North Wales


Multi Agency Public Protection Arrangements Annual Report
2005 - 2006


Section 1 2 3 4 5 6 7 8 9 Foreword
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Page 1 2 3 4 8 11 12 14 15


Key Achievements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . How the MAPPA operate in North Wales Statistical Information Strategic Management Board SMB Business Plan 2006/07 Lay Advisors Contacts

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Making our communities safer and reducing re-offending is our highest priority and one of our biggest challenges.That is why the work undertaken through these multi-agency public protection arrangements (MAPPA) is so important. The supervision and management of sexual and violent offenders who pose the highest risk of serious harm, whether in the community or in custody, is complex and challenging; and is an aspect of public service where the public rightly expects all reasonable action to be taken. Although we have made significant progress in the last five years with the development of MAPPA across England and Wales, the review this year of a number of tragic incidents where people have been murdered or seriously injured reminded us of the importance of reviewing performance, improving practice and learning lessons. It is vital that these tasks are undertaken by the probation, police and prison services, as well as by those other agencies that contribute to the assessment and management of offenders. The publication of MAPPA Business Plans by each Area in this year’s annual reports offers a helpful and necessary programme of local development and review and must lead to enhanced practice. It will be essential that this progress is transparent and shared with local communities.

Section 1
In addition to this, however, it is important that no opportunity is missed to consider other measures that will further enhance public safety.That is why we are undertaking the Child Sex Offender Review, to look at how a particular group of offenders, who provoke anxiety for many, are best managed in the community.The review is consulting a wide range of practitioners and key stakeholders including the MAPPA lay advisers, and will report around the end of the year. Finally, in commending this report to you, I want to take the opportunity to thank all those involved locally in working with sexual and violent offenders, or in ensuring that these arrangements are fit for purpose.Where MAPPA is working well it is based on maintaining high professional standards and effective multi-agency collaboration in the delivery of robust risk management plans. While it is not possible to eliminate risk entirely, where all reasonable action is taken the risk of further serious harm can be reduced to a minimum and fewer victims will be exposed to repeat offending. Gerry Sutcliffe MP Parliamentary Under Secretary of State for Criminal Justice and Offender Management



Section 2
and local concerns have been raised in respect of Approved Premises in our area run by the Probation Service. This report describes some of the work done by Police, Probation and Prison staff working in collaboration with many other agencies across the area to manage the risk of harm being caused to others by people living in our community. Unfortunately, this risk can never be eliminated, but we are confident that the Multi Agency Public Protection Arrangements which have been working well for five years in North Wales, offer the public the greatest possible protection.

Summary of Key Issues
This is the fifth annual report on the work done by agencies in North Wales through the Multi Agency Public Protection Arrangements. MAPPA was set up to ensure there was a shared response to the issues that arise for public bodies dealing with people who have committed serious offences. In the past year there has been a great deal of public attention to this group of offenders. A number of high profile cases – in London, Reading and South Wales – have attracted media publicity

Carol Moore Chief Officer North Wales Probation Area

Richard Brunstrum Chief Constable North Wales Police

John May Wales Area Manager HM Prison Service



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. N 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. 2005/06 has been a year of consolidation following the changes brought about by the Criminal Justice Act 2003. The number of offenders managed through MAPPA has shown a small increase. Much has been achieved through a collaborative approach involving agencies with a ‘duty to co-operate’. As such, the emphasis in this section this year is on how we are doing things better: N The VISOR (Violent Offender and Sexual Offender Register) database has been introduced across North Wales Police. N North Wales Probation Area has undergone a structural re-organisation in response to the N Finally, many examples of good collaborative work can be evidenced. This includes: O the close monitoring of individuals immediately after they have been released from prison O the use of clear and strict conditions in release licences, properly managed and enforced where required O Working across boundaries – with key agencies in all parts of North Wales coming together to manage individuals whose movement across the area is a feature in their offending and risks of causing further harm to others.


Multi Agency Public Protection Arrangements were introduced in 2001 as a statutory duty on the Police, Probation Service and (from 2003) the Prison Service. They require that offenders falling into three categories are subject to oversight: N Offenders who have committed a sexual offence that requires them to register their details with the Police. N Offenders who have been convicted of a sexual or violent offence and been sentenced to a term of imprisonment of 12 months or more.

Section 4

N Any other offender with a current or past conviction for a sexual or violent offence whose behaviour gives rise for concern.

Who Does What?
The Police, Probation and Health Authorities in North Wales all divide the area into three “divisions”:Eastern Western Central Flintshire and Wrexham Ynys Môn and Gwynedd Conwy and Denbighshire

MAPPA follows the same boundaries.


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:-

Section 4

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”.



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. 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. 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.



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

Gwynedd/Mon Youth Offending Team Wrexham Youth Offending Team Flintshire Youth Offending Team

Conwy/Denbighshire Youth Offending Team

Conwy County Borough Council Isle of Anglesey County Council Gwynedd Council Denbighshire County Council Flintshire County Council Jobcentre Plus

Wrexham County Borough Council

Clwyd Alyn Housing Association Cymdeithas Tai Clwyd Cymdeithas Tai Hafan Tai Eryri Serco Monitoring

North Wales Housing Association



Section 5

1. Category 1 MAPPA offenders : Registered Sex Offenders (RSO)
i) The number of RSOs living in North Wales 2004/05 389 2005/06 395 +2%

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 Western Central : : : 158 104 133 2004/05 17 2005/06 6

ii) The number of RSOs cautioned or convicted for breaches of requirement

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 8 1 12 2005/06 5 0 5 Applied For: Interim Orders Full Orders:

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 (a) Applied for (b) Interim Notification Orders granted (c) Full Notification Orders imposed by the courts in your area 2004/05 0 0 0 2005/06 0 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 0 0 2005/06 0 0 (a) Applied for (b) Imposed by the courts


Section 5

2. Category 2 MAPPA Offenders : Violent and Other Sexual offenders
vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act 2003) 2004/05 86 2005/06 127 +48%

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

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.

viii) Identify how many MAPPA offenders in each of the three categories have been managed through MAPPP (Level 3) and through local inter-agency risk management (Level 2)

4. Offenders managed through Level 3 (MAPPP) & Level 2 (local inter-agency management)
2004/05 2005/06 Level Level Level Level 2 3 2 3 102 79 136 5 7 2 102 115 143 7 12 2

RSO (Cat 1) V & O (Cat 2) Oth O (Cat 3)



Section 5

xi) Of the cases managed at levels 3 or 2, how many whilst managed at that level: (a) Were return to custody for breach of licence? (b) Were returned to custody for breach of a restraining order or sexual offences prevention order? (c) Were charged with a serious sexual or violent offence?



Level Level Level Level 2 3 2 3 25 0 0 5 0 0 51 2 1 6 0 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.


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: N Public concerns in respect of Probation Approved Premises N Developing links with other key partners N Supporting and developing robust systems for identifying MAPPA cases N Mentally disordered offenders N Media/press issues The Strategic Vision 2006-09 and Business Plan for the Board are set out below:-

Section 6

Aim of the North Wales Strategic Management Board
North Wales Strategic Management Board has three key aims:N Protecting the public by managing the risk posed by dangerous offenders in the community and thereby reducing the number of victims of serious sexual and violent crime. N Developing public confidence in agencies working with dangerous offenders and thereby reducing the fear of serious sexual and violent crime. N Encouraging collaboration between agencies working with dangerous offenders and thereby ensuring all decisions taken are based on the best informed assessment of the potential risk of harm.

The Three Year Strategy
Each year the Strategic Management Board will publish a Business Plan in line with national and local priorities and these strategic aims. For the next three years the key themes of the Plan will be:2006-07 2007-08 2008-09 Developing the MAPPA infrastructure Building public confidence through community engagement Broadening and measuring the effectiveness of the Board’s work and of each Agencies’ contribution.


Strategic Aim 1. MAPPA Infrastructure Development July 2006 Responsible Authority lead Officers MAPPA Co-ordinator Delivery Plan Milestones Resources

Section 7


N Review existing 1.1 Consolidate arrangements arrangements for MAPPA between co-ordination Responsible and administration Authority members N Introduce new 1.2 Improve record keeping of MAPPA procedures for activity in line with referral and national guidance recording of meetings

Better integration of arrangements

April 2006

Greater consistency and accountability Improved information sharing

1.3 Implement revised N Review and update national guidance procedures and protocols 2. Monitoring and Evaluation N Produce draft report N Publish final report N Produce regular report N Respond to SMB requests in respect of developing trends

N Implement fully VISOR when available

By March 2007 July 2006

All Responsible Authorities

MAPPA SMB Chair Consistency and Co-ordinator with national arrangements

2.1 Publication of Annual Report 2005/06

April 2006 Sept 2006

MAPPA SMB Chair Increased public and Co-ordinator awareness Greater awareness and ownership of information by SMB Greater confidence that arrangements are effective

2.2 Provide SMB with quarterly analysis of MAPPA activity

MAPPA SMB meetings Co-ordinator throughout year Dec 2006 Sept 2006 SMB Sub Group MAPPA Co-ordinator

2.3 Develop quality assurance arrangements

N Review of thresholds, attendance and agency contribution N Review processes


Strategic Aim 2.4 Introduce arrangements for case reviews 3. Communication and Strategic Partnerships Responsible Authority lead Officer SMB members SMB members Delivery Plan N SMB agree criteria N Delivery reports to SMB Milestones Resources

Section 7

Outcome Improve accountability and public reassurance

July 2006 SMB members As MAPPA determined Co-ordinator

3.2 All Wales collaboration

N Develop Responsible July 2006 3.1 Review existing arrangements Authority agreement March 2007 between N Review DtC Responsible Memorandums in Authority members line with new and DtC bodies national guidance N Contribute to initiatives to improve consistency and share good practice Oct 2006

Greater clarity of inter-agency arrangements

Development of All Wales protocols Build groundwork for 2007/08 Business Plan key theme Greater awareness and ownership of information by SMB Ensure all relevant staff aware of MAPPA Improved processes and contributions to MAPPA meetings

N Produce plan for 3.3 Develop media and communication SMB endorsement strategies 4. Training 4.1 Support training and development needs of Lay Advisors

March 2007 SMB members and media/ communication officers

4.3 Identify and support N As above training needs of key workers in MAPPA agencies

4.2 Ensure practitioners N Link with agency in all relevant training officers and agencies are plans sufficiently aware of MAPPA

N Provide continuing SMB meetings SMB members opportunities for Lay throughout Adviser oversight of year MAPPA MAPPA activities Co-ordinator N Support All Wales Meeting in Sept 2006 group SMB meetings SMB members throughout year MAPPA Co-ordinator Dec 2006

SMB members MAPPA Co-ordinator



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



Section 9

Matthew Driver Assistant Chief Probation Officer 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

Chair of North Wales MAPPA SMB and overall Probation responsibility for MAPPA