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The Third Annual Report

On The Norfolk
Multi-Agency Public
Protection Arrangements


National probation service Norfolk constabulary

“Protection Enforcement Rehabilitation” “Keeping Norfolk Safe”


Page 4 Foreword
Page 5 Protecting the public from serious crime in Norfolk
Page 6 Involving the public
Page 7 Victims
Page 8 Lay advisors
Page 9 The role of the government
Page 10 Legislation to protect the public of Norfolk
Page 11 Working together
Page 12 Leadership
Page 13 Key Achievements
Page 14 and 15 How the MAPPA operates in Norfolk
Page 17, 18 and 19 Statistics
Page 20 Conclusion
Page 21 and 22 Contact us

The third annual report on the Multi Agency Public Protection

Arrangements (MAPPA) for Norfolk highlights the practice and
development of MAPPA in Norfolk.

During the year 2003, the report demonstrates the combined

efforts of the Norfolk Police and Probation Services to manage
and reduce the risk posed to the community by sexual and
dangerous offenders.

During 2003, the Police and Probation Services, the historical

members of the responsible authority were joined by the Prison
Service, so that from April 1st 2004, three of the main criminal
justice agencies in Norfolk became the constituent members of the
responsible authority. A warm welcome is extended to the Prison
Service, and the agencies all look forward to a close positive
working relationship.

In addition to the re-formed responsible authority, other agencies

now work more closely with the MAPPA office via the newly
created duty to co-operate. This allows a range of agencies and
organisations to work together sharing information and gives them
a vital role in the protection of vulnerable members of the Norfolk

The Strategic Management Board is now looking forward to

developing and enhancing the work of MAPPA as it looks to
reduce the risk presented by dangerous persons. The Board hopes
to appoint lay advisors in 2004 to help them in this work, and
looks forward to 2004 with optimism.

Martin Graham, Chief Officer Norfolk Probation Area

Andy Hayman, Chief Constable Norfolk Constabulary

Protecting the public from further
serious crime in Norfolk

The Multi Agency Public Protection

arrangements (MAPPA) were
introduced in April 2001 through the
Criminal Justice and Court Service Act
2000. This placed a statutory duty on
the police and probation services in
each area, to establish arrangements to
assess and manage dangerous offenders
in the community.

Importantly this work has also

involved a number of social care
agencies. This was reinforced by the
2003 Criminal Justice Act which
introduces the duty to cooperate. This
means that lots of agencies have to
work together to protect the public. Through the MAPPA, good working
relationships between agencies are
being built and sustained. These
working relationships are critical if we
are to better manage and review public
safety to provide the community in
Norfolk with the quality public
protection service it deserves.

The function of the MAPPA therefore

is to provide the community in Norfolk
with a service that includes the
management and review of dangerous
and sexual offenders, prepare
management plans that include a
number of agencies, coordinate them
and ensure they happen. Early
indications are that this work through
the MAPPA in particular, ensures much
closer supervision of offenders and is
having a positive impact on reducing
offending among some of the highest
risk of offenders.
Involving the public

During the year 2003/04 we have begun to develop ways of involving the public in the multi
agency process. To date we have three ways of doing this. Firstly we publish annual reports
and protocols, available on request, which tell you what we do and how we go about it. Next
we try, wherever possible to include the victims of the crimes committed by offenders in the
process and finally, we are finalizing the process of recruiting lay members to the Strategic
Management Board. The following points outline what we do in greater detail.

Annual Reports

Annual reports have been published for the

last three years, detailing the work of the
MAPPA and the Strategic Management
Board. We have included details of how
to contact us and given details of some of
the work done by the unit recently. As
part of a drive to ensure greater openness
about what agencies are doing to enhance
public safety radio programmes were
broadcast about the work of the parole
board and it’s role in protecting the public,
which included the role of MAPPA.
The Government has during the last year
placed a great emphasis upon meeting the 1. Gary was the victim of a violent attack.
needs of victims. The victims of sexual The Probation Service's Victim Liaison
offending are identified as a priority Officer (VLO) visited Gary, at his request,
group within the new National Victims to give him information about the prison
and Witness Strategy. This was sentence that was subsequently imposed
published in July 2003 and aims to upon the offender and about the prison
improve support and protection for system. In particular, to listen to any
people who are the victims of serious concerns Gary had about the offender’s
crimes and witnesses of crime in a release.
number of ways namely:
As a result of the visit, Gary gave
a.) reducing the adverse effects of crime information to the VLO which suggested
on victims and witnesses, and the offender may be a much greater risk,
preventing secondary victimisation both to Gary in particular, and the public in
b.) encouraging more victims and general, than had previously been thought.
witnesses to come forward and
c.) by offering more options to victims The VLO contacted the MAPPP
and witnesses, including alternatives Coordinator and the Police. A MAPPP
to attendance at court meeting was called. The Police had the
same concerns. Gary's views were put to
During the forthcoming year, the the meeting, with his permission, and the
Government intends to create a new and MAPPP endorsed a plan which offered
independent post of Commissioner for additional safeguards to Gary on the
Victims and Witnesses, to be a champion offender’s release. A pooling of knowledge
and voice for all victims of crime in and resources had resulted in a greater
addition to a new statutory Victim’s Code awareness of the offender’s capacity to
of Practice will set the specific cause harm, and of the victim's
responsibilities that each of the agencies vulnerability, resulting in a series of
and victim support must provide to measures to safeguard the victim.
2. A young woman and her mother had
been subjected to an aggravated burglary
and sexual assault. A Victim Support
Volunteer helped them articulate their
concerns to the VLO and then played a key
role in relaying information to and from the

Their concerns were voiced by the VLO at

a MAPPP meeting, and the arrangements
put in place at that meeting for their
protection were transmitted back to them
via the Victim Support Volunteer. This
provided valuable reassurance to the
victims that their anxieties were being
taken seriously, and acted upon though the
MAPPP process. It also helped provide the
MAPPP meeting with the necessary
information to support its action plan to
manage the risks posed by the offender on
his release.
Lay advisors

The new Criminal Justice Act introduces an element of public scrutiny into the complex and
sensitive area of public protection through the appointment of two Lay Advisors to each of the
42 areas. These lay advisors will sit on the Local Strategic Management Boards. This
development has been carefully and successfully trialled and evaluated in eight pilot areas and
the lessons learnt in the pilot areas will be carried forward in Norfolk. As Home Office
Minister Paul Goggins has said;

“lay advisors will play a vital role...We are committed to giving them not only an insight into
how this work is carried out but, more importantly, an opportunity question what is being done
and why”

In 2004, Norfolk will be introducing lay advisors into the strategic oversight of the MAPPA.
This initiative was launched to ensure the good work of the MAPPA was more clearly
understood by local communities, and that those involved professionally with the MAPPA
were aware of the views of local people. It is hoped that the lay advisors will become a
“critical friend” of the process and challenge the professionals constructively. The recruitment
process will start we hope in November 2004 and be completed by the end of the year.
The role of the Government

The national development of the MAPPA has concentrated

on preparing to implement the MAPPA provisions of the
Criminal Justice Act 2003. These provisions came into
force in April 2004 and help strengthen the work of the
a.) making the prison service part of the “responsible
authority along with the police and probation

b.) formalising the involvement of other agencies

which can make important contributions to the
work in helping offenders not to re-offend

c.) appointment of two members of the public as lay

members in each area to assist in monitoring the
effectiveness of the MAPPA

The centre has developed additional strategies to help

agencies manage sexual and violent offenders through
strengthening other statutory provisions; the most significant
of these is the Sexual Offences Act. There are also the
measures to introduce new sentences for those deemed to be
dangerous offenders. These will keep these individuals in
custody until they no longer pose a serious risk to the public.

At a very practical level, and in recognition of the difficulties

that exist with a very small number of dangerous offenders,
who pose particular difficulties in their own area, or who are
itinerant, the National Probation Service, Public Protection
Unit has recently established an exchange scheme. This will
clarify the transfer of case responsibilities of offenders who
move around the country, ensuring consistent case
management and strengthened risk management, and will
also support financially establishments, who take on cases
that require specialised extra support i.e. extra staff, and all
this is done to ensure better public protection.
Legalisation to Protect the Public of Norfolk

The Government is also introducing legislation to help the public protection services do
their work. The Sexual Offences Act overhauls the law and updates what is meant by
sexual offences and offending. It strengthens the law on rape and on sex offences against
children and offers some protection to the vulnerable adults we have in society. The Act
introduces new offences such as “sexual grooming” and extends the protection from
exploitation in prostitution or pornography to children up to the age of 18.

This Act also strengthens the sex offenders register, which has proved a valuable means
by which the police monitor convicted sex offenders within the Norfolk area. New Civil
Orders have also been introduced to help prevent further offences from being committed.
Finally the Government is also committed to tackling Domestic Violence and legislation
is currently going through parliament to address this issue. In Norfolk we are in the
process of appointing a domestic violence coordinator to establish new services and
develop existing ones. This coordinator will be working with the MAPPA to help reduce
incidents of violence in relationships.
Working together

Multi agency public protection

arrangements are jointly arranged between
the police and probation service, working
together to provide a consistent approach to
the management of dangerous and sexual
offenders. These two partners are known as
the responsible authorities. This work is
coordinated from the MAPPA office, by the
MAPPA coordinator. From 2004 the Prison
Service will be joining the responsible
authorities to add a new dimension to the
joint management of dangerous and violent
and sexual offenders. This will ensure
greater control on known potentially
dangerous offenders as they move from
custody into the community, providing a
consistent approach to the management of
Where offenders are under supervision and
start to present as very high risk of harm,
the Probation Area of Norfolk takes steps to
ensure that the risk is reduced, by recalling
offenders to custody. It should be noted
that during the year to end March 2004, 15
such offenders were sent back behind bars
before any criminal offence occurred. In
every case, the MAPPA arrangements
ensured the public were protected.

The work of public protection is overseen in Norfolk

by the Strategic Management Board. This Board
monitors the work of the MAPPA and is linked with
other agencies such as the Criminal Justice Boards
and Area Child and Adult Protection committees. It
examines public protection cases that come before it.
For example cases where there has been good inter
agency liaison that have helped manage difficult or
dangerous offenders or where things may not have
gone quite to plan. It reviews the case, takes the
lessons learned and makes sure all agencies learn
from the issues that have arisen.
The Strategic Management Board ensures that the
MAPPA Coordinator carries out tasks on its behalf to
high standards via receiving regular reports,
questions the MAPPA Coordinator and also
commissions training for agencies that are part of the
processes. The Board is also receiving training in
order to carry out the work that it does. The MAPPA
Coordinator goes out into the community to train
community groups in this area of work.
The Board receives up to date statistical information
on the numbers and types of offenders who fall within
its remit, and each agency inputs its own ideas into
how this group will be managed and monitored.
This is done in accordance with the annual Business
Plan that is produced for the MAPPA and a copy of
this is available on request. This plan outlines the
policy and strategy of the MAPPA for the
forthcoming year, and outlines how this plan will be
implemented and monitored.
It is envisaged that during the year 2004-05 that the
MAPPA Coordination office will grow to meet the
increasing demand for its services, through the
appointment of a project development worker.
Key Achievements

The MAPPA in Norfolk is funded by five

Case of Mr A local organisations reflecting the
A 35 year old man with a commitment agencies in Norfolk have
long history of violence towards protecting the community. As well
was serving an eight year as providing financial support, agencies work
prison sentence and due to together to provide each other with advice on
be released with only a very how to manage offenders who are proving
short licence of supervision. problematic. Multi agency and coordinated
He was assessed as a use of resources not only help manage
danger to women but also offenders but also prevent duplication and
as someone with many provide cost effective methods of managing
complex needs for example, offenders.
he had extensive physical Each case that comes before a panel though
and mental health problems remains the responsibility of the referring
and was going to be agency, although anything up to eight other
homeless. A MAPPA was agencies can be involved in the management
called for by his probation of the cases in the MAPPA process.
officer who was concerned
about public safety both on The case of Mr A demonstrates how many
his release and in the long people can work together to provide services
term once he finished to protect communities.
supervision. The MAPPA Outside of the growing confidence and
was held and 8 agencies commitment agencies have to working with
were represented including one and other, the structure that supports
health, social service MAPPA is developing.
departments, housing,
For instance, the MAPPA office is now in
criminal justice agencies
permanent accommodation in Norwich and
and victim liaison staff.
forms part of the Public Protection Unit. The
His risk and needs were
MAPPA coordinator has produced written
assessed and a plan
guidelines and protocol for agencies to help
formulated to protect the
them understand the MAPPA processes and a
public and control his risk.
simple referral process is in place. The
This included transfer to a
MAPPA Coordinator has also started to
special hospital where he is
develop ways of accurately recording the
currently doing well in a
work that is going on and forging links
specialist programme for
across agency boundaries.
violent men.
In October 2003, a conference launching the
protocol and advertising the work of MAPPA
was held at Barnham Broom. National
speakers addressed a conference of over a
hundred people. How we can promote good
local public protection was discussed and
plans for the development of the MAPPA in
Norfolk were laid down.
Case of Mr B How The MAPPA Operates in Norfolk
Mr B was a young 22 year old man who had
drifted around the country committing a number The MAPPA Coordinator received details
of Minor crimes, before committing a serious of all the offenders who were convicted
violence offence, and was in a Norfolk prison. during the period 2003 – 2004 who fell
He had been in and out of care and excluded within the legislative definition of the Act
from school, so had no qualifications, never i.e. all violence offenders who received a
worked, and had severe drug problems. He was prison sentence in excess of twelve
also potentially homeless on release. He felt he months, and convicted sex offenders. Each
had nothing to live for and that all he could do case was reviewed and assessed in respect
was commit such a serious offence, that he of the risk individual offenders posed to the
would have to stay in prison for the rest of his community. Those who were assessed as
life “no one cares for me so why should I care very high risk were put to one side and
what happens to me?” become subject to multi agency public
Whilst in prison work began on his offending protection meetings before their release
and drug problems and he was encouraged to go into the community. This was to ensure
to education and employment courses. The that all the necessary resources were in
prison probation staff asked the Norfolk place to ensure the safe return to the
MAPPA Coordinator to convene a MAPPA to community of these offenders. For
assess his risk, but also put in place Multi example sex offenders may need to be re-
Agency plans that would continue the work homed away from the communities where
done in custody, to help him curb his violence their offences occurred. Housing
and settle into a new life on release. The organisations therefore, need to plan for
agencies represented included housing, criminal this and need to identify what kind of
justice agencies and employment centre staff as support they will offer the offender with
well as staff from social service departments a other organisations to monitor him or her
voluntary organisation was also represented, all and try to ensure that re-offending does not
of whom worked with him to provide a secure occur.
and supported environment to come out to. Mr
B found it a challenge at first, as he found it
difficult to trust people, and work on his many
problems, but with the correct support provided
by the agencies has now remained offence and
drug free since release, and has recently started
his first ever job.
Sometimes MAPPA receives referrals Statistically the numbers involved in this
from agencies, such as Community process will rise. This is due to the fact that
Mental Health Teams, Social Service offenders stay in the system for a number of
Departments and Youth Offending years and additional offenders not previously
Teams, on offenders who are in the known come into the system via the different
community because the offender’s agencies. Allied to this, ongoing vigorous
behaviour is giving cause for concern. prosecution policies mean that the numbers
Each case has its own unique set of of offenders will grow annually. Offenders
problems and may involve more than will also move into and out of Norfolk and
one agency (as the case of Mr B how we manage this process is being
illustrates) to resolve the problems reviewed.
The critical few represent approximately 5%
at anyone time of those offenders who are
Referrals are made using a simple said to be qualifying offenders. While they
standard format, checked, researched may cause much distress to families and
and a risk assessment is completed communities it remains a fact that the
using well known and accurate risk numbers are very small and the agencies
assessment tools. Where the offender involved do what they can to protect both the
is assessed as very high risk (a person communities and the victims of the
who falls within the “critical few”) offenders.
then a Multi Agency Public Protection
meeting is held. This meeting
comprises senior representatives of a
number of agencies who meet assess
risk and then devise a plan to restrict
the risk the offender poses to society.
This might include the provision of
psychiatric help, special housing
surveillance and disclosure of
information regarding an individual to
relevant people/organisations. Where
the risk is assessed as high, a different
type of meeting is held. At the
meeting agencies gather to discuss a
case and plan how that risk may be
managed in the community.
Statistical Information
The following information is the global view of what is occurring in Norfolk. You
can see the numbers of sex offenders currently on the register, how many violent
offenders were in the community last year and how many were subject to the MAPPA
process. We have also included the numbers of offenders who were recalled to

Category 1 MAPPA offenders: Registered Sex Offenders RSO’s

The number of RSO’s living in Norfolk on 31 March 2004 484

ia) The number of RSO’s per 100’000 head of population 60

ii. The number of sex offenders having a registration requirement who were 23
either cautioned or convicted for breaches of the requirement, between 1 April
2003 and 31 March 2004

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

(a) The total number of Sex Offenders Orders applied for 4

(b) Imposed by the court in your area 4

iv. The Number of interim Sex Offender orders (a) applied for and (b) imposed by
the courts between 1 April 2003 and 31 March 2004

(a) applied for

(b) imposed by the courts in your area between 1st April 2003 and 31st March 2004

Category 2: Violent Offenders and Other Sexual Offenders

v. The number of violent and other sexual offenders (as defined by section 68 [3], 237
[4] and [5] of the Criminal Justice and Court Services Act) living in Norfolk
during the year 1 April 2003 and 31 March 2004

Category 3: Other Offenders

vi. The number of “Other Offenders” offenders (as defined by section 68 [3], [4]
and [5] of the Criminal Justice and Court Services Act) living in Norfolk during 27
the year 1 April 2003 and 31 March 2004

vii. The number of Restraining orders imposed on any MAPPA offenders by the 0
courts in Norfolk between 1 April 2003 and 31 March 2004

Category 4: MAPPP Cases

(viii) identify how many MAPPA offenders in each of the three categories
(a) RSO 35

(b) V&O 64

(c) OO 3

ix) Of the cases managed by the MAPPP (i.e.(viii)) between 1st April 2003 and 31
March 2004, how many whilst still in the MAPPP:

(a) were returned to Custody for a breach of licence 14

(b) were returned to custody for a breach of a restraining order or sex offender 1
(c) were charged with a serious sexual or violent offence 0

What Do the Statistics Mean In Practice

In Norfolk the MAPPA has now established a consistent way of gathering material to
inform the Strategic Management Board about the numbers and types of sexual and
violent offenders in the community. This is outside the routine collection of
information that occurs as we track and record sex offenders.
Preliminary information from the MAPPA indicates that while sex offenders
naturally cause the most concern to the community, the incidence of violent offenders
and issues that arise in their management is a much greater issue and one which the
agencies will have to address in Norfolk during the forthcoming year.

Violent and sexual offences are dreadful crimes that

affect the lives of victims and their families and create
fear in local communities. The impact of such
offences can be profound and long-lasting leaving
victims feeling unsafe even in their own homes. The
Norfolk MAPPA regards working to prevent crimes
of a violent and sexual nature as one of the highest
priorities in community protection. This commitment
is supported by the Government, who set the statutory
basis for MAPPA in 2001 and provided Norfolk and
areas like Norfolk, a firm statutory basis for the work
that was already being done by the police and
probation services. In 2004 the work of these two
services will be further strengthened by the formal
inclusion of other agencies in the process. These
agencies including the Prison Service, Housing,
Health, Jobcentres, Youth Offending Teams and
Electronic Monitoring providers, and critically the
appointment of Lay advisors will take the work of the
MAPPA forward in a stronger and more structured
way than ever before.
However, it must not be forgotten that without the
help and support of the public and community this
process would not be as successful as it is. Therefore
if you have any comments on this report, or questions
about the process, please contact us via the contact
points listed in the back of the report.
Norfolk Probation Area Address Phone

Hillary Collyer 4th Floor 01603 220 100

Assistant Chief Officer St James Yarn Mill

Norfolk Police Address Phone

D.I. Mike Austin Public Protection Unit 01603 276 318

Norfolk Constabulary
Jubilee House
Falconers Chase
NR18 0WW

MAPPP Coordinator Address Phone

Jacqueline Westrop Public Protection Unit 01603 276 321

Norfolk Constabulary
Jubilee House
Falconers Chase
NR18 0WW

Norfolk Social Services Address Phone

Mandy Lyons County Hall 01603 222 141

Service Manager Room 615
Child Protection Maitineau Lane

Housing Manager County Hall 01603 222 141

Maitineau Lane

Howard Wynn Nelson House 01493 850 317

Service Manager 31-33 South Quay
Adult Protection Great Yarmouth
NR30 2RG
The Norvic Clinic Address Phone

Clinical Director Norvic Clinic 01603 439 614

St Andrews Business Park
Thorpe St Andrew

Youth Offending Team Address Phone

Sue Masey Graphic House 01603 877 526

Youth Offending Team 120 Thorpe Road

Premier Monitoring Services Address Phone

Head of Monitoring Services Austin House 01603 428 300

Stannard Place
St Crispins Road

HMP/YOI Norwich Address Phone

Gerry Knight Mousehold 01603 708 600


National probation service Norfolk constabulary

“Protection Enforcement Rehabilitation” “Keeping Norfolk Safe”

National probation service Norfolk constabulary Printed by Norwich Colour Print
Tel: 01603 868862 Fax: 01603 861 371
“Protection Enforcement Rehabilitation” “Keeping Norfolk Safe” Email