NORTHAMPTONSHIRE Multi-Agency Public Protection Arrangements Annual Report 2006-2007

NORTHAMPTONSHIRE MAPPA 06/07
All general pictures featured in this report have been used to give a pictorial representation of the work of the MAPPA in Northamptonshire. Models have been used to depict offenders in the Criminal Justice System.

MINISTERIAL FOREWORD

These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the Government’s continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the way the MAPPA work. I want to highlight two of them here. Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents will be able to register a childprotection interest in a named individual with whom they have a personal relationship and who has regular unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption that the offences will be disclosed to the parent. Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that robust performance management is in place. To achieve this, we intend to introduce new national standards, which will ensure a consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the standards. We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always room for improvement. I commend this annual report to you as an indication of the commitment, skills and achievements of the professionals, and lay advisers, in managing and monitoring this essential, often difficult area of business.

Maria Eagle MP Parliamentary Under Secretary of State

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CONTENTS
PAGE 01 PAGE 02 INTRODUCTION UNDERSTANDING THE MAPPA Partnership working Management of Risk Serious Further Offences KEY DEVELOPMENTS HOW THE MAPPA OPERATES Risk Assessments MAPPA Registration Violent and Sex Offender Register Sexual Offences Prevention Orders Disclosure Case History Protecting Children and the Vulnerable Approved Premises

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PAGE 15 PAGE 16 PAGE 22 PAGE 24 PAGE 26

CONSULTING VICTIMS ROLE OF THE AGENCIES INVOLVED CASE STUDIES MAPPA FIGURES THE STRATEGIC MANAGEMENT BOARD The structure Comments from the Chair Lay Advisor comments Key Planning Documents CONTACTS SMB BUSINESS PLANS

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Questions and comments can be sent to: The Lay Advisors (MAPPA) c/o Northamptonshire Probation Area Walter Tull House, 43-47 Bridge Street, Northampton, NN1 1NS

Peter Madison, Chief Constable Northamptonshire Police

Bill McHugh, Chief Officer Northamptonshire Probation Area

Bob Perry Area Manager, HM Prison Service East Midlands Area

01

INTRODUCTION

We are pleased to introduce the sixth annual report, which highlights the achievements and challenges faced by the Multi-Agency Public Protection Arrangements (MAPPA) in 2006 to 2007. There has been good progress in ensuring that Northamptonshire has better partnership working in robustly managing its higher risk offenders. This has been achieved in part by having the MAPPA Unit located with the Police Force’s Dangerous Person’s Management Unit and ensuring there is good information sharing between the Police and Northamptonshire Probation Area. The partners in MAPPA are committed to continuing to play a vital role through the Senior Management Board in developing MAPPA in the county. The Ministry of Justice has set out new standards for the next year and we will aim to build on the achievements outlined in this annual report during this new business year. The business objectives contained in this report reflect the ongoing and significant developments for MAPPA. We are proud to be part of a forward thinking area at the cutting edge of MAPPA development. The sixth annual report coincides with a significant range of developments that have occurred nationally regarding MAPPA. This document therefore includes a national overview of the arrangements as well as featuring local developments and the 2007-2008 Business Plan. This year’s annual report gives a comprehensive review and valuable insight into this high profile part of local protection activity. To improve public confidence in our Criminal Justice System, it is crucial that we are open and transparent in the way we work, and the issues we face concerning the management of resources. There is also information on how we assess risk and communicate across the different agencies, and a range of relevant case histories to illustrate the effective management and supervision of MAPPA registered offenders after their release from prison. This report also sees the inclusion of several staff member profiles to establish a better understanding of the demands and the complexity of this challenging work. The effectiveness of the MAPPA relies on the experience, professionalism and dedication of our staff members. Our management structures and working practices are regularly assessed to ensure that the arrangements are providing the most rigorous and robust measures to protect the public. Peter Madison Bill McHugh Bob Perry September 2007

02

UNDERSTANDING THE MAPPA

PARTNERSHIP WORKING
The Multi-Agency Public Protection Arrangements provide the comprehensive mechanism by which all the relevant criminal justice and partner agencies work together to manage high risk offenders who have often committed violent or sexual offences. The Multi-Agency Public Protection Arrangements (MAPPA) were formally established by the Criminal Justice and Court Services Act 2000, and further strengthened by the Criminal Justice Act 2003. The statutory responsibility for the management of the arrangements rests with the ‘Responsible Authority,’ which includes Northamptonshire Police, the Northamptonshire Probation Area and HM Prison Service, East Midlands Area. The Responsible Authority is supported by a range of organisations, which have been charged with a ‘duty to cooperate’ in the management of MAPPA offenders in the community. These include: Youth Offending Service, Northamptonshire Healthcare NHS Trust, Children’s Services, Housing Authorities and social landlords, Social Services, Social Security and Employment Service departments, and Local Education Authorities. While many such offenders will be sentenced to long prison sentences, and some may never be released, there will be a number of high risk offenders who will eventually return to the community. These high risk cases are assessed and, if considered potentially dangerous, become registered with the MAPPA. Regular meetings are held to assess and discuss the management of cases. This level of co-operation enables the agencies involved to develop specific strategies and individual supervision plans to manage each offender in a constructive, practical way. The supervision plan takes into account the concerns of individual victims and offers the best protection for the general public. Only a very small proportion of MAPPA offenders pose high risks, and these are the individuals who are referred to the high level Multi-Agency Public Protection Panels. Through the MAPPA, potentially high-risk offenders are being assessed and robustly managed in the community. Agencies are now working more closely together to exchange information in order to manage offenders collaboratively.

A SERIOUS SEXUAL OR VIOLENT OFFENCE IS DEFINED AS ONE OF THE FOLLOWING - Murder - Attempted Murder - Arson (where there is an attempt to endanger life) - Manslaughter - Rape - Kidnap/Abduction - Attempted Kidnap/Abduction - Any other very serious violent or sexual offence - Armed robbery (defined as robbery involving a firearm) - Assault with a deadly weapon or hostage taking - Any other violent or sexual offence where the offender/offence is likely to attract significant media interest, or which raises wider issues of national interest.

03

UNDERSTANDING THE MAPPA

MANAGEMENT OF RISK Offenders who are registered with the MAPPA are divided into three categories of risk. The management of the potential risk they pose to the public is assessed by using a three tier system. For example, the cases assigned to Level Two will require the involvement of more than one agency. These assessments are regularly reviewed.

THREE CATEGORIES OF RISK Category 1 - All sex offenders in the community who are required to register with the Police. From April ’06 to 31st March ’07 there were 355 Registered Sex Offenders in Northamptonshire, a rise of 11 registrations compared to the previous year’s figure. A cumulative effect can be expected as registration periods are deliberately lengthy. Category 2 – All violent and non registered sex offenders sentenced to 12 months or more imprisonment including mental health orders. From April ’06 to 31st March ’07 there were 167 offenders in this category in Northamptonshire.

THREE LEVELS OF RISK MANAGEMENT Level 1 - Ordinary Risk Management: low/ medium risk cases are usually managed by a single agency such as the Probation Service, although cases may still involve inter-agency communications.

Level 2 - Local Inter-Agency Management: high risk cases which are assessed by the Responsible Authority as requiring the active involvement of more than one agency to effectively manage the risk posed by the offender. Level two meetings are held weekly.

Category 3 - ‘Other Offenders’, who have been referred to MAPPA, have been assessed by the Responsible Authority as posing a risk of serious harm to the public. From April ’06 to 31st March ’07 there were 16 offenders in the third category in Northamptonshire.

Level 3 - Multi-Agency Public Protection Panel Management: high/very high risk cases assessed by the Responsible Authority as “the Critical Few”. Only a very small proportion of MAPPA offenders pose a high/very high level of risk, and these are the ones who are referred to the MultiAgency Public Protection Panels (MAPPPs), which deals with the most complex and dangerous cases. It meets monthly in Northamptonshire and requires partner agencies working together at a senior level. Of these only a very small proportion - less than 1 % - are charged with a further serious offence.

04

UNDERSTANDING THE MAPPA

IF A SERIOUS OFFENCE OCCURS

IMPROVING PRACTICE

The MAPPA ensures that the highest priority and associated resources are directed to offenders who have been assessed as presenting the greatest risk of committing further serious offences. Agreed actions can include appropriate levels of supervision and surveillance, accommodation, and support measures, such as drug misuse treatment, to minimise the potential risk of re-offending. However, despite all the steps that are taken a number of offenders may still go on to commit another offence. There may be other offenders, assessed at a lower risk category because they have not previously committed a very serious sexual or violent offence, who go on to commit a further offence of a more serious nature. An offender is responsible for their own actions. The risk management measures that are instigated by the MAPPA specifically hold the offender to account, and seek to strengthen their personal responsibility for their behaviour. An element of Probation supervision is to work with offenders to enable them to understand the consequences of their actions, and to motivate them to lead lawful lives.

If a MAPPA registered offender is charged with a serious offence, the management of their case is scrutinised to see if any lessons can be learned for the future. If an offender seriously re-offends whilst being supervised by the National Probation Service, a mandatory procedure is followed to review how the case has been managed. If a high-risk sex offender at MAPPA Level 3 or 2 is convicted of a serious offence, and the Probation Service’s procedure does not apply, the MAPPA Strategic Management Board may seek a review of how the case was managed. The Strategic Management Board, which oversees all three operational levels of the MAPPA, will adopt a new system of serious case reviews, when the guidance has been finalised from the Ministry of Justice. Northamptonshire MAPPA will also seek to apply the lessons learnt from serious offence reviews carried out in other areas. MAPPA Managers also meet both regionally and nationally to share information and to discuss best practice concerning public protection work. The development of best practice will be further reinforced by the publication of national guidance for implementation in 2007.

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KEY DEVELOPMENTS
(1st April 2006 – 31st March 2007)

NEW PEOPLE

Senior Probation Officer Mike Chantler has been appointed as the new Manager for MAPPA. In the past Mr Chantler has worked as a Senior Probation Officer both within community and custodial settings and as a senior manager within Social Services’ Children’s Departments, a senior manager within the Youth Offending Service and as a serving Police Officer. As the MAPPA manager he chairs the meetings of the Multi-Agency Public Protection Panels, which oversee the most potentially dangerous cases, as well as some of the more complex Level 2 meetings. Mr Chantler commented: “The work of the MAPPA is extremely challenging but very worthwhile because every member knows that their expertise and contribution is making a real difference to public safety. During my career I have worked for other partnership agencies, and I feel this gives me a valuable insight into the objectives and organisational constraints of fellow panel members.”

Bill McHugh was appointed the new Chief Officer of the Northamptonshire Probation Area (NPA) in October 2006. Since joining NPA, Mr McHugh has spearheaded a series of changes that has seen Northamptonshire recently acclaimed as the most improved Probation Area. There are 42 Probation Areas that feature in a national performance table, and Northamptonshire moved upwards by 16 places to No.6. Mr McHugh has previously worked as a Director at Nottinghamshire and Humberside Probation Areas.

The MAPPA Manager is accountable to the Strategic Management Board and reports to the board on a quarterly basis.

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KEY DEVELOPMENTS
The introduction of Offender Management In Custody (OMIC) has established a more joined-up approach to the management of potentially dangerous prisoners who are about to be released, and gives earlier notification to both Police and Probation Services.

PREPARING FOR RELEASE FROM PRISON
The new management scheme OMIC was launched throughout the Prison Service in November 2006. Each prison now has a dedicated unit, which is staffed by Offender Supervisors, working with Probation’s Offender Managers who manage the supervision and progress of individual offenders. It is of note that at this stage of its development OMIC is subject to a phased roll out and that currently it only applies to High Risk Offenders and Prolific Priority Offenders – PPOs. Prisoners serving life sentences and Indeterminate Sentence prisoners are due to come on stream on the 1st November 2007. The role of the Prison Service’s Offender Supervisors involves obtaining relevant information on each identified MAPPA prisoner and prioritising the work that is required with that individual. Police and Probation are notified at least three months prior to the expected release dates of those offenders who have been referred to the Multi-Agency Public Protection Panel (MAPPP), and at least six weeks notification of those being managed at Level 2. Prisoners, who are assessed as presenting the highest risk, are monitored and the information shared with Police and Probation colleagues. This collated data can be used by other agencies when planning a prisoner’s supervision including intervention work to reduce and manage risk on their release. All relevant risk management information provided to the multi-agency meetings will help with planning an offender’s release.

07

KEY DEVELOPMENTS

MAPPA REVIEW
Northamptonshire remains committed to developing “Best Practice” and has embarked on a comprehensive review of MAPPA’s development and operational processes. The review aims to further strengthen multiagency support, establish a single point of contact with other partner agencies, and ensure that procedures are sufficiently robust to maintain partner/public confidence in the effectiveness of Multi-Agency Risk Management.

POLICE REVIEW
From the perspective of Northamptonshire Police, the agenda for dealing with offenders and the protection of vulnerable persons incorporates: - Domestic Abuse, - Sex Offender and Dangerous Person Management, - Missing Persons, - Child Abuse. There is a strong commitment from Northamptonshire Police to provide the highest level of service that is possible for these categories and types of incident. As a part of that ongoing commitment, the Police are currently undertaking a review of service delivery in the county and a feasibility study to establish if: - services can be delivered in a way that further reduces levels of harm or risk, - offenders committing these types of crimes can be managed in a more robust manner with other partners involved inside and outside of the Criminal Justice System.

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KEY DEVELOPMENTS

MARAC - The focus of the work is to

protect victims of domestic violence who are assessed as being at a high risk of repeat victimisation.

PROBATION INVOLVEMENT WITH MULTI-AGENCY RISK ASSESSMENT CONFERENCE
The Multi-Agency Risk Assessment Conference (MARAC) is a new initiative that is part of the Specialist Domestic Violence Court Programme (Resource Manual March 2006). This special programme is supported by the Ministry of Justice, Crown Prosecution Service, Her Majesty’s Courts Service, and the Department of Constitutional Affairs. The focus of the work is to protect victims of domestic violence who are assessed as being at a high risk of repeat victimisation. The permanent members of MARAC include the Probation Service, Police, Social Services, Health, Housing and Education.

MARAC facilitates the following aims: - To share information to increase the safety, health and well-being of victims - To determine whether the perpetrator poses a significant risk to any particular individual or to the general community - To construct jointly and implement a risk management plan that provides professional support to all those at risk and that reduces the risk of harm - To reduce repeat victimisation - To improve agency accountability - To improve support for staff involved in high risk domestic violence cases.

It is envisaged that a MARAC meeting is likely to be once every 4 weeks, but meetings may be increased to fortnightly if the caseload increases. An emergency MARAC will be convened when required. Representatives who are also sometimes invited to attend include: - Mental Health, - Homelessness Team, - Drug/Alcohol Services, - CAFCASS, - NSPCC.

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HOW THE MAPPA OPERATES
The operation of MAPPA relies on its contributing agencies to carry out accurate risk assessments. Each agency will use a risk assessment tool or process that informs the management of that offender. RISK ASSESSMENTS
When an agency has concerns relating to an offender - who meets the criteria - they can refer to the MAPPA. At this stage a full risk assessment is undertaken. The Probation Service and Prison Service use the Offender Assessment System, OASys, which looks at an offender’s criminal history, current circumstances and contains a section to assess the potential risk of harm to others. This document is continuously reviewed to reflect changes in circumstances and behaviour, which may increase or decrease risk of harm. ASSET is an assessment system used by the Youth Offending Service. The Probation Service also uses the Risk Matrix assessment tool in relation to offenders convicted of sexual offences, as do the Police. Risk Matrix looks at particular static (unchangeable) factors in an offender’s history, which research has shown to have a significant link to the likelihood of re-conviction for offending. An additional assessment process is called SARA, which stands for Spousal Assault Risk Assessment (SARA). The assessment has been developed specifically for use with incidents of domestic violence. Assessment tools are used to help inform decisions concerning risk management levels and risk management plans. As well as using these proven assessments systems, the staff involved are required to collect and thoroughly evaluate all information. Staff members must also record and carry out decisions, follow policies and procedures and take all reasonable steps in order to achieve high quality risk assessment and management.

MAPPA REGISTRATION
When a referral is received a special inter-agency meeting will be arranged to look at the case. Key workers, who have contact with the offender, are obliged to attend and line managers are also encouraged to participate. This meeting will consider the assessment of risk, agree the level of risk management required (Level 1, 2 or 3,) and formulate an inter-agency risk management plan. The risk management may include a range of additional licence conditions, which the offender must keep to. These can include: a requirement to reside at Approved Premises managed by the Probation Service, and attend a specified Probation programme to target his/her offending behaviour. There are often conditions that deal particularly with victim issues e.g. no contact with the victim. Conditions for those convicted of sexual offences against children routinely have conditions prohibiting association with any persons less than 18 years of age. The Multi-Agency Public Protection Panel (MAPPP) is involved with the management of risk in the minority of cases requiring multi-agency involvement at a senior level (Level 3) due to the nature of the risk and the resources required to effectively manage that risk in the community. Cases risk managed at Level 2 and at Level 1 are reviewed regularly to consider, if the risk continues to require multi-agency or inter-agency management, the effectiveness of the risk management plan and any changes, which may be required. Case Reviews will benchmark and update against agreed action points established at previous case discussions. Risk management plans will then be reassessed to determine the level at which the case currently needs to be managed at.

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HOW THE MAPPA OPERATES

PUBLIC PROTECTION MEASURES
VIOLENT AND SEX OFFENDER REGISTER Northamptonshire Police uses the computer application system ViSOR (Violent and Sex Offender Register), which assists in the monitoring and management of sexual and violent offenders. The system, developed by the Police Information Technology Organisation (PITO), was introduced in May 2005. The next stage is to further develop the system so that the Police can share all information nationally regarding dangerous and sexual offenders with the Probation and Prison Services. This information will be available 24 hours a day, 365 days a year. It is anticipated that ViSOR will begin to be rolled out to Probation and the Prison Services later in 2007. Northamptonshire Police has now updated ViSOR with details of all the Registered Sex Offenders in the county, together with all (MAPPA Level 3 offenders). All records are maintained to a corporate standard and the database has already proven itself as an effective means to transfer information on these individuals between Police Areas.

ViSOR is now being used to record the personal attendance of Registered Sex Offenders at Police stations to register their addresses, and any changes. The system also logs home visits undertaken by Police Officers. The efficient use of VISOR as a research and pro-active tool in the management of violent and sex offenders is an integral part of the overall management of information in this area of work.

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HOW THE MAPPA OPERATES

PUBLIC PROTECTION MEASURES
SEXUAL OFFENCES PREVENTION ORDERS The Sexual Offences Prevention Order (SOPO) can be imposed by the Courts at the time of sentence, or on an application by the Police after consideration by the Multi-Agency Public Protection Panel. The SOPO requires an offender to register with the Police and obey prohibitions designed to protect the public. Failure to keep to these requirements can result in a prison sentence of up to five years. Increasingly the Police, in conjunction with MAPPA, will consider applying to the court for orders to be made on specific offenders. The use of SOPOs provides additional protection to the public as the orders provide the legal status for the Police to monitor the movements and contacts of offenders subject to this control. Active pursuit of orders in appropriate cases is a method of increasing the ability to manage the risk and protect communities. DISCLOSURE Disclosure is another important tool used to manage the risk posed by these offenders. There are occasions when information is released on an offender in the interest of public protection. This decision is only taken when other protection measures appear limited. If disclosure is required the following principles are followed: - Actions are proportionate to risk, - The individual poses a risk of serious harm, - No other practical means exist to protect the public, - All risks are considered, - Disclosure is to the right person, - The person receiving the information knows what they need to do in order to provide effective public protection.

A DAY IN THE LIFE OF …. A Police Officer in the Dangerous Person Management Unit “I am playing an important part in monitoring potentially dangerous individuals. No one day is ever alike and they are always full of activities. Part of my work involves visiting the homes of sex offenders. These visits may take between 30 minutes to two hours depending if it is an initial visit or a routine call. I have to update the ViSOR database concerning my visits and include information from meetings. I liaise closely with the Probation Officers who supervise and work with the Registered Sex Offenders whom I manage. This liaison work sometimes involves joint visits with Probation staff to see offenders when issues arise.”

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HOW THE MAPPA OPERATES

CASE HISTORY

Report in relation to a Level 3 registered offender

HISTORY: Mr S was due to be released from prison following a lengthy custodial sentence for robbery, threats to kill, and possessing an offensive weapon. While in the company of another male, Mr S had set upon his victim because he believed the man to be a homosexual. The victim was robbed of his property, stripped, doused with petrol, beaten with a cricket bat and Mr S threatened to set him alight. Mr S had previously served a long custodial sentence for stabbing and robbing a man, who he also thought was a homosexual. On that occasion he caused serious injuries. At the time of both offences Mr S stated that he had consumed copious amounts of alcohol and controlled drugs, namely amphetamines. Drugs and alcohol are trigger factors in his offending. Whilst in custody, Mr S had been assessed as having severe behavioural and mental health issues. However, his medication had provided some control. Whilst in custody Mr S formed a relationship with a woman called Ms T, who has a young child. They expressed a wish to live together. On the same day he left prison he was returned to custody for breaching all his licence conditions. Mr S remained registered at MAPPP Level 3 whilst in prison, and this allowed the panel to fully research his mental health and his relationships with his family and Ms T, of whom very little was known. It was not possible to place Mr S in Approved Premises upon his release, and because of the background work that had been completed, it was felt that he should stay at a relative’s address with stringent Licence conditions placed upon him. These included an overnight curfew. Regular MAPPP meetings have ensured that a referral to Children’s Services was made regarding Ms T’s child. A case conference was held in early January and the child has been placed on the At Risk Register. This process is running parallel to the MAPPP with regular updates on progress conveyed to the appropriate forum.

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HOW THE MAPPA OPERATES

PROTECTING CHILDREN AND THE VULNERABLE Not every sex or violent offender presents a direct risk of harm to children. But if children or vulnerable adults have been harmed or abused, whether by someone they have known or by a stranger, it is important that steps are taken to both protect the victim, and place restrictions on the offender so they have fewer opportunities to offend again in the future. If someone is convicted of a listed offence involving children that results in a custodial sentence of 12 months or more, the Courts can impose a Disqualification Order. The order bars that person from taking paid or voluntary work in a number of regulated positions that are likely to give access to children. A Disqualification Order also applies to any position that involves supervising or managing an individual in their work in a regulated position such as a member of a school governing board. This restriction lasts for life unless the offender successfully applies to a tribunal for the order to be lifted by demonstrating that they no longer present a risk to children. A disqualified person commits an offence if they transgress the order. LICENCE CONDITIONS When an offender has been given a sentence of 12 months imprisonment or more and the time for release on licence is approaching, attention will be given to conditions that can be added to the licence. For high risk offenders this will usually be discussed and reviewed at a MAPPA meeting. Licence conditions to protect children can prohibit: - Undertaking work or other organised activity, which will involve a person under a specified age, and - Using a computer or other electronic device for the purpose of accessing the Internet, have access to messaging services or any other on line message board/forum or community.

These conditions are designed to afford protection to both known children who may be at risk, and to protect children in general. Where it is a specific child who could be at risk, the licence conditions and the MAPPA risk management plan will complement and reinforce the Local Safeguarding Children’s Arrangements. Where there is evidence that a relevant offender is acting in a way to suggest there is an increasing risk to children, the Police can apply to the court for a Sexual Offences Prevention Order.

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HOW THE MAPPA OPERATES

APPROVED PREMISES Approved Premises are an important resource for the Criminal Justice System. An Approved Premises is managed by the Probation Service and was previously known as a Bail and Probation Hostel. Northamptonshire has one Approved Premise that serves the county. Approved Premises provide controlled accommodation for offenders under supervision; some of the residents will have been released on licence. The facilities provide a greater degree of supervision than is possible in most other forms of housing and give opportunities to both monitor and support offenders who move on to independent living. The Approved Premises provides a significant oversight of offender activities and contacts for the Police and Probation Service. This overview provides useful opportunities for the agencies to assess the offender’s behaviour, motivation and compliance with supervision. Approved Premises are a vital and pivotal part of the public protection process. As well as helping to monitor the offender’s compliance with supervision and licence conditions, residency at a hostel is also covered by clear rules and standards of behaviour. This includes not acting in a way as to cause disruption within the premises or in the neighbourhood. Failure to comply with the hostel rules, such as not returning at specified times, renders the offender liable to sanctions, including recall to prison if they are on licence.

A DAY IN THE LIFE OF …. An Approved Premises Officer

“As a member of the team, I perform regular hostel checks throughout the day. This serves a dual purpose as I can monitor the residents we have concerns about, and I will check that individuals do not spend all day in their rooms. As an Approved Premises Officer I play a pivotal role in monitoring the potential levels of risk of the residents. This side of my work involves: - Monitoring residents’ curfew and signing in times, - Performing random drug tests, when applicable, - Challenging anti-social behaviour, - One to one working with individuals to deal with any issues or incidents that may arise. If a resident fails to be present for the start of their curfew or signing in, I would inform either the Offender Manager, hostel management, or the Director on call during out of hours and weekends.”

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CONSULTING VICTIMS
Victims are entitled to be: - Kept informed of the stages of sentence being served, - Asked if they would wish to have specific conditions added to the offender’s eventual release, - Invited to have their views made known to the Prison Governor or Parole Board who make decisions about the offender’s release, including extra conditions that can be placed on them, - Informed that the offender is being released or told of when a hospital order is coming to an end, - Notified of any conditions that affect them or their family.

The Probation Service has a duty to contact the victims of any violent or sexual offender who has been given a custodial sentence of 12 months or more for a relevant offence. Victims should be contacted within 56 days of sentence being imposed. This responsibility has been extended to cover the victims of offenders who have been detained under a Hospital Order due to mental illness or other disability at the time of their offending. The circumstances can vary widely. Some victims may not have known the offender, whilst others may have been acquainted with the perpetrator in some way. Other victims may have been in a close or trusting relationship, which the offender has abused or betrayed.

Conditions imposed on offenders to protect victims include: not approaching or communicating with named person(s) without the prior approval of the supervising officer and/or the appropriate Social Services Department, and avoiding a specified area without prior approval. Information from victims can also help with the assessment of an offender’s risk so that not only they, but other people can be better protected from harm. Victims of crime are entitled to be informed if the offender is discussed at the Multi-Agency Public Protection Panel. The panel has acted on concerns of victims concerning licence conditions, which prevent an offender from entering specific areas and prohibiting contact. Northamptonshire Police has acted to protect victims and reduce their fears by the installation of alarms in victims’ homes. Victim Contact Officers link victims to other victim support services, which operate separately from the Probation Service. In April 2006 a new code of practice was introduced across the Criminal Justice System to protect and serve the needs and interests of victims. It is for the victim, or the victim’s family, to decide whether they wish to take up the service that is offered. If they decline, the victim can request contact at a later stage.

Specialist Victim Contact Officers deal exclusively with the victims of crime, and have no direct contact with offenders. The officers make extensive efforts to locate victims to ascertain if they wish to be kept informed. If a victim wishes to engage with this service, the officer will arrange a meeting at a time and place convenient to them. The officer can then feedback their views and concerns.

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ROLE OF THE AGENCIES INVOLVED

NORTHAMPTONSHIRE POLICE
The local Dangerous Persons Management Unit (DPMU) is staffed by a Detective Sergeant, four Detective Constables, two Police Constables, two Detective Support Officers and an Administrator. The DPMU role is two-fold: first the risk assessment of newly released sex offenders using an actuarial risk assessment tool, and by examining a number of dynamic risk assessment factors. ACTUARIAL RISK FACTORS can refer to an individual’s offending history, which cannot be altered. DYNAMIC RISK FACTORS can be changed and include basic skill deficits, substance abuse, and finding and maintaining work. The Detective Sergeant from the DPMU and the Detective Superintendent Director of Intelligence from Crime and Community are core MAPPA Panel Members. Community-based Police Inspectors and Sergeants routinely attend Inter-Agency Risk Management Meetings in their local areas. Domestic Violence Officers also attend both Level 2 and Level 3 meetings concerning cases in which they are involved. In Northampton and Corby these officers are based at the Sunflower Centres. The DPMU supports the local Basic Command Unit’s objectives by providing advice on the investigation of relevant crime, and the application of Sexual Offences Prevention Orders. The unit continues to drive forward new practices and ideas, including the development of a Dynamic Risk Assessment Tool (DRAM) for use in initial visits. The Police’s DRAM considers the actions which led to the crime, the offence and its consequences, as well as the offender’s family relationships, employment status, accommodation, leisure pursuits and other factors. A further new initiative includes a weekly Risk Assessment Meeting (RAM), as well as a number of planned Police training seminars later this year. There are now designated Inspectors with responsibility for Police participation at Inter-Agency (Level 2) MAPPA meetings in respect of Category 2 and 3 offenders.

Secondly, officers working within this unit visit Registered Sex Offenders at home to get a realistic picture of their circumstances to be able to accurately assess continued risk factors. The officers are then able to share relevant information with other agencies such as Probation and Social Services. It is commonplace to have joint visits between the Police and other key agencies, which have involvement with offenders, when it is appropriate and will support and inform the risk management plan. This work covers the: - Covert surveillance of offenders, - Supply of alarms to potential victims, - Disclosure of information to members of the public, - Provision of support and advice to offenders.

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ROLE OF THE AGENCIES INVOLVED

NORTHAMPTONSHIRE PROBATION AREA

HM PRISON SERVICE
The Prison Service has a crucial role in the field of public protection by keeping offenders in custody; assessing the risk that the offender presents, helping them to address the causes of their offending behaviour, and undertaking other work to assist their successful resettlement. In November 2006 the new initiative entitled Offender Management in Custody (OMIC) was introduced throughout the Prison Service. Dedicated units have been established within each prison and are staffed by new Offender Supervisors. (See Key Developments section) The Prison Service is represented on the Northamptonshire MAPPP by a senior manager at a local prison. The protocol agreed by the Prison Service in the East Midlands Region and the SMB, sets out the expectations in terms of information sharing and level of attendance at MAPPA meetings.

The Probation Service has responsibility for the management of offenders over 18 years of age in the community and on licence after release from prison. Community sentences and post release licences are rigorously enforced with breaches resulting in court action or recall to prison. The National Public Protection Unit oversees the supervision of sex offenders and offenders assessed as high or very high risk of harm. Violent offenders and sex offenders sentenced to imprisonment of 12 months or more can be subject to additional licence conditions upon release from prison. The conditions aim to reduce the risk they pose to the community e.g. prohibit contact with victims. The Northamptonshire Probation Area delivers the Community Sex Offender Groupwork Programme for men who have committed sexual offences. The 240 hour long programme has been developed to enable the participants to gain an understanding of their offending, identify the triggers and develop strategies to control their abusive behaviour. The supervising Offender Manager normally attends all MAPPA meetings to discuss the case for which they have accountability or involvement.

Michelle Dyne Head of Offender Management, HMP Ryehill

There are no changes to release dates or arrangements without prior consultation with Police and Probation Services. Within the county boundaries of Northamptonshire there are three separate prisons. These are: - HMP Wellingborough (Cat. C) - HMP Onley (Cat. C) - HMP Ryehill (Cat. B). A number of offenders who originate from Northants are held in other prisons throughout the country. Prisoners on remand are located at HMP Woodhill.

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ROLE OF THE AGENCIES INVOLVED

MENTAL HEALTH SERVICES

Northamptonshire Healthcare NHS Trust and seconded Social Care staff provide a variety of services to the population of Northamptonshire. Each of the multi-disciplinary specialist teams represents a range of professions, including nurses, doctors, social workers, occupational therapists and psychologists. Due to the complexity and range of statutory and non-statutory responsibilities within the Trust and Social Care staff, there are two core panel members representing Psychiatric Services. One of them is the Community Service Manager for the countywide Mentally Disordered Offenders’ Services, including the Criminal Justice and Community Forensic Team, and the other is the County Manager for Approved Social Work (A.S.W.) Service. The Community Service Manager also represents all clinical services that are provided by the Health Care Trust. The Mentally Disordered Offenders’ Service pools the expertise of Health and Social Care professionals who work with a range of mentally disordered offenders in a variety of settings. This includes: community enhanced CPA, in-patients, prisoners on remand and sentenced, and offenders being supervised by the Probation Service and Youth Offending Service. The service works closely with its main stakeholders in the Criminal Justice and Mental Health arena and is skilled in mental health risk assessments, and care delivery. The service can identify the links both practical and theoretical between mental health and offending. Both panel members are very experienced in their own respective areas of work, but because of the overlap in several aspects of their individual specialism, they make a significant contribution to the panel regarding local and regional facilities, mental disorders, legal aspects and risk management. Senior managers within the trust recognise the importance of their representatives on the MAPPA Panel and endorse continued attendance.

19

ROLE OF THE AGENCIES INVOLVED

HOUSING

Better support and management of offenders living in their own accommodation is expected to highlight problems before they become major issues that would end in the termination of an offender’s tenancy.

Northamptonshire has seven Local Authorities. The Local Authorities have each identified a MAPPA contact within their own housing departments to attend the MAPPP . The provision of suitable accommodation is necessary for the effective management of MAPPA offenders, but this has to be balanced with the key priority of protecting the public. In some instances the offender will have a history of aggression and anti-social behaviour towards housing providers or have been convicted of arson in the past. Given these circumstances, the shortage of appropriate housing is understandable and has been a prime area of concern for the MAPPA. Accordingly this is seen as a priority area for development which can support the wider aspects of the risk management plan. A working party has examined how systems can be further developed to accommodate MAPPA offenders appropriately and has linked in with the Supporting People initiative. A development funded by the Supporting People programme has been accepted which will involve designing individual packages of support for high-risk offenders. This will entail the employment of two full time workers to support offenders and work within the framework of the risk management plans identified through the MAPPA process. These workers will be located within the Probation offices and have communication access to effectively link up with the Offender Managers. This initiative has gone out to tender and it is anticipated the scheme will be launched by September 2007. HOUSING SERVICES : Local Housing Authorities have two functions that relate to the resettlement of offenders: the allocation of long-term accommodation and the provision of housing assistance for people who are homeless. The priority need groups are specified in legislation and can include: families with dependent children and households that include a pregnant woman or someone who is vulnerable for some reason. A person, who is vulnerable as a result of time spent in custody, has a priority need for accommodation under the homelessness legislation. Authorities must secure accommodation until a settled home becomes available, or other circumstances bring the duty to an end. Clearly, given the importance of accommodation in the resettlement of offenders and in the assessment and management of risk, Local Authority housing representatives can make an important contribution to the MAPPA. Their advice about accommodation, the procedures by which it is allocated, and the suitability of particular housing stock provide a valuable contribution.

20

ROLE OF THE AGENCIES INVOLVED

HOUSING
Local Authorities provide advice about housing options including council housing, housing associations and private lettings. The councils also offer information to individuals making enquiries concerning housing applications, including those looking for transfers or mutual exchanges. The Housing Register does not prevent anyone, regardless of tenure or location within the UK, from joining the waiting list. An applicant’s circumstances are assessed using the Local Authority Housing Allocations & Lettings Policy. LOCAL AUTHORITY HOMELESS SERVICES: Advice on all aspects of housing is provided. The aim is to give advice and assistance in the short term and to ensure tailored support is achievable in the long term. The primary client group is homeless families with support needs. The secondary client group is single homeless people with support needs. There are no restrictions placed upon age range, ethnicity or culturally specific groups and/or household types. Any exclusion is determined by the council housing department on a case by case basis and in line with current legislation, policies and procedures. The Homeless Legislation of 2002 and the Code of Guidance are used by housing staff to assess homeless applicants.

YOUTH OFFENDING SERVICE
The Youth Offending Service manages young offenders who may present a risk to the public and who may have been damaged by childhood experiences. These experiences can make them vulnerable and in need of protection. The Youth Offending Service undertakes a specialist criminal justice role that cuts across the work of the Police, the Crown Prosecution Service and those agencies involved in safeguarding children and young people. A manager with the Youth Offending Service represents the YOS on both the Senior Management Board and the Level 3 Multi-Agency Public Protection Panels. The YOS is also represented at Level 2 on a case by case basis. The Youth Offending Service holds internal panel meetings that categorise the level of risk. The identification process is via ASSET, the assessment tool used by the YOS. The same process identifies the vulnerability of young people and referrals are made either to MAPPA or through the child protection process, depending on the levels of risk or vulnerability evidenced.
Dave Palmer Unit Manager, Y.O.S.

21

ROLE OF THE AGENCIES INVOLVED

SOCIAL SERVICES
Northamptonshire County Council provides Social Services to the local community. Adults are served by Community Services, while children and their families are served by the Children and Young People’s Service (CYPS). One of the panel members is a Team Manager in the Northampton Referral Team, which is part of CYPS, and his role within the organisation is to manage and oversee child protection investigations as well as assessments regarding children in need. The CYPS works closely with statutory and nonstatutory agencies delivering services to safeguard and promote the welfare of children in the county. The Team Manager provides a link for other MAPPA agencies to Social Workers within CYPS and contributes to the panel from a child protection perspective.

LOCAL SAFEGUARDING CHILDREN BOARD The Local Safeguarding Children Board (LSCB) is the key statutory body that agrees how relevant organisations will co-operate to safeguard and promote the welfare of local children. The LSCB also ensures the effectiveness of the work of individual agencies when working in partnership. Board members sit on the MAPPA Strategic Management Board, which ensures a synergy of purpose.

Bill Cook Team Manager, Children & Young People’s Service

NHS TRUST – SAFEGUARDING CHILDREN REPRESENTATIVE A designated nurse for Safeguarding Children links the panel with Health Services (Community Midwives, Health Visitors and General Practitioners) and with the Local Safeguarding Children Board.

The LSCB replaced the Area Child Protection Committee in April 2006. All agencies will now contribute to the following key outcomes for children: - Be healthy and stay safe, - Enjoy and achieve and make a positive contribution, - Achieve economic well-being. The key focus of the LSCB will be to safeguard children, whilst also contributing to the other key outcomes. Safeguarding and promoting the welfare of children is defined as: - Protecting children from maltreatment, - Preventing impairment of children’s health or development, - Ensuring that children are growing up in circumstances consistent with the provision of safe and effective care, - Undertaking that role so as to enable children to have optimum life chances and enter adulthood successfully.

Pamela Palmer Designated Nurse for Safeguarding Children

22

CASE STUDIES

CASE ONE: PLANNING FOR RELEASE This case history demonstrates the planning that goes into finding an offender suitable accommodation and support. Mr A was sentenced to a number of years in prison for Manslaughter. He was scheduled for release mid 2007. Mr A was transferred to HMP Wellingborough. At this stage some mental health and resettlement issues were identified. Mr A stated that he was unable to return to his home area as he felt at risk from his victim’s family. The home Probation Area, updated with these details, looked into the possibility of transferring him to another area when he was released. Suitable Approved Premises, away from the offender’s home area, was identified. This proposal had to be accepted by the new Probation Area that manages the Approved Premises and there had to be a place available on the offender’s release. Plans were discussed and agreed with Mr A. A sentence planning review board was booked for a date in early 2007. The review meeting was held with the home area Probation Officer, Offender Supervisor and Mr A was present. He agreed to co-operate with a new psychiatric assessment to assess suitability for accommodation in Approved Premises and his risk of harm to the public. Licence conditions were also discussed with the offender. Healthcare advised and a new psychiatric assessment was requested. A further telephone conversation was held with the home Probation Area, and plans were still ongoing for the offender’s transfer and accommodation to an Approved Premises on release. The home Probation Area also contacted the prisoner’s family with regard to follow up accommodation after a period of time at the supervised facility.

CASE TWO: PROVIDING THE RIGHT SUPPORT This case demonstrates how the right support can help an offender to resettle successfully back into the community.

Mr Y is a 62 year old male who was sentenced to a lengthy term for the Rape, and Gross Indecency, of his two daughters. He was registered at MAPPA Level 2. Mr Y pleaded Not Guilty to these offences and maintained this denial throughout. He was released on licence with a condition to reside in Approved Premises away from his home area. Although his victims no longer lived in the location, his ex-wife did. During the court hearing there was evidence that his ex-wife had suffered from domestic violence. There was no other accommodation available, which meant that Mr Y had to return back to his home town. Mr Y, whilst continuing to deny his offence, was compliant throughout his time at the Approved Premises. The Probation Service worked with him to look at his offending, and although this work was difficult, some progress was made in exploring the relationships within the family and his role as a husband and parent. Mr Y was able to purchase a house after the Probation Service approved the property, which was in a location that did not jeopardise his licence conditions. He admitted that he had no daily living skills. His Offender Manager set up a programme of oneto-one cookery and budgeting lessons with the in-house chef. The lessons lasted for a considerable period of time before it was agreed by both parties, that he was ready to leave the Approved Premises and live independently. It was felt that the training had helped secure his successful rehabilitation into the community.

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CASE THREE: MAINTAINING VIGILANCE This case history shows how the supervised accommodation in Approved Premises enable different criminal justice agencies to monitor and check an offender’s behaviour once he has been released from prison. Mr X received a lengthy custodial sentence for sexual offences against females under the age of 18 years. He had not known the victims. Mr X was registered at MAPPA Level 3 and was released from prison on licence with a condition to reside in Approved Premises. Additional conditions and curfews were in place to help reduce the risk that Mr X posed to underage females. Mr X was issued with a warning for returning late and his curfew was amended to 8.45pm to restrict him further. He also received an additional warning for providing a positive drug test for cannabis, indicating an increase in his risk level. Mr X had been misusing drugs at the time of his offence. It was a condition of his licence to report any developing relationships to his supervising officer. There were concerns from the Police Public Protection Unit that Mr X may be visiting a house where young vulnerable teenagers were believed to go. Surveillance was being arranged to try to ascertain if this was happening, as Mr X was very reluctant to provide information about his whereabouts. An off duty Probation Hostel Officer saw Mr X walking with a young female believed to be under 18 years. They were holding hands. She contacted the hostel and the Deputy Manager spoke to Mr X on his return to find out how he had spent the day. He stated that a friend had visited but referred to the friend as ‘he’. The Offender Manager was notified and an emergency two hour recall was instigated. Given the risk that Mr X posed, members of the Public Protection Unit liaised with the local Police and Probation staff to ensure that when the licence revocation appeared on PNC, (Police National Computer) sufficient officers would be dispatched to arrest Mr X and deal with any resistance. Mr X remains in custody.

The case histories featured in this year’s annual report reflect the complexity of the work, and how a partnership approach informs the supervision of offenders by the lead agency.

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MAPPA FIGURES
The figures shown in the pie charts compares and contrasts the number of offenders managed by Northamptonshire MAPPA from 2005-2006 and 2006-2007 within each of the three categories. As mentioned previously in this report the figures indicate a slight increase for categories 1 and 2. Category 3 remains unchanged.

Category 1 MAPPA Offenders: Registered Sex Offenders (RSO)

355

344

Apr '05-Mar '06 Apr '06-Mar '07

Category 2 MAPPA Offenders: Violent Offenders And Other Sexual Offenders (V&OS)

151 167

Apr '05-Mar '06 Apr '06-Mar '07

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Category 3 MAPPA Offenders: Other Offenders (OthO)

16

16

Apr '05-Mar '06 Apr '06-Mar '07

The next MAPPA annual report will incorporate a detailed analysis of data that will include re-offending rates and the recall to custody of MAPPA registered offenders in Northamptonshire. There will also be a summary of national MAPPA guidance. THREE CATEGORIES OF RISK The 2006-2007 Registered Sex Offender figure per 100,000 for Northamptonshire is 57, an increase of 3.51%. The national figure is 60, an increase of 2.67%. Category 1 - All Sex Offenders in the community who are required to register with the Police. From April ’06 to 31st March ’07 there were 355 Registered Sex Offenders, a rise of 11 registrations compared to the previous year’s figure. A cumulative effect can be expected, as registration periods are deliberately lengthy. Category 2 – All violent and non registered sex offenders sentenced to 12 months or more imprisonment including mental health orders. From April ’06 to 31st March ’07 there were 167 offenders in this category. Category 3 - Other Offenders who have been referred to MAPPA and have been assessed by the Responsible Authority as posing a risk of serious harm to the public. From April ’06 to 31st March ’07 there were 16 offenders in the third category.

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STRATEGIC MANAGEMENT BOARD

THE STRUCTURE
The Strategic Management Board (SMB) oversees all three levels of MAPPA. The Board members are all senior managers and officers from the Responsible Authority and Duty to Co-operate agencies. The position of SMB chair in Northamptonshire is currently shared between Police and Probation. The Lay Advisors, as the name suggests, are local residents who bring a community perspective to the SMB discussions.

COMMENT FROM THE CHAIR PAUL FELL

Detective Chief Superintendent Paul Fell

I am delighted to have taken up the joint chair for the Senior Management Board in April 2007. We are confident in building the existing MAPPA structures to widen its scope in dealing with the higher risk offenders in Northamptonshire. This year has seen some significant achievements to set the ground for 2007–2008, where there will be a closer working relationship between the Ministry of Justice, the Home Office and local MAPPA Boards. The implementation of national guidance will provide a clearer framework for improving quality of delivery. This report contains both an update of the business plans for this year 2006–2007 and for 2007–08 where the progress is shown and the vision translated into action.

The appointment of Lay Advisors is in accordance with Section 326 of the Criminal Justice Act 2003. The Lay Advisors have undertaken a comprehensive range of training and attended a national conference. The MAPPA Administrator has responsibility for all of the MAPPA administration and produces minutes of all MAPPA meetings and SMB meetings.

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STRATEGIC MANAGEMENT BOARD

COMMENT FROM THE CHAIR CHRIS GOSS
There are still several major initiatives to take forward during the coming year: the introduction of ViSOR into the Probation Service, further development of the working relationship with St Andrew’s Hospital, and strengthening the participation of MAPPA partners to improve funding arrangements and ultimately increase the MAPPA unit’s capacity.

The SMB is working more closely with the Local Criminal Justice Board. This collaborative approach has seen the launch of the MultiAgency Risk Assessment Conferences (MARAC), and further working links with the Local Safeguarding Children Board. We are delighted that the Chief Executives of the District and Borough Councils have agreed increases in their contribution to the MAPPA. In addition the involvement and contribution of St Andrew’s Hospital has been a welcome development during this year.

We are determined to introduce high quality training across multi-agency networks to ensure that processes and systems are more robust to deal with the identification of and responses to the management of risk. It has been very encouraging to work alongside the Police and partners who are motivated to make these arrangements work.

We look forward to readers of this report seeing MAPPA evolve in another challenging year.

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STRATEGIC MANAGEMENT BOARD

COMMENT FROM LAY ADVISOR JOHN MCFADYEN
This year has seen significant improvements to the Northamptonshire MAPPA. The drive has come from our new joint chairs who have both given MAPPA the impetus it was lacking twelve months ago. An external review of MAPPA, a full business plan and the appointment of a motivated MAPPA manager and a competent MAPPA administrator have all provided more certainty and a more professional approach. On top of this, the Senior Management Board (SMB) has been joined by representatives from Health, Housing, Victim Support, the Department of Works and Pensions and the Crown Prosecution Service. Unfortunately, considering the nature and impact of the people MAPPA addresses, the issue of funding is still extremely worrying from a lay perspective. Although work is taking place to address this locally, and to persuade all agencies with a stake in MAPPA to contribute, it seems something of a farce to have to depend on goodwill, political negotiation and begging to ensure the arrangements are properly funded. MAPPA needs to be funded equitably according to the needs of each area and central funding, albeit ‘top sliced’ from budgets of the respective agencies, should be allocated to the lead agency in each area on an annual basis. To spend time in and negotiating a few hundred pounds from each district council detracts from the work of managing the arrangements, and monitoring just how well the MAPPA are serving their purpose. In addition, a review of funding showed the Northamptonshire MAPPA to be significantly under funded when infrastructure needs are considered, and when compared to other MAPPA areas. This is again being addressed locally but once more central funding, based on need, would address this and ensure the SMB could get on with the job the public expects of them.

Questions and comments can be sent to: The Lay Advisors (MAPPA) C/o Northamptonshire Probation Area Walter Tull House, 43-47 Bridge Street Northampton, NN1 1NS.

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STRATEGIC MANAGEMENT BOARD

LINKAGE TO OTHER KEY PLANNING DOCUMENTS
Northamptonshire MAPPA is linked to a number of key planning and commission policy documents both at a national and regional level. The Northamptonshire MAPPA is linked to the East Midlands Reducing Re-offending Delivery Plan and Youth Resettlement framework. The stated aims in this document for 2006-2007 are: - To improve the co-ordination of the management of high risk offenders in the East Midlands, - To promote effective joint working relations between Multi-Agency Public Protection Arrangements and the new Local Safeguarding Children Boards, - To ensure public protection issues are prioritised in partnership activity to resettle and rehabilitate offenders. THE SMB AND BUSINESS PLANNING This Business Plan identifies priorities for action that will be taken forward by the Responsible Authority through the MAPPA Strategic Management Board during 2007/08. The priorities are: - Protection of the public from serious harm, especially victims, children, vulnerable adults, and other at risk persons or groups, - Controlled criminality and the reduction of crime and re-offending, - Community Safety, - Offenders awareness of the effects of crime on victims and the public, - Public confidence in the Criminal Justice System and understanding of the public protection work of agencies, - Compliance with the legal and human rights of victims, offenders and members of the community. BUSINESS AREA 1 MAPPA DEVELOPMENT BUSINESS AREA 2 MONITORING & EVALUATION STRATEGY BUSINESS AREA 3 STATEGIC PARTNERSHIPS BUSINESS AREA 4 COMMUNICATIONS BUSINESS AREA 5 TRAINING & DEVELOPMENT

Northamptonshire Multi-Agency Public Protection Arrangements were established in accordance with Sections 32-327 of the Criminal Justice Act 2003 and Section 69 Criminal Justice and Court Services Act 2000, for the purpose of assessing and managing the risks posed by sexual, violent and other dangerous offenders who may cause serious harm to the public, taking particular account of the needs and concerns of victims.

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CONTACTS
National Probation Service
Chris Goss, Director of Operations Northamptonshire Probation Area Walter Tull House, 43-47 Bridge Street Northampton, NN1 1NS

Northamptonshire Police
Paul Fell, Detective Chief Superintendent Commander of Crime and Community Mere Way, Northampton, NN4 8BE (Phone 08453 700700)

HM Prison Service
Bob Perry, Area Manager HM Prison Service East Midlands Area Hilary Fielder, Public Protection and Partnerships Co-ordinator Prison Service East Midlands Area Empriss House, Unit C, Harcourt Way, Meridian Business Park, Leicester, LE19 1WP (Phone 01162 814016)

Empriss House, Unit C, Harcourt Way Meridian Business Park, Leicester HM LE19 1WP (Phone 01162 814 016)

MAPPA Manager
Mike Chantler Block 4, Mere Way, Northampton, NN4 8BE (Phone 08453 700700)

Northamptonshire Victim Support Scheme

Angel Street, Northampton, NN1 1ED (Phone 01604 603477 )

Sunflower Centre
Northampton 7-8 Mercers Row, Northampton, NN1 2QL (Phone 01604 233684)

Corby

C/o The Volunteer Bureau, Elizabeth Street, Corby NN17 (Phone 01536 204691)

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NORTHAMPTONSHIRE MAPPA BUSINESS PLANS 2006-2007 2007-2008

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1. MAPPA DEVELOPMENT STRATEGY (06-07)
DELIVERY DATE OWNER/RESOURCE INTENDED OUTCOME ACTUAL OUTCOME

STRATEGIC AIM

DELIVERY PLAN

1(i) Achieve dedicated MAPPA coordinator and administratio n capacity in accor dance with national guidelines. Complete work by July 2006. Additional resources to be explore d. Cost of administrat ion of MAPPA 2 to be agreed. Dedicat ed MAPPA coordinator and admin staf f is in place in t he County. There are issues in relation to resilie nce in terms of coordinator absence and admin staff and t hes e will form a key part of t he SMB agenda for 2007/ 2008.

Complete work to secure a stable administrative resource. Re view administrative roles to ensure com plementary working arrangements.

1(ii) Review SMB membership to ensure most effective re presentation. Complete review by September 2 006. Review may result in SMB members representing MAPPA on other bodies. Strengthe nin g of strategic partne rship with agencies and other st rategic bodies.

Consider representation in respect of CPS, Housing, Mental Health, LEA, CDRPs, CSS and PPO initiatives an d victim’s representation. Re view SMB membership to other relevant strategic bodies e.g. Criminal Justice Board, Safeguarding Board etc.

Review delayed published March 2007.

1(iii) Implement re vised nat ional MAPPA guidance. Within 3 months of national publication (or earlier if required by the guidance). Dependant upon national guidance.

Rev iew guidance and create action pla n t o ident ify any change areas with timescales.

Improved national consistency.

Guidance to be published July – Sept 2007. Will form a part of MAPPA SMB delivery in this y ear.

1(iv) To pursue development of the full implementat ion of VISOR. August 2006. Funded via MAPPA budget.

Ensure the introduct ion and training of all relevant staff in the use of VI SOR.

Greater u nderstanding and applicat ion of VISOR.

ViSOR fully implemented by police in 2006. Probation implementation awaited scheduled for 2007/08 business year.

1(v) Identify key financial contribution to MAPPA. Annual.

Annual fund raising to be submitted to the Boar d.

ACO Probation Finance.

Delivery of MAPP A as per budget.

Discussions ongoing with k ey partners at SMB and wider community. SMB Chair. Achiev ed wit hin financial constraints.

Manage delivery of service within budget. Ongoing.

1(vi) To oversee t he full implementation of VISOR. June 2006.

Police and Probat ion (MAPPA Co -ordinator).

Applicatio n of VISOR f or all MAPPA cases.

To strengthen the manag ement of relevant offenders To provide additional monitoring information To improve inter-agency public protection work To enhance operational performance.

All cases at level 3 recorded on ViSOR remainder of application of VISOR, eg level 2 outstanding to be def erred to business year 2007 – 08.

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34

2. MONITORING AND EVALUATION (06-07)

STRATEGIC AIM

DELIVERY PLAN

DELIVERY DATE

OWNER / RESOURCE
No addit ional resource required. Improved auditing arrangements.

INTENDED OUTCOME

ACTUAL OUTCOME

2(I) Create Audit / Op SMB Sub-Group. Group to be constituted by September 2006. Group to report to SMB meetings quarterly.

MAPPP Manager Chair Sub Group to review and develop audit arrangements regarding Level 2 & 3 and advise SMB.

Deferred aim until business year 2007 – 08.

2(ii) SMB to monitor: • Publicat ion of Annual Report • Analysis of MAPPA offenders who commit serious further offences Annual report to be published as required nationally. No addit ional resource required. Serious Further Off ence reciprocal arrangements in place with East Midlands MAPPA.

Repo rt to be approved by SMB prior to publication as pr eviously achieved.

Better learning from critical incident reporting.

Key Members consult ed prior to publication of annual report. No Serious Furt her O ffence Review in process. O ne case commenced in 2005. Of fence commit ted in 2006 ongoing discussion in process. Guidance on SFO awaited publis hed July – Sept 2007.

SMB to receive analysis of any cas e where a Serious Further Off ence has occurred or there is a Serious Ca se Review.

• • • • Sharing of Serious Further Offence reports needs confirmat ion with individual agencie s or strategic bodies (e.g. Safeguar ding Board).

Attendance and co-opera tion of agencies at Level 2 & 3 Profile of offenders at Level 2 & 3.

Clarify Serious Further Off ence pro cedures by all agencies. Rev iew relevant s ingle agency or multi agency reports in relation to MAPPA off enders.

Cont inued attention to of fender profiling information rec eiv ed at SMB meetings.

From December 2006 New MAPPA M anager undertook complete rev iew of pr ocess and procedures. Deferred until business year 2007/ 08.

2(iii) Implement MAPPA performance indicators once produced nationally.

Implement performance framework an d adapt SMB reports to capture performance information as required nationally.

In line with national timescales.

Not known.

National consistency.

Publication July-Sept 2007. Locally SMB members are looking t o produce an in house local suite of measures if possible ahead of any national guidance.

2. MONITORING AND EVALUATION (06-07)

2(iv) Implement recording and data colla tion in line with n ational requirements. In line with national timescales. National consistency. Not known. May require amendments to lo cal protocol in relation to conf identiality agre ements et c.

Implement as required nat ionally.

National guidance awaited publis hed July – Sept 2007.

2(v) Develop Serious Case Review procedures in l ine with national guidance. In line with national timescale. Not known.

Implement as required nat ionally.

National consistency.

Ongoing.

2(vi) Developme nt of Domestic Violence objectives. As per national guidance. No addit ional resources.

Develop pro vision to support the eff ective management of (convicted) high risk Domestic Violence offenders. Ensure the arrangements incorporat e the conduct of multi-agency domestic murder review s.

To ensure a greater confidence in MAPPA arrangements concerning Domestic Violence and victims as per Domestic Violence and Victims Act 2004.

MAPPA for malising arrangements with Saf eguarding Boards’ business pla ns. MAPPA formalising arrangements to dovetai l plans with MARAC both to be key ai ms in MAPPA business plan year 2007-08.

2(vii) To Suppo rt and Promote Public Protectio n Sentencing Measure s, and the use of Civ il Orders that contribute to the protection of victims and t he public. From April 2005.

Support and promote use of Disqualification O rders Notification Orders Sexual Offences Prevention Orders Foreign Travel Orders Risk of Sexual Harm Orders.

No addit ional resources.

Ensure greater understan ding and use of the range of Init iatives available to MAPPA.

The police now give considerat ion at point of conviction to obtaining a SOPO on all offenders conv icted of a sexual of fence, with t he Northants Police Dangerous Persons Management Unit pro actively making applications on convict ion for those charged with sex offences.

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3. COMMUNICATION AND STRATEGIC PARTNERSHIP STRATEGY (06-07)

STRATEGIC AIM

DELIVERY PLAN

DELIVERY DATE

OWNER/RESOURCE

INTENDED OUTCOME
Constant endeav our for improved dialog ue with the public.

ACTUAL OUTCOME

3(i) Publish impro ved MAPPA Annual Report in consultation wit h SMB and Lay Members with developed capacit y for public engagement and understanding. In line with national timesc ale. Financial costs to be minimised by use of electro nic distribution where possible.

I mplement as previously with attention to improvements wh ich can be made.

From business year 2007/08 a report will include cross ref erence to other key strateg ic docum ents.

3(ii) Ensure appropria te attendance at Nat ional MAPPA Conference. In line with national timesc ale. Staff time for participating agencies.

All agencies to give priority to appropriate attendance.

Better understanding of national prio rities.

MAPPA manager to attend conference June 2007.

3(iii) Create communication sy stem for the distribut ion of guidance and good practice whic h is shared f rom re sponsible aut hority national st eering group. Immediately. None. To be achieved within business year. MAPPA staff and SMB member time.

To be devised by MAPPA administration.

More ti mely and structured communication.

On going achieved.

In conjunction with the Local Safeguarding Children Board develop lo cal initiativ es, where possible, to implement: • Leisurewatch • Stop It Now • Circles of Suppo rt. Wit hin business year.

Seek introduction of all three Home O ffice supported initiativ es and seek to publicise where appropriate.

Not achieved to date. Greater p ublic protection in relatio n to sex off enders.

3(iv) Consideration to the adoption of Supporting People floating support for High Risk.

I mplement as per pre sentat ion 01/06.

Supporting People.

Greater support for MAPPA Of fenders re tenancy maintenance and re integration.

Working party. Developing s upporting people s pecification ant icipated implementation September 2007, pending successful tender to voluntary organ isation.

4. TRAINING STRATEGY (06-07)

STRATEGIC AIM

DELIVERY PLAN

DELIVERY DATE

OWNER/RESOURCE INTENDED E OUTCOME
Cost to be met by MAPPA partners via MAPPA budget. Better equipped Lay Members.

ACTUAL OUTCOME
Assistant Chief Probation Officer attended training event February 2007.

4(i) Support t he att endance of Lay Members at local and national training events. As required.

Lay Members to cont inue attendance at relevant national and local training events.

4(ii) Ensure appropria te attendance at national MAPPA Co -coordinators Conference. As required.

MAPPA staff to attend as appropriate.

Cost to be met by partners.

Better equipped coordinators.

MAP PA Manager to attend conference June 2007.

4(iii) Dev elop training plan to inc lude: Strategy to be produced to SMB by August 2006 and reviewed October 2006.

MAPPA Manager, in c onsultat ion with Responsible Author ity and Duty to Co-operate training depar tments to produce training strat egy which builds upon the present skills and knowledge of staff and SMB members.

There may be costs attached and t hese should be set out within the Plan.

Improved skill and knowledge of staff and SMB members.

MAP PA Manager has co-ordinated planning for multi age ncy trai ning group to deliver trai ning for MAPPA across county in business year 2007 – 08.

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1. MAPPA DEVELOPMENT STRATEGY (07-08)

STRATEGIC AIM To be finalised during business year 2007 – 08. Additional resources to be explored.

DELIVERY PLAN

DELIVERY DATE

OWNER / RESOURCE

OUTCOME Cost of administration support for MAPPA requirem ents to be agreed.

1(i) To incre ase resilience in the ability to deliver MAPPA processes through the appointment of additional resources at administrative level and deputy MAPPA manager.

Complete work to se cure a stable budget fr am ework and appropriat e administrative re source. Review administrative roles to ensure complementary working arrangements.

1(ii) Complete R eview of SMB membership to ensure most effective representation. On going throughout business year. Review may result in SMB members representing MAPPA on other bodies.

Strengthening of strategic partnership with a gencies and other strategic bodies. More robust risk management arrangements.

Review SMB mem bership to include other relevant stra tegic bodies e.g. Criminal Justice Board, Safeguarding Board etc. Include membership of St Andrews hospital.

1(iii) Implement r evised national MAPPA guidance. In conjunction wi th other MAPPA areas within the region as required by National time scales.

Review National Guidance and create ac tion plan to identify any changes with time scale s.

Awaiting publication of national guidance.

Improved National consistency.

1(iv) To pursue development of the full implementation of VISOR. National roll out to comm ence September 2007 March 2008. Once learning has been disseminated from early adopters.

Ensure the introduction and training of all relevant staff in the use of VISOR.

Funded by MAPP A budget. Additional funds for admin support forthcoming from National roll out programme.

Greater under standing and usage of VISOR.

1(v) Identify key financial contributions to MAPPA.

Manage delivery of service withi n budget.

On going in conjunction with Budget formulation.

SMB Chair

Delivery of MAPPA as per budget.

1. MAPPA DEVELOPMENT STRATEGY (07-08)

1(vi) To oversee the full implementation of VISOR. Second phase of VISOR roll out to be completed between September 2007 – April 2008. (MAPPA Co –ordination). Police and Probation. Application of VISOR in all MAPPA c ases.

To strengthen the m anagement of relevant offenders.

To provide additional monitoring information.

To improv e multi agency public protection work.

To enhance operational performance.

1 (vii) Create and develop separate comprehensive MAPPA arrangements with St Andrew’s Hospital. From April 2007 in consultation with SMB and senior Management at St Andrew’s Hospital.

Develop working protocol policies and procedures in conjunction with St Andrews Hospital in line with National requirements.

MAPPA Co –ordination additional resources provided by St Andrew’s Hospital.

Comprehensive MAPPA arrangements for patients at St Andrews Hospital.

Develop and convene MAPPA panels with core membership to discuss and register all ca ses falling within the MAPP A criteria at St Andrew’s Hospital.

1 (viii) Develop protocols, policies and procedures in conjunction with the county mentally disordered offender sub group. On going during business year.

To strengthen and develop working relationships and pra ctice within the Health Care trust.

Health in conjunction wi th SMB.

Identification of need and development of services to mentally disordered offenders.

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2. MONITORING AND EVALUATION (07-08)

STRATEGIC AIM Group to be constituted in conjunction with S MB timetable. No additional resource r equired.

DELIVERY PLAN

DELIVERY DATE

OWNER / RESOURCE

OUTCOME Improved auditing arrangements.

2 (i) Create Audit /Op SMB Sub-Group.

MAPP A Manager to establish and Chair Sub Group to review and develop audit arrangements regarding Level 2 & 3 cases and advise SMB.

2 (ii) SMB to monitor:• Publication of Annual report. In line with national timescales. No additional resources required.

Report to be app rov ed by key members of SMB prior to publication as previously achieved.

National consistency.

• In line with national time scales.

Analysis of MAPPA offenders who commit serious further offences.

SMB to rec eive analysis of any case where a Serious Further Off ence has occurred or there is a Serious Case Review.

Additional MAPP A administration support.

National consistency.

• In line with national time scales.

Attendance and co-operation of a gencies at Level 2 & 3.

Develop and establish m onitoring arrangements to record attendance and participation at level 2 & 3 case discussions.

Additional MAPP A administration support.

In line with national monitoring requirements.

Profile of offenders at Level 2 & 3.

Report on off ender profiling to SMB.

In line with National time scales.

Additional MAPP A administration support.

Greater understanding by SMB of local profiling. In line with MAPPA Guidance and National requirements. Additional MAPP A administration support.

Monitor and analysis the diversity profile of off enders assessed at Level 2 and Level 3.

Report on off ender profiling to SMB.

In line with National time scales.

Monitor and analysis of use of MAPPA risk management thre sholds at level 2 @ 3.

Report on Offender profiling to SMB.

In line with National time scales.

Additional MAPP A administration support.

Greater understanding by SMB of local profiling. In Line with National Guidance and National requirements. Greater understanding by SMB of risk management thresholds at level
2@3.

2. MONITORING AND EVALUATION (07-08)

2 (iii) Implement MAPPA performance indicators once produced nationally. In line with national timescales. Not Known. National consistency.

Implement performance framework and adapt SMB reports to capture performance as r equired nationally. In line with national timescales. Not Known. National consistency.

2 (iv) Implement re cording and data collation in line with national requirements.

Implement as required nationally.

Implement as required nationally.

In line with national timescales.

Not Known.

National consistency.

2 (v) Develop serio us Case R eview procedures in line with national guidance. 2 (vi) Development of Domestic Violence objectives. On going throughout business year 2007 -08. No additional resource required.

MAPP A manager to report to SMB on progress during business year.

Develop operational working relationship with MARAC.

In conjunction with Safeguarding business plan and M ARAC develop protocols, Policy Procedures and se rvice s for perpetrators and victim s of Domestic abuse.

In conjunc tion with safeguarding Board business objectives contribute to the development of protocols, policy procedures and training in the identification and response to domestic abuse .

2 (vii) To su pport and Promote Public Protection S entencing Measures, and the use of Civil Orders that contribute to the public. On going.

Support and promote use of Disqualification Orders, Notification Orders, S exual Off ences Prevention Orders, Risk of Sexual Harm Orders.

No additional resources.

Continued understanding and use of the range of initiatives available to MAPP A.

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3. COMMUNICATION AND STRATEGIC PARTNERSHIP STRATEGY (07-08)

STRATEGIC AIM In accordance with national time scales. Financial costs to be minimised by use of electronic distribution where possible. Improved public / agency understanding.

DELIVERY PLAN

DELIVERY DATE

OWNER / RESOURCE

OUTCOME

3 (i) Publish in formative MAPPA Annual Report in line with national guidance in consultation with SMB with developed capacity for public engagement and understanding.

To be circulated in accordance with MAPPA communication stra tegy.

3 (ii) Ensure appropriate attendance at National MAPPA Conference in line with National requirements. In line with national requirements. Staff time and commitment for participating agencies.

All agencies to give priority to appropriate attendance.

Understanding of National requirements.

3 (iii) Create communication system for the distribution of guidance and good practice which is shar ed from Responsible Authority national steering group. In consultation with SMB. None.

To be devised by MAPPA administration.

Clearer, time bo und and structured information.

In conjunc tion with the Safeguarding Children Board develop local initiatives, where po ssible, to implement. • Leisurewatch • Stop It Now • Circles of Support. In consultation with SMB.

Seek introduction of all three Home Office supported initiatives and seek to publicise where appropriate.

MAPPA staff and SMB member time.

Greater public protection in relation to sex offenders.

3 (iv) Implementation of Supporting People floating support for High Risk Off ender.

Interviews for organisations who have tendered for core business May 2007.

Anticipated implementation date September 2007.

Supporting People.

Greater support for MAPPA offenders re tenancy maintenance and reintegration.

3. COMMUNICATION AND STRATEGIC PARTNERSHIP STRATEGY (07-08)

3 (v) Develop and publish a comprehensive MAPPA communication str ategy to be rolled out across the county incorporating all Responsible Authorities and each agency with a duty to co –operate. Anticipated launch date October 2007. MAPPA staff and SMB member time.

To be devised by MAPPA Manager and a ctioned with the authority of SMB.

Gre ater public and multi agency awareness of MAPPA.

3 (vi) Ensure S MB are fully aware of roles and r esponsibilities of SMB members and contribute towards MAPPA development. On going during business year 2007 – 2008. SMB members.

Increased number of SMB meetings. Increased participation of SMB me mbers.

Incre ased active involvement of SMB in MAPPA.

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4. TRAINING STRATEGY (07-08)

STRATEGIC AIM As required. Cost to be met by MAPP A partners via MAPPA budget.

DELIVERY PLAN

DELIVERY DATE

OWNER / RESOURCE

OUTCOME Enhanced knowledg e of Lay members.

4 (i) Support the attendance of Lay Members at local and national training events.

Lay members to continue attendance at relevant national and local training events.

4 (ii) Ensure appropriate attendance at national MAPPA Co-ordinators conference. June 2007. Cost to be met by partners.

MAPPA Manager to attend.

Better equ ipped co-ordinators..

4 (iii) Develop tr aining plan to include: Initial scoping and planning for multi agency involvement / training April - August 2007. Delivery anticipated from September 2007 Feb 2008.

MAPPA Manager, in consultation with Responsible Authority and Duty to Co-operate training departments to produce training strategy which is linked with the communication strategy and incorporates the new MAPPA guidance.

It is anticipated this training will be county wide and be delivered in 4 separate multi agency venues incorporating multi agency training departments. The cost of the training will be m et from each agency budget.

Improved knowledge of multi agency staff and SMB members.

4 (iv) MAPPA awareness training for key professionals at St Andrew’s Hospital From April 2007 on going.

A series of training sessions for key personnel at St Andrew’s Hospital.

St Andrews Hospital / Delivery by MAPPA Manager.

Knowledge of MAPPA arrangements process an d procedures for key staff