You are on page 1of 17

North Wales MAPPA

Multi Agency Public


Protection Arrangements
Annual Report
2005 - 2006
CONTENTS

Section Page

1 Foreword ................................................................. 1

2 Introduction .............................................................. 2

3 Key Achievements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

4 How the MAPPA operate in North Wales ............................ 4

5 Statistical Information ................................................... 8

6 Strategic Management Board ........................................... 11

7 SMB Business Plan 2006/07 ............................................. 12

8 Lay Advisors .............................................................. 14

9 Contacts .................................................................. 15
FOREWORD Section 1

Making our communities safer and reducing In addition to this, however, it is important that no
re-offending is our highest priority and one of opportunity is missed to consider other measures
our biggest challenges.That is why the work that will further enhance public safety.That is why
undertaken through these multi-agency public we are undertaking the Child Sex Offender
protection arrangements (MAPPA) is so important. Review, to look at how a particular group of
The supervision and management of sexual and offenders, who provoke anxiety for many, are best
violent offenders who pose the highest risk of managed in the community.The review is
serious harm, whether in the community or in consulting a wide range of practitioners and key
custody, is complex and challenging; and is an stakeholders including the MAPPA lay advisers, and
aspect of public service where the public rightly will report around the end of the year.
expects all reasonable action to be taken.
Finally, in commending this report to you, I want to
Although we have made significant progress in the take the opportunity to thank all those involved
last five years with the development of MAPPA locally in working with sexual and violent
across England and Wales, the review this year of a offenders, or in ensuring that these arrangements
number of tragic incidents where people have been are fit for purpose.Where MAPPA is working well
murdered or seriously injured reminded us of the it is based on maintaining high professional
importance of reviewing performance, improving standards and effective multi-agency collaboration
practice and learning lessons. It is vital that these in the delivery of robust risk management plans.
tasks are undertaken by the probation, police and While it is not possible to eliminate risk entirely,
prison services, as well as by those other agencies where all reasonable action is taken the risk of
that contribute to the assessment and management further serious harm can be reduced to a minimum
of offenders. The publication of MAPPA Business and fewer victims will be exposed to repeat
Plans by each Area in this year’s annual reports offending.
offers a helpful and necessary programme of local
development and review and must lead to
enhanced practice. It will be essential that this Gerry Sutcliffe MP
progress is transparent and shared with local Parliamentary Under Secretary of State
communities. for Criminal Justice and Offender Management

1
INTRODUCTION Section 2

Summary of Key Issues and local concerns have been raised in respect of
Approved Premises in our area run by the
This is the fifth annual report on the work done Probation Service.
by agencies in North Wales through the Multi
Agency Public Protection Arrangements. MAPPA This report describes some of the work done by
was set up to ensure there was a shared response Police, Probation and Prison staff working in
to the issues that arise for public bodies dealing collaboration with many other agencies across the
with people who have committed serious area to manage the risk of harm being caused to
offences. others by people living in our community.
Unfortunately, this risk can never be eliminated, but
In the past year there has been a great deal of we are confident that the Multi Agency Public
public attention to this group of offenders. A Protection Arrangements which have been working
number of high profile cases – in London, Reading well for five years in North Wales, offer the public
and South Wales – have attracted media publicity the greatest possible protection.

Carol Moore Richard Brunstrum John May


Chief Officer Chief Constable Wales Area Manager
North Wales Probation Area North Wales Police HM Prison Service

2
KEY ACHIEVEMENTS Section 3

development of the National Offender


Management Service (NOMS). As part of this,
an experienced Manager has been appointed
as the MAPPA Co-ordinator.

◆ Our administrative and record keeping


arrangements have improved. MAPPA is all
about making sure that those who need to
know have the right information about risk of
harm.

◆ Finally, many examples of good collaborative


work can be evidenced. This includes:
2005/06 has been a year of consolidation following
the changes brought about by the Criminal Justice ❖ the close monitoring of individuals
Act 2003. The number of offenders managed immediately after they have been released
through MAPPA has shown a small increase. from prison
Much has been achieved through a collaborative
approach involving agencies with a ‘duty to ❖ the use of clear and strict conditions in
co-operate’. As such, the emphasis in this section release licences, properly managed and
this year is on how we are doing things better: enforced where required

◆ The VISOR (Violent Offender and Sexual ❖ Working across boundaries – with key
Offender Register) database has been agencies in all parts of North Wales
introduced across North Wales Police. coming together to manage individuals
whose movement across the area is a
◆ North Wales Probation Area has undergone a feature in their offending and risks of
structural re-organisation in response to the causing further harm to others.

3
HOW THE MAPPA OPERATES IN NORTH WALES Section 4

Multi Agency Public Protection Arrangements ◆ Any other offender with a current or past
were introduced in 2001 as a statutory duty on conviction for a sexual or violent offence
the Police, Probation Service and (from 2003) the whose behaviour gives rise for concern.
Prison Service. They require that offenders
falling into three categories are subject to Who Does What?
oversight:
The Police, Probation and Health Authorities in
◆ Offenders who have committed a sexual North Wales all divide the area into three
offence that requires them to register their “divisions”:-
details with the Police.
Eastern - Flintshire and Wrexham
◆ Offenders who have been convicted of a Western - Ynys Môn and Gwynedd
sexual or violent offence and been sentenced Central - Conwy and Denbighshire
to a term of imprisonment of 12 months or
more. MAPPA follows the same boundaries.

4
HOW THE MAPPA OPERATES IN NORTH WALES Section 4

Multi Agency Public Protection


Arrangements ensure that
concerns about any offender in
the community can be shared
between relevant agencies. Any
agency involved in MAPPA can
raise cases for consideration, but
usually it is Probation or Police
who do – when an offender is
due to be released from prison,
is sentenced for a serious
offence, or moves into the area.
There are three levels at which
risk is assessed and managed:-

Level 1: Ordinary Risk Management


Where offenders are assessed as presenting a low or medium risk of harm. These cases are usually
managed by one agency (Police, Probation or Youth Offending Team) without the need for significant
assistance from other agencies.

Level 2: Local Inter Agency Risk Management


Where offenders are assessed as presenting a high risk of harm and there is a need for those agencies
with a responsibility for managing the case to work together collaboratively. These cases are
discussed at MAPPA Level 2 meetings which are held each month in each of the three divisions.
These meetings are convened by probation with a regular police involvement. Other agencies are
invited to attend to discuss individual cases as required.

Level 3: Multi Agency Public Protection Panels


A MAPPA Level 3 will be convened to consider any case where the risk of harm is very high, where a
case is particularly complex or requires unusual resource commitments or where there is a high level
of media and public interest. These cases are often referred to as the “critical few”.

5
HOW THE MAPPA OPERATES IN NORTH WALES Section 4

The three lead agencies in MAPPA – collectively referred to as the Responsible Authority – are the Police,
Probation and Prison Service. Each has a particular contribution to make:-

1 The Police are responsible for supervising all offenders subject to registration
as a sex offender. The Police closely monitor individuals if the risk of causing
harm to others is considered to be high. The Police also have a key role in
monitoring behaviour of all other MAPPA offenders and have the
responsibility to investigate any new offences which are reported to them.

2 The Probation Service supervise all MAPPA Category 2 offenders together


with any RSO sentenced by the Court to a Community Order or after
release from custody. Most of the Category 3 offenders are also subject to
Probation supervision. In every case, the Probation Offender Manager is
responsible for drawing up a Risk Management Plan and a Sentence Plan.
These may include both restrictive elements and requirements for the
offender to take part in work to address their offending. The Probation
Service also has a statutory duty to keep victims of serious or violent
offences informed of the progress of an offender through their sentence, if
that is for 12 months or more imprisonment.
3
The Prison Service’s key role is to protect the public by the safe and humane
detention of offenders sentenced by the Courts. During a prisoner’s stay in
custody, the Prison Service will seek to encourage them to take part in
purposeful activity – acquiring a skill, participating in groupwork to address
their offending or other factors such as drug and alcohol abuse that
contribute to their offending, as part of a Sentence Plan.

A key function of MAPPA is to ensure that the efforts of these three Criminal Justice Agencies are well
co-ordinated so that any changes in the assessed risk of harm is monitored and a preventative plan is put
in place to protect the public and prevent further victims.

Through MAPPA, the effort of other agencies involved in working with an offender are brought together.

6
HOW THE MAPPA OPERATES IN NORTH WALES Section 4

List of “Duty to Co-operate” Agencies

Gwynedd Local Health Board

Conwy Local Health Board

Flintshire Local Health Board

Wrexham Local Health Board

Ynys Mon Local Health Board

Denbighshire Local Health Board

Conwy/Denbighshire NHS Trust

North East Wales NHS Trust

North West Wales NHS Trust

Conwy/Denbighshire Youth Offending Team

Gwynedd/Mon Youth Offending Team

Wrexham Youth Offending Team

Flintshire Youth Offending Team

Conwy County Borough Council

Wrexham County Borough Council

Isle of Anglesey County Council

Gwynedd Council

Denbighshire County Council

Flintshire County Council

Jobcentre Plus

Clwyd Alyn Housing Association

North Wales Housing Association

Cymdeithas Tai Clwyd

Cymdeithas Tai Hafan

Tai Eryri

Serco Monitoring

7
STATISTICAL INFORMATION Section 5

1. Category 1 MAPPA offenders : Registered Sex Offenders (RSO)


i) The number of RSOs living in North Wales 2004/05 2005/06
+2%
389 395

This figure, on the face of it, represents a standstill in the number of Registered Sex Offenders living in
the area. However, the nature of RSO registration should mean that the figure continues to rise. That it
has not done so is due to offenders in custody being excluded from this year’s figures. This year’s figure
has been further broken down by BCU.

Eastern : 158
Western : 104
Central : 133

ii) The number of RSOs cautioned or convicted for breaches


2004/05 2005/06
of requirement
17 6

North Wales Police figures reflect a greater success in holding RSOs to the requirements.

iii) The number of SOPOs applied for and granted in year 2004/05 2005/06

Applied For: 8 5
Interim Orders 1 0
Full Orders: 12 5

Sex Offender Prevention Orders are seen as a key measure available to the Police to manage the
behaviour of potentially dangerous people in the community. They are used to complement other
restrictions, such as those included in licences supervised by the Probation Service.

iv) The number of Notification Orders 2004/05 2005/06


(a) Applied for
(b) Interim Notification Orders granted
0 0
(c) Full Notification Orders imposed
0 0
by the courts in your area
0 0

Only one case of an offender from overseas has been considered in North Wales over the past two
years. On investigation it was discovered he had committed an offence that would have led to only a
short registration period had it been committed in this country and he would no longer be on the
register due to the time elapsed since the offence.

v) The number of Foreign Travel Orders 2004/05 2005/06

(a) Applied for 0 0


(b) Imposed by the courts 0 0

8
STATISTICAL INFORMATION Section 5

2. Category 2 MAPPA Offenders : Violent and Other Sexual offenders


vi) The number of violent and other sexual offenders (as 2004/05 2005/06
defined by Section 327 (3), (4) and (5) of the Criminal +48%
Justice Act 2003) 86 127

Offenders included in this category are those released from prison who have been sentenced to more
than twelve months imprisonment for a relevant violent or sexual offence (but are not RSOs). The
increase in the number of offenders in this category reflects a more cautious approach to risk being
taken by MAPPA agencies. Cases that might previously have been managed at Level 1 have been
discussed at Level 2 meetings.

3. Category 3 MAPPA Offenders : Other Offenders

vii) The number of ‘other offenders’ (as defined by Section 325


2004/05 2005/06
+5%
(2)(b) of the Criminal Justice Act 2003)
138 145

Only a modest rise in this figure, although it should be noted that in comparison with many other areas
of England and Wales, North Wales MAPPA includes more offenders in this category. The reason for this
is principally due to the importance given to a multi agency focus on domestic abuse. Many of this
group of offenders have committed violent offences against partners or others but have not been
sentenced to over 12 months imprisonment (which would have put them into Category 2). With the
roll out of specialist Domestic Violence Multi Agency Risk Assessment Conferences across the area,
some of these cases may be discussed there instead.

4. Offenders managed through Level 3 (MAPPP) & Level 2


(local inter-agency management)
viii) Identify how many MAPPA offenders in each of the three 2004/05 2005/06
categories have been managed through MAPPP (Level 3) and
through local inter-agency risk management (Level 2)
Level Level Level Level
2 3 2 3
RSO (Cat 1) 102 5 102 7
V & O (Cat 2) 79 7 115 12
Oth O (Cat 3) 136 2 143 2

9
STATISTICAL INFORMATION Section 5

xi) Of the cases managed at levels 3 or 2, how many whilst


2004/05 2005/06
managed at that level: Level Level Level Level
2 3 2 3
(a) Were return to custody for breach of licence? 25 5 51 6
(b) Were returned to custody for breach of a restraining
order or sexual offences prevention order?
0 0 2 0
(c) Were charged with a serious sexual or violent offence? 0 0 1 1

Two offenders subject to MAPPA were charged with a Serious Further Offence in 2005/06. One was
subsequently convicted of a further serious violent offence for which he received 6 years imprisonment.
The second was also convicted of a violent offence, committed in the North West of England, for which
he received 15 months imprisonment.

10
STRATEGIC MANAGEMENT BOARD Section 6

The North Wales MAPPA Strategic Management


Board (SMB) has met four times during 2005/06.
The role of the Board is to monitor and review
the management of cases supervised through
MAPPA. During the year the SMB has given
particular attention to:

◆ Public concerns in respect of Probation


Approved Premises

◆ Developing links with other key partners

◆ Supporting and developing robust systems for


identifying MAPPA cases

◆ Mentally disordered offenders

◆ Media/press issues

The Strategic Vision 2006-09 and Business Plan for


the Board are set out below:-

Aim of the North Wales


Strategic Management Board

North Wales Strategic Management Board has


three key aims:-
The Three Year Strategy

Each year the Strategic Management Board will


◆ Protecting the public by managing the risk
publish a Business Plan in line with national and
posed by dangerous offenders in the
local priorities and these strategic aims. For the
community and thereby reducing the number
next three years the key themes of the Plan will
of victims of serious sexual and violent crime.
be:-
◆ Developing public confidence in agencies working
2006-07 Developing the MAPPA infrastructure
with dangerous offenders and thereby reducing
the fear of serious sexual and violent crime.
2007-08 Building public confidence through
community engagement
◆ Encouraging collaboration between agencies
working with dangerous offenders and thereby
2008-09 Broadening and measuring the
ensuring all decisions taken are based on the
effectiveness of the Board’s work
best informed assessment of the potential risk
and of each Agencies’ contribution.
of harm.

11
NORTH WALES MAPPA STRATEGIC Section 7
MANAGEMENT BOARD - Business Plan 2006 - 2007

Strategic Aim Delivery Plan Milestones Resources Outcome

1. MAPPA
Infrastructure
Development

1.1 Consolidate ◆ Review existing July 2006 Responsible Better integration


arrangements arrangements Authority lead of arrangements
for MAPPA between Officers
co-ordination Responsible
and administration Authority members

1.2 Improve record ◆ Introduce new April 2006 MAPPA Greater


keeping of MAPPA procedures for Co-ordinator consistency and
activity in line with referral and accountability
national guidance recording of
meetings

◆ Implement fully By March All Responsible Improved


VISOR when 2007 Authorities information
available sharing

1.3 Implement revised ◆ Review and update July 2006 MAPPA SMB Chair Consistency
national guidance procedures and and Co-ordinator with national
protocols arrangements

2. Monitoring and
Evaluation

2.1 Publication of ◆ Produce draft report April 2006 MAPPA SMB Chair Increased public
Annual Report ◆ Publish final report Sept 2006 and Co-ordinator awareness
2005/06

2.2 Provide SMB with ◆ Produce regular SMB MAPPA Greater awareness
quarterly analysis report meetings Co-ordinator and ownership of
of MAPPA activity ◆ Respond to SMB throughout information by
requests in respect year SMB
of developing trends

2.3 Develop quality ◆ Review of thresholds, Dec 2006 SMB Sub Group Greater confidence
assurance attendance and that arrangements
arrangements agency contribution MAPPA are effective
◆ Review processes Sept 2006 Co-ordinator

12
NORTH WALES MAPPA STRATEGIC Section 7
MANAGEMENT BOARD - Business Plan 2006 - 2007

Strategic Aim Delivery Plan Milestones Resources Outcome

2.4 Introduce ◆ SMB agree criteria July 2006 SMB members Improve
arrangements for ◆ Delivery reports As MAPPA accountability and
case reviews to SMB determined Co-ordinator public reassurance

3. Communication
and Strategic
Partnerships

3.1 Review existing ◆ Develop Responsible July 2006 Responsible Greater clarity of
arrangements Authority agreement Authority lead inter-agency
between ◆ Review DtC March 2007 Officer arrangements
Responsible Memorandums in
Authority members line with new SMB members
and DtC bodies national guidance

3.2 All Wales ◆ Contribute to Oct 2006 SMB members Development


collaboration initiatives to improve of All Wales
consistency and protocols
share good practice

3.3 Develop media ◆ Produce plan for March 2007 SMB members Build groundwork
and communication SMB endorsement and media/ for 2007/08
strategies communication Business Plan key
officers theme

4. Training

4.1 Support training ◆ Provide continuing SMB meetings SMB members Greater awareness
and development opportunities for Lay throughout and ownership of
needs of Lay Adviser oversight of year MAPPA information by
Advisors MAPPA activities Co-ordinator SMB
◆ Support All Wales Meeting in
group Sept 2006

4.2 Ensure practitioners ◆ Link with agency SMB meetings SMB members Ensure all relevant
in all relevant training officers and throughout staff aware of
agencies are plans year MAPPA MAPPA
sufficiently aware Co-ordinator
of MAPPA

4.3 Identify and support ◆ As above Dec 2006 SMB members Improved
training needs of processes and
key workers in MAPPA contributions to
MAPPA agencies Co-ordinator MAPPA meetings

13
LAY ADVISORS Section 8

In January 2005, two Lay Advisors to the North Wales MAPPA SMB were appointed by the Home
Secretary to oversee the work done by the statutory authorities. The final words in this report are their
comments about their roles and perspective on the work done in this area:

Lay Advisor’s Report

Let us remind ourselves what the two main tasks of lay advisors are...The first is to monitor
the arrangements MAPPA have in place and the second is to help maintain and improve links
with the community.

In order to monitor the arrangements MAPPA has in place we need to be clear what its
fundamental purpose is. Its purpose is to ensure the public’s safety by managing the risk posed
by confirmed and convicted dangerous offenders, the management process has also to be
rooted deeply in the principals of Human Rights. Can we as lay advisors with hand on heart say
that in our opinion this is happening in North Wales. Having sat in on a number of Level 2 and
3 meetings we believe that we can give the public the assurance that the inter agency process
is working efficiently. However we do have concerns about human resources and funding as
more and more offenders are apprehended and some at least eventually will fall into the
MAPPA net.

Finally, turning to improving links with the community, something that both the Home Office
and North Wales SMB are very keen for lay advisors to be involved in, should move forward
with hopefully some useful initiatives in the next 12 months. As always what lay advisors are
able to do is tempered by the constraints of resources and time, for all we do is on a voluntary
unpaid basis.

Alun Jones

Margaret Batty

14
CONTACTS Section 9

Matthew Driver Chair of North Wales MAPPA SMB


Assistant Chief Probation Officer and overall Probation responsibility for MAPPA
North Wales Probation Area
Alexandra House
Abergele Road
Colwyn Bay
LL29 9YF
Tel: 01492 513413

Gaynor Barton
MAPPA Co-Ordinator
North Wales Probation Area
25 Conway Road
Colwyn Bay
LL29 7AA
Tel: 01492 530600

Roz Wilsher
Public Protection Co-ordinator,
North Wales Police
Headquarters
Glan y Don
Colwyn Bay
LL29 8AW
Tel: 01492 511193

15