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. Maria Eagle MP Parliamentary Under Secretary of State

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.

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.

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 case studies in this report demonstrate. 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 work and the better we get at assessing the risks posed by offenders to potential victims, the better 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.

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 in Prisons. These provide for better continuity of case management and improved sharing of information. The protection of the people of Norfolk from offenders who have committed serious sexual or violent offences is the top priority for all the agencies who contribute to the work of the MAPPA.

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 Arrangements and team continue to develop and be refined and are now regarded both regionally and nationally as a good example of multi-agency working.

Public Protection issues continue to pose considerable challenges to the Police and partner agencies 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.


Ian McPherson Chief Constable, Norfolk Constabulary

Martin Graham Chief Officer, Norfolk Probation Area

James Shanley Prison Governor, HMP Norwich

During the past year the Norfolk MAPPA have successfully managed a large number of very demanding, sensitive and difficult cases.

The MAPPA are the most effective and efficient means of managing these cases and reducing the risk of harm to the public.

Young people do not constitute large members within MAPPA, but when they do, the supportive joint approach is critical to manage their risk and protect the public. Norfolk MAPPA deserves its good reputation.

Norfolk Constabulary and Key Partner Agencies have the very difficult task of managing the risk posed by violent and sexual offenders within the community. The FPU has assisted Norfolk Probation Service with its implementation of the “ViSOR system”.

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 with multi-agency input, to promote public protection and individual well-being.

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. 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.

Dr Ann Stanley Consultant Forensic Psychiatrist (Lead Clinician) - Norvic Clinic Detective Superintendent Wright Family Protection Unit, Norfolk Constabulary

Sue Massey Head of Youth Justice Service, Norfolk Youth Offending Team

MAPPA is an abbreviation for Multi-Agency Public Protection Arrangements. This provides a legal framework and guidance for agencies involved in managing people who have committed sexual or violent offences, who are living in the community or returning to the community from Prison or Hospital. MAPPA began operating in 2001 and this is the 6th Annual report. Previous reports are available by logging on to

Within the MAPPA, agencies concerned with the management of sexual or violent offenders work closely together, sharing the information they have about the offender so that the best possible risk 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 members of the general public and specific victims. Every offender has an individually tailored risk management plan that seeks to reduce their risk of harm. Examples of this could include some or all of the following;

• • • • • • • • • •

A man in his 30’s had a history of domestic violence, racist assaults and violence to others. He had become obsessed with his ex partner, whom he had beaten on numerous occasions in the past. He had convictions for assault, Breaches of Restraining Orders and breaches of Harassment 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, attempt to harm his ex-partner. A Level 3 MAPPA was held and a robust risk management plan was put in place, including residence requirements and very restrictive curfew times at a Probation 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 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 emergency recall was requested from the Home Office, and when he appeared before the Court he 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.

Suitable housing for the offender Placing controls on behaviour through strict licence conditions or orders Intensive supervision by a Probation Offender Manager or specialist Police Officer Completion of programmes that address the causes of offending Appropriate mental health care, if required Support networks involving voluntary agencies Electronic tagging Contingency plan being put in place and rapid response arrangements made with local Police Where necessary, covert Police surveillance Rapid recall to Prison when licence conditions are breached.

MAPPA deals with the management of sexual or violent offenders who have been convicted by a Court of a relevant offence or whose behaviour gives cause for significant concern as it poses a risk of harm to the public. A robust risk assessment is undertaken utilising a system comprising 3 levels to ensure those offenders who pose the highest risk receive the greatest scrutiny and oversight. Level 3 These meetings are reserved for those offenders who pose the highest risk of harm to the 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.

Level 1 This is for offenders who do not require active multi-agency management and are dealt with by one agency; this could be Police, Probation, Youth Offending Teams, Mental Health units etc.

Level 2 This is where there is a need for the active involvement of more than one agency, but the risk or the complexity of the case is not so great that it requires management at Level 3.


A man in his 40’s who had previously been convicted of sexual offences against children, targeted and “groomed” a vulnerable lone parent with two children by offering money and treats to her and the children. He attempted to take on a fatherly role with the 7-year-old boy and became very close to him. A member of the public who had concerns about this man reported her concerns to the Police. A Level 2 meeting was called and information from the Probation Service, the Police and Children’s Services was shared. A risk management plan was put in place which included 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, 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 protect her children from this man’s influence. The children were taken into Care, but the man persisted in trying to contact them. He was arrested and received a custodial sentence for Unlawful Detention of a Child and Breach of a Restraining Order.

The following agencies in Norfolk are here to help.

Have you been a victim of sexual or violent crime?

Many victims of sexual or violent crimes suffer long lasting effects as a result of the crimes that have been committed against them.

National Victim Support line: 0845 303 0900 Norfolk Victim Support line: 01603 767383 Rape Crisis Centre: 01603 667687


This year we are pleased to report that we have reduced our case load significantly; at the time of 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 Level 2 are now managed at Level 1. The roll out of a significant number of multi-agency training sessions has also increased knowledge and understanding of MAPPA and led to more appropriate referrals being made. For the first time there was a National Conference for Lay Advisors to MAPPA. This was held in 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 representatives from Probation, Police, Prison Service, Health professionals and victim agencies. We are also pleased to welcome to our Strategic Management Board representatives from Mental Health, Health Services and Serco, (the organisation which provides electronic monitoring for offenders). This will strengthen MAPPA and ensure that all agencies have an opportunity to contribute to the management of offenders in the community. MAPPA has also been involved in ensuring integrated information exchange protocols were put in place for the special Domestic Violence Courts and a new system for victim assistance, Domestic Violence Protection Conferences, called MARAC (Multi-Agency Risk Assessment Conference). Children’s Services arranged for the woman to have supervised contact with her children on a 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 for herself. Due to the co-operative nature of all the agencies involved MAPPA ensured that the children were not harmed and could have a stable home. The Probation Service is likely to have ViSOR (a database for Violent and Sexual Offenders) in place 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 offenders.


A woman with 3 children was given a 3-year custodial sentence for an offence of Grievous Bodily 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 she later admitted. Children’s Services arranged for their father to have custody of the children. On her release from Prison the woman kidnapped the children and absconded with them. As she 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 woman’s circumstances was shared between Police, Probation and Children’s Services and a risk management plan was formulated which included the following: licence conditions, residence at a Probation hostel in another county with strict curfew conditions, an exclusion zone preventing her 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.

Lay Advisors

Norfolk MAPPA has two Lay advisors who sit on the Strategic Management Board and participate in the Quality Assurance Group, where the performance of MAPPA is evaluated, and the Policies and Procedures Group, which looks at how government policies and research can be integrated in to the MAPPA process. The main function of the Lay Advisors is to represent the public by overseeing the MAPPA. My involvement in MAPPA is growing. I co-ordinated a presentation by Lay Advisors for the Eastern Region Conference. I introduced the idea of a shorter and simpler annual report to one of our committees and this was adopted and I hope you like what you are reading now. I contributed to proposals for educating the public through a presentation at a public event, although this is now on-hold until a better opportunity arises. I have made one or two minor suggestions to committees that have been adopted and I am looking forward to a greater involvement during the coming year. Pat, Lay Advisor, writes: Yet another Annual Report, my third since I became a Lay Advisor over 21/2 years ago; like last year I have worked hard to consolidate and further develop my understanding and increase my knowledge base around many complexities that are involved in the delivery of MAPPA in Norfolk. Membership of the Quality Assurance Group continues to offer me an opportunity to work with the professionals to evaluate and measure Norfolk MAPPA’s performance and effectiveness. Indeed our work in this group has been acknowledged nationally and consequently we have been asked to participate in a nationwide survey of a Document Set by the Home Office.

John, Lay Advisor, writes: My enthusiasm for MAPPA continues to be strong due to our achievements in public protection, with none of our Level 2 and Level 3 offenders committing further serious offences, although some have been recalled to Prison for failing to observe the conditions for their release. 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 Conference in York. I have also been asked to develop a draft Communications Strategy for Norfolk MAPPA. So, watch this space, onwards and upwards, and I look forward to another busy and informative year as a Lay Member for Norfolk MAPPA.


Strategic Management Board

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 Freedom of Information Act, confidentiality agreements etc. to a woman. The Police apprehended him and it quickly became evident that his mental health Service were fully informed of the situation in the event that they would be required to write a report for the Court regarding the Indecent Exposure offence. plan was put together to ensure that all parties were aware when he was transferred back to the hospital. Once informed of this, the Police could activate the trigger plan for apprehending Management Board. The Strategic Management Board monitors and evaluates the work of MAPPA A young man with longstanding mental health problems travelled to London and exposed himself had deteriorated; he was admitted to a hospital in the London area under Section 3 of the Mental Norfolk. The hospital staff were provided with a code name by Police in case he absconded from him. Children’s Services gave his sister some advice on safeguarding her children. The Probation attended by Police, Mental Health Services and Children’s Services (as his sister had children and there were some concerns he might abuse them) and the Probation Service. A risk management Health Act. His key worker in Norwich advised MAPPA and a Level 2 meeting was held, which was

and ensures we are complying with Government directives, for instance, in relation to victims, or the


Category 1 MAPPA

The number of Registered sex offenders living in the community on 31st March 2007 = 546 Registered Sex Offenders by Basic Command Unit: Eastern = 184, Western = 128, Central = 234

Sex offenders with a registration requirement who were cautioned or convicted for breaching the requirement between 1/4/06 and 31/3/07 = 12 Number of offenders managed at Levels 3 or 2 between 1/4/06 and 31/3/07, whilst managed at that level, were 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 Level 3 A 10 5 B 1 0 C 0 0

Category 2 MAPPA offenders: Violent and Non Registered Sex Offenders Category 3 MAPPA offenders: Other offenders
Level 2 Level 3 Cat 1 (RSO’s) 40 4 Cat 2 (violent) 53 1 Offenders managed through Level 2 and Level 3 MAPPAs 1/4/06 to 31/3/07 The number of Foreign Travel Orders applied for 1/4/06 to 31/3/07 = 2 The number of Foreign Travel Orders granted 1/4/06 to 31/3/07 = 2 Cat 3 (other) 26 0

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

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

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 The number of Sexual Offences Prevention Orders imposed 1/4/06 to 31/3/07 = 24 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 The number of Full Notification Orders granted 1/4/06 to 31/3/07 = 0

The number of Registered Sex Offenders per 100k of population for Norfolk: 68 (a decrease of 16.18%)

STATISTICAL INFORMATION for the reporting period 1st April 2006 - 31st March 2007 NORFOLK

Breckland District Council Elizabeth House Walpole Loke Dereham Norfolk NR19 1EE Tel: 01362 656322

Broadland District Council Thorpe Lodge, 1 Yarmouth Lodge Thorpe St. Andrew, Norwich NR7 0DU Tel: 01603 431133 Community Mental Health Team Norfolk & Waveney Mental Health Partnership Trust North House, Goodwins Road King’s Lynn PE30 5PD Tel: 01553 815142 Hellesdon Hospital Norfolk and Waveney Mental Health Partnership Trust Drayton High Road Norwich NR6 5BE Tel: 01603 421421

Children’s Services / Adult Services / Education Services Norfolk County Council County Hall Martineau Lane Norwich Norfolk NR1 2S Tel: 01603 222222


HMP Norwich Knox Road Norwich NR1 4LU Tel: 01603 708600

Julian Housing 1a Oak Street Norwich Norfolk NR3 3AE Tel: 01603 767718

Learning Disability Team Norfolk County Council Norfolk Social Services Wymondham Health Centre 18 Bridewell Street Wymondham Norfolk NR18 0AR Tel: 01953 604437 Norfolk Constabulary OCC Jubilee House Falconers Chase Wymondham Norfolk NR18 0WW Tel: 01953 424242

Norfolk Probation Area 4th Floor, St. James Yarn Mill Whitefriars, Norwich Tel: 01603 220100

Northgate Hospital Norfolk and Waveney Mental Health Partnership Trust Northgate Street Great Yarmouth Norfolk NR30 1BU Tel: 01493 330054 Norvic Clinic Norfolk & Waveney Mental Health Partnership Trust St. Andrews Business Park Thorpe St. Andrew Norwich NR17 0HT Tel: 01603 439614 Norwich Magistrates Court Whitefriars Norwich Tel: 01603 632421 Norwich Crown Court Tel: 01603 728200 St. Matthew Housing 4 The Old Church St Matthew’s Road Norwich NR1 1SP Tel: 01603 442010 St. Martin’s Housing Trust 35 Bishopgate Norwich Norfolk NR1 4AA Tel: 01603 667706

Stonham Housing Trust 23 West Parade Norwich NR2 3DN Tel: 01953 602456 Victim Support 1a Silver Road Norwich Norfolk NR3 4TX Tel: 01603 767383 Youth Offending Team 45 Netherwood Green Norwich NR1 2JF Tel: 01603 223617

Norfolk & Waveney Mental Health Partnership Trust Fermoy Unit Queen Elizabeth Hospital Gayton Road King’s Lynn PE30 4ET Tel: 01553 613613 Wherry Housing Association 6 Central Avenue St. Andrews Business Park Thorpe St. Andrew Norwich Norfolk NR7 0HR Tel: 01603 703500



Tel: 01603 276320 Fax: 01603 276343

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