPPA. So, watch this space, onwards and upwards, and I look forward to another busy
for herself. Due to the co-operative nature of all the agencies involved MAPPA ensured that the and informative year as a Lay Member for Norfolk MAPPA.
children were not harmed and could have a stable home.
WHO OVERSEAS MAPPA? for the reporting period 1st April 2006 - 31st March 2007

Strategic Management Board NORFOLK

There are representatives of all the agencies involved in the “Duty to Co-operate”, Police, Probation,
Youth Offending Team, Health Services, Job Centre Plus, Social Landlords, Serco on the Strategic Category 1 MAPPA
The number of Registered sex offenders living in the community on 31st March 2007 = 546
Management Board. The Strategic Management Board monitors and evaluates the work of MAPPA Registered Sex Offenders by Basic Command Unit: Eastern = 184, Western = 128, Central = 234
and ensures we are complying with Government directives, for instance, in relation to victims, or the
The number of Registered Sex Offenders per 100k of population for Norfolk: 68 (a decrease of 16.18%)
Freedom of Information Act, confidentiality agreements etc.
Sex offenders with a registration requirement who were cautioned or convicted for breaching the requirement
between 1/4/06 and 31/3/07 = 12

CASE 4 The number of Sexual Offences Prevention Orders applied for 1/4/06 to 31/3/07 = 24
The number of interim Sexual Offences Prevention Orders Granted = 0
A young man with longstanding mental health problems travelled to London and exposed himself The number of Sexual Offences Prevention Orders imposed 1/4/06 to 31/3/07 = 24

to a woman. The Police apprehended him and it quickly became evident that his mental health The number of Notification Orders applied for 1/4/06 to 31/3/07 = 0
The number of Interim Notification Orders granted 1/4/06 to 31/3/07 = 0
had deteriorated; he was admitted to a hospital in the London area under Section 3 of the Mental The number of Full Notification Orders granted 1/4/06 to 31/3/07 = 0
Health Act. His key worker in Norwich advised MAPPA and a Level 2 meeting was held, which was
The number of Foreign Travel Orders applied for 1/4/06 to 31/3/07 = 2
attended by Police, Mental Health Services and Children’s Services (as his sister had children and The number of Foreign Travel Orders granted 1/4/06 to 31/3/07 = 2
there were some concerns he might abuse them) and the Probation Service. A risk management
Category 2 MAPPA offenders: Violent and Non Registered Sex Offenders
plan was put together to ensure that all parties were aware when he was transferred back to Thee number of violent and non registered sex offenders (as defined by Section 327 (3), (4) and (5) of the
Criminal Justice Act 2003) living in Norfolk between 1/4/06 and 31/3/07 = 189
Norfolk. The hospital staff were provided with a code name by Police in case he absconded from
Category 3 MAPPA offenders: Other offenders
the hospital. Once informed of this, the Police could activate the trigger plan for apprehending The number of “other offenders” (as defined by Section 325 (b) of the Criminal Justice Act 2003) living in
Norfolk between 1/4/06 and 31/3/07 = 26
him. Children’s Services gave his sister some advice on safeguarding her children. The Probation
Offenders managed through Level 2 and Level 3 MAPPAs 1/4/06 to 31/3/07
Service were fully informed of the situation in the event that they would be required to write a
Cat 1 (RSO’s) Cat 2 (violent) Cat 3 (other)
report for the Court regarding the Indecent Exposure offence. Level 2 40 53 26
Level 3 4 1 0

Number of offenders managed at Levels 3 or 2 between 1/4/06 and 31/3/07, whilst managed at that level,

a) Returned to custody for a Breach of licence

b) Returned to custody for a Breach of a Sexual Prevention Order
c) Charged with a serious sexual or violent offence

Level 2 10 1 0
Level 3 5 0 0

Breckland District Council HMP Norwich Northgate Hospital Stonham Housing Trust
Elizabeth House Knox Road Norfolk and Waveney Mental Health 23 West Parade
Walpole Loke Norwich Partnership Trust Norwich NR2 3DN
Dereham NR1 4LU Northgate Street Tel: 01953 602456
Norfolk NR19 1EE Tel: 01603 708600 Great Yarmouth
Tel: 01362 656322 Norfolk NR30 1BU Victim Support
Julian Housing Tel: 01493 330054 1a Silver Road
Broadland District Council 1a Oak Street Norwich
Thorpe Lodge, 1 Yarmouth Lodge Norwich Norvic Clinic Norfolk NR3 4TX
Thorpe St. Andrew, Norwich NR7 0DU Norfolk NR3 3AE Norfolk & Waveney Mental Health Tel: 01603 767383
Tel: 01603 431133 Tel: 01603 767718 Partnership Trust
St. Andrews Business Park Norfolk & Waveney
Children’s Services / Adult Services / Learning Disability Team Thorpe St. Andrew Mental Health Partnership Trust
Education Services Norfolk County Council Norwich NR17 0HT Fermoy Unit
Norfolk County Council Norfolk Social Services Tel: 01603 439614 Queen Elizabeth Hospital
County Hall Wymondham Health Centre Gayton Road
Martineau Lane 18 Bridewell Street Norwich Magistrates Court King’s Lynn PE30 4ET
Norwich Wymondham Whitefriars Tel: 01553 613613
Norfolk NR1 2S Norfolk NR18 0AR Norwich
Tel: 01603 222222 Tel: 01953 604437 Tel: 01603 632421 Wherry Housing Association
6 Central Avenue
Community Mental Health Team Norfolk Constabulary Norwich Crown Court St. Andrews Business Park
Norfolk & Waveney Mental Health OCC Tel: 01603 728200 Thorpe St. Andrew
Partnership Trust Jubilee House Norwich
North House, Goodwins Road Falconers Chase St. Martin’s Housing Trust Norfolk NR7 0HR
King’s Lynn PE30 5PD Wymondham 35 Bishopgate Tel: 01603 703500
Tel: 01553 815142 Norfolk NR18 0WW Norwich
Tel: 01953 424242 Norfolk NR1 4AA Youth Offending Team
Hellesdon Hospital Tel: 01603 667706 45 Netherwood Green
Norfolk and Waveney Norfolk Probation Area Norwich NR1 2JF
Mental Health Partnership Trust 4th Floor, St. James Yarn Mill St. Matthew Housing Tel: 01603 223617
Drayton High Road Whitefriars, Norwich 4 The Old Church
Norwich NR6 5BE Tel: 01603 220100 St Matthew’s Road
Tel: 01603 421421 Norwich NR1 1SP
Tel: 01603 442010

Public Protection Unit
Crime Command
Norfolk Constabulary
Falconers Chase
NR18 0WW

Tel: 01603 276320

Fax: 01603 276343