The Third Annual Report On The Norfolk Multi-Agency Public Protection Arrangements

Challenge Opportunity Change

National probation service “Protection Enforcement Rehabilitation”

Norfolk constabulary “Keeping Norfolk Safe”

Contents Page 4 Page 5 Page 6 Page 7 Page 8 Page 9 Page 10 Page 11 Page 12 Page 13 Page 14 and 15 Page 17, 18 and 19 Page 20 Page 21 and 22

Foreword Protecting the public from serious crime in Norfolk Involving the public Victims Lay advisors The role of the government Legislation to protect the public of Norfolk Working together Leadership Key Achievements How the MAPPA operates in Norfolk Statistics Conclusion 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 community.

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.

Victims The Government has during the last year placed a great emphasis upon meeting the needs of victims. The victims of sexual offending are identified as a priority group within the new National Victims and Witness Strategy. This was published in July 2003 and aims to improve support and protection for people who are the victims of serious crimes and witnesses of crime in a number of ways namely: a.) reducing the adverse effects of crime on victims and witnesses, and preventing secondary victimisation b.) encouraging more victims and witnesses to come forward and c.) by offering more options to victims and witnesses, including alternatives to attendance at court During the forthcoming year, the Government intends to create a new and independent post of Commissioner for Victims and Witnesses, to be a champion and voice for all victims of crime in addition to a new statutory Victim’s Code of Practice will set the specific responsibilities that each of the agencies and victim support must provide to witnesses.

Examples: 1. Gary was the victim of a violent attack. The Probation Service's Victim Liaison Officer (VLO) visited Gary, at his request, to give him information about the prison sentence that was subsequently imposed upon the offender and about the prison system. In particular, to listen to any concerns Gary had about the offender’s release. As a result of the visit, Gary gave information to the VLO which suggested the offender may be a much greater risk, both to Gary in particular, and the public in general, than had previously been thought. The VLO contacted the MAPPP Coordinator and the Police. A MAPPP meeting was called. The Police had the same concerns. Gary's views were put to the meeting, with his permission, and the MAPPP endorsed a plan which offered additional safeguards to Gary on the offender’s release. A pooling of knowledge and resources had resulted in a greater awareness of the offender’s capacity to cause harm, and of the victim's vulnerability, resulting in a series of 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 family. 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 MAPPA by: a.) making the prison service part of the “responsible authority along with the police and probation service” 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 risk. 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

Case of Mr A

The MAPPA in Norfolk is funded by five
local organisations reflecting the commitment agencies in Norfolk have towards protecting the community. As well as providing financial support, agencies work together to provide each other with advice on how to manage offenders who are proving problematic. Multi agency and coordinated use of resources not only help manage offenders but also prevent duplication and provide cost effective methods of managing offenders. Each case that comes before a panel though remains the responsibility of the referring agency, although anything up to eight other agencies can be involved in the management of the cases in the MAPPA process. The case of Mr A demonstrates how many people can work together to provide services to protect communities. Outside of the growing confidence and commitment agencies have to working with one and other, the structure that supports MAPPA is developing. For instance, the MAPPA office is now in permanent accommodation in Norwich and forms part of the Public Protection Unit. The MAPPA coordinator has produced written guidelines and protocol for agencies to help them understand the MAPPA processes and a simple referral process is in place. The MAPPA Coordinator has also started to develop ways of accurately recording the work that is going on and forging links across agency boundaries. 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.

A 35 year old man with a
long history of violence was serving an eight year prison sentence and due to be released with only a very short licence of supervision. He was assessed as a danger to women but also as someone with many complex needs for example, he had extensive physical and mental health problems and was going to be homeless. A MAPPA was called for by his probation officer who was concerned about public safety both on his release and in the long term once he finished supervision. The MAPPA was held and 8 agencies were represented including health, social service departments, housing, criminal justice agencies and victim liaison staff. His risk and needs were assessed and a plan formulated to protect the public and control his risk. This included transfer to a special hospital where he is currently doing well in a specialist programme for violent men.

Case of Mr B Mr B was a young 22 year old man who had drifted around the country committing a number of Minor crimes, before committing a serious violence offence, and was in a Norfolk prison. He had been in and out of care and excluded from school, so had no qualifications, never worked, and had severe drug problems. He was also potentially homeless on release. He felt he had nothing to live for and that all he could do was commit such a serious offence, that he would have to stay in prison for the rest of his life “no one cares for me so why should I care what happens to me?” Whilst in prison work began on his offending and drug problems and he was encouraged to go to education and employment courses. The prison probation staff asked the Norfolk MAPPA Coordinator to convene a MAPPA to assess his risk, but also put in place Multi Agency plans that would continue the work done in custody, to help him curb his violence and settle into a new life on release. The agencies represented included housing, criminal justice agencies and employment centre staff as well as staff from social service departments a voluntary organisation was also represented, all of whom worked with him to provide a secure 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.

How The MAPPA Operates in Norfolk

The MAPPA Coordinator received details of all the offenders who were convicted during the period 2003 – 2004 who fell within the legislative definition of the Act i.e. all violence offenders who received a prison sentence in excess of twelve months, and convicted sex offenders. Each case was reviewed and assessed in respect of the risk individual offenders posed to the community. Those who were assessed as very high risk were put to one side and become subject to multi agency public protection meetings before their release into the community. This was to ensure that all the necessary resources were in place to ensure the safe return to the community of these offenders. For example sex offenders may need to be rehomed away from the communities where their offences occurred. Housing organisations therefore, need to plan for this and need to identify what kind of support they will offer the offender with other organisations to monitor him or her and try to ensure that re-offending does not occur.

Sometimes MAPPA receives referrals
from agencies, such as Community Mental Health Teams, Social Service Departments and Youth Offending Teams, on offenders who are in the community because the offender’s behaviour is giving cause for concern. Each case has its own unique set of problems and may involve more than one agency (as the case of Mr B illustrates) to resolve the problems presented. Referrals are made using a simple standard format, checked, researched and a risk assessment is completed using well known and accurate risk assessment tools. Where the offender is assessed as very high risk (a person who falls within the “critical few”) 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.

Statistically the numbers involved in this
process will rise. This is due to the fact that offenders stay in the system for a number of years and additional offenders not previously known come into the system via the different agencies. Allied to this, ongoing vigorous prosecution policies mean that the numbers of offenders will grow annually. Offenders will also move into and out of Norfolk and how we manage this process is being reviewed.

The critical few represent approximately 5%
at anyone time of those offenders who are said to be qualifying offenders. While they may cause much distress to families and communities it remains a fact that the numbers are very small and the agencies involved do what they can to protect both the communities and the victims of the offenders.


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 custody.

Category 1 MAPPA offenders: Registered Sex Offenders RSO’s The number of RSO’s living in Norfolk on 31 March 2004 ia) The number of RSO’s per 100’000 head of population 484 60

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


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


(b) Imposed by the court in your area


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 5 (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], [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 the year 1 April 2003 and 31 March 2004 vii. The number of Restraining orders imposed on any MAPPA offenders by the courts in Norfolk between 1 April 2003 and 31 March 2004 237 5



Category 4: MAPPP Cases (viii) identify how many MAPPA offenders in each of the three categories

(a) (b) (c)


35 64 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 (b) were returned to custody for a breach of a restraining order or sex offender order (c) were charged with a serious sexual or violent offence 14 1 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 Hillary Collyer Assistant Chief Officer Address 4th Floor St James Yarn Mill Whitefriers Norwich NR3 1SU Address Public Protection Unit Norfolk Constabulary Jubilee House Falconers Chase Wymondham Norfolk NR18 0WW Address Public Protection Unit Norfolk Constabulary Jubilee House Falconers Chase Wymondham Norfolk NR18 0WW Address County Hall Room 615 Maitineau Lane Norwich Norfolk NR1 2SQ County Hall Maitineau Lane Norwich Norfolk NR1 2SQ Nelson House 31-33 South Quay Great Yarmouth Norfolk NR30 2RG Phone 01603 220 100

Norfolk Police D.I. Mike Austin

Phone 01603 276 318

MAPPP Coordinator Jacqueline Westrop

Phone 01603 276 321

Norfolk Social Services Mandy Lyons Service Manager Child Protection

Phone 01603 222 141

Housing Manager

01603 222 141

Howard Wynn Service Manager Adult Protection

01493 850 317

The Norvic Clinic Clinical Director

Address Norvic Clinic St Andrews Business Park Thorpe St Andrew Norwich NR7 4HT Address Graphic House 120 Thorpe Road Norwich Norfolk NR1 1RT

Phone 01603 439 614

Youth Offending Team Sue Masey Youth Offending Team

Phone 01603 877 526

Premier Monitoring Services Head of Monitoring Services

Address Austin House Stannard Place St Crispins Road Norwich NR3 1YF

Phone 01603 428 300

HMP/YOI Norwich Gerry Knight

Address Mousehold Norwich Norfolk NR1 4LU

Phone 01603 708 600

National probation service “Protection Enforcement Rehabilitation”

Norfolk constabulary “Keeping Norfolk Safe”

National probation service “Protection Enforcement Rehabilitation”

Norfolk constabulary “Keeping Norfolk Safe”

Printed by Norwich Colour Print Tel: 01603 868862 Fax: 01603 861 371 Email