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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 child-
protection 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 INTRODUCTION

PAGE 02 UNDERSTANDING THE MAPPA


Partnership working
Management of Risk
Serious Further Offences

PAGE 05 KEY DEVELOPMENTS

PAGE 10 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

PAGE 15 CONSULTING VICTIMS

PAGE 16 ROLE OF THE AGENCIES INVOLVED

PAGE 22 CASE STUDIES

PAGE 24 MAPPA FIGURES

PAGE 26 THE STRATEGIC MANAGEMENT BOARD


The structure
Comments from the Chair
Lay Advisor comments
Key Planning Documents

PAGE 30 CONTACTS

PAGE 31 SMB BUSINESS PLANS


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, Bill McHugh, Bob Perry Area Manager,


Chief Constable Chief Officer HM Prison Service
Northamptonshire Police Northamptonshire Probation Area 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 to manage each offender in a constructive, practical
provide the comprehensive mechanism by which all way. The supervision plan takes into account the
the relevant criminal justice and partner agencies concerns of individual victims and offers the best
work together to manage high risk offenders who protection for the general public.
have often committed violent or sexual offences.
Only a very small proportion of MAPPA offenders
The Multi-Agency Public Protection Arrangements pose high risks, and these are the individuals who
(MAPPA) were formally established by the are referred to the high level Multi-Agency Public
Criminal Justice and Court Services Act 2000, and Protection Panels.
further strengthened by the Criminal Justice Act
2003. The statutory responsibility for the Through the MAPPA, potentially high-risk
management of the arrangements rests with the offenders are being assessed and robustly managed
‘Responsible Authority,’ which includes in the community. Agencies are now working more
Northamptonshire Police, the Northamptonshire closely together to exchange information in order to
Probation Area and HM Prison Service, East manage offenders collaboratively.
Midlands Area.

The Responsible Authority is supported by a range


of organisations, which have been charged with a A SERIOUS SEXUAL OR VIOLENT
‘duty to cooperate’ in the management of MAPPA OFFENCE IS DEFINED AS ONE
offenders in the community. These include: Youth OF THE FOLLOWING
Offending Service, Northamptonshire Healthcare
NHS Trust, Children’s Services, Housing - Murder
Authorities and social landlords, Social Services, - Attempted Murder
Social Security and Employment Service - Arson (where there is an attempt to endanger life)
departments, and Local Education Authorities. - Manslaughter
- Rape
While many such offenders will be sentenced to - Kidnap/Abduction
long prison sentences, and some may never be - Attempted Kidnap/Abduction
released, there will be a number of high risk - Any other very serious violent or sexual offence
offenders who will eventually return to the - Armed robbery
community. These high risk cases are assessed and, (defined as robbery involving a firearm)
if considered potentially dangerous, become - Assault with a deadly weapon or hostage taking
registered with the MAPPA. - Any other violent or sexual offence where the
offender/offence is likely to attract significant
Regular meetings are held to assess and discuss the media interest, or which raises wider issues of
management of cases. This level of co-operation national interest.
enables the agencies involved to develop specific
strategies and individual supervision plans
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 THREE LEVELS OF RISK MANAGEMENT

Category 1 - All sex offenders in the community Level 1 - Ordinary Risk Management: low/
who are required to register with the Police. From medium risk cases are usually managed by a
April ’06 to 31st March ’07 there were 355 single agency such as the Probation Service,
Registered Sex Offenders in Northamptonshire, although cases may still involve inter-agency
a rise of 11 registrations compared to the previous communications.
year’s figure. A cumulative effect can be expected
as registration periods are deliberately lengthy.
Level 2 - Local Inter-Agency Management: high
Category 2 – All violent and non registered sex risk cases which are assessed by the Responsible
offenders sentenced to 12 months or more Authority as requiring the active involvement of
imprisonment including mental health orders. more than one agency to effectively manage the
From April ’06 to 31st March ’07 there were risk posed by the offender. Level two meetings
167 offenders in this category in Northamptonshire. are held weekly.

Category 3 - ‘Other Offenders’, who have been Level 3 - Multi-Agency Public Protection Panel
referred to MAPPA, have been assessed by the Management: high/very high risk cases assessed
Responsible Authority as posing a risk of serious by the Responsible Authority as “the Critical
harm to the public. From April ’06 to 31st March Few”. Only a very small proportion of MAPPA
’07 there were 16 offenders in the third category offenders pose a high/very high level of risk, and
in Northamptonshire. these are the ones who are referred to the Multi-
Agency 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 If a MAPPA registered offender is charged with a
associated resources are directed to offenders who serious offence, the management of their case is
have been assessed as presenting the greatest risk scrutinised to see if any lessons can be learned for
of committing further serious offences. the future.

Agreed actions can include appropriate levels of If an offender seriously re-offends whilst being
supervision and surveillance, accommodation, and supervised by the National Probation Service, a
support measures, such as drug misuse treatment, mandatory procedure is followed to review how the
to minimise the potential risk of re-offending. case has been managed.
However, despite all the steps that are taken a
number of offenders may still go on to commit If a high-risk sex offender at MAPPA Level 3 or 2
another offence. is convicted of a serious offence, and the Probation
Service’s procedure does not apply, the MAPPA
There may be other offenders, assessed at a lower Strategic Management Board may seek a review of
risk category because they have not previously how the case was managed.
committed a very serious sexual or violent offence,
who go on to commit a further offence of a more The Strategic Management Board, which oversees
serious nature. all three operational levels of the MAPPA, will
adopt a new system of serious case reviews, when
An offender is responsible for their own actions. the guidance has been finalised from the Ministry
The risk management measures that are instigated of Justice.
by the MAPPA specifically hold the offender to
account, and seek to strengthen their personal Northamptonshire MAPPA will also seek to apply
responsibility for their behaviour. An element of the lessons learnt from serious offence reviews
Probation supervision is to work with offenders to carried out in other areas. MAPPA Managers also
enable them to understand the consequences of their meet both regionally and nationally to share
actions, and to motivate them to lead lawful lives. 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.
05

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

NEW PEOPLE

Senior Probation Officer Mike Chantler has been Bill McHugh was appointed the new Chief Officer
appointed as the new Manager for MAPPA. of the Northamptonshire Probation Area (NPA)
in October 2006.
In the past Mr Chantler has worked as a Senior
Probation Officer both within community and Since joining NPA, Mr McHugh has spearheaded
custodial settings and as a senior manager within a series of changes that has seen Northamptonshire
Social Services’ Children’s Departments, a senior recently acclaimed as the most improved Probation
manager within the Youth Offending Service and Area. There are 42 Probation Areas that feature in
as a serving Police Officer. a national performance table, and Northamptonshire
moved upwards by 16 places to No.6.
As the MAPPA manager he chairs the meetings of
the Multi-Agency Public Protection Panels, which Mr McHugh has previously worked as a Director at
oversee the most potentially dangerous cases, as well Nottinghamshire and Humberside Probation Areas.
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.”

The MAPPA Manager is accountable to the Strategic Management Board and reports
to the board on a quarterly basis.
06

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 multi-


agency 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.
08

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.
09

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 MAPPA REGISTRATION

When an agency has concerns relating to an When a referral is received a special inter-agency
offender - who meets the criteria - they can refer meeting will be arranged to look at the case. Key
to the MAPPA. At this stage a full risk workers, who have contact with the offender, are
assessment is undertaken. obliged to attend and line managers are also
encouraged to participate. This meeting will consider
The Probation Service and Prison Service use the assessment of risk, agree the level of risk
the Offender Assessment System, OASys, which management required (Level 1, 2 or 3,) and
looks at an offender’s criminal history, current formulate an inter-agency risk management plan.
circumstances and contains a section to assess the
potential risk of harm to others. This document is The risk management may include a range of
continuously reviewed to reflect changes in additional licence conditions, which the offender
circumstances and behaviour, which may increase must keep to. These can include: a requirement to
or decrease risk of harm. ASSET is an assessment reside at Approved Premises managed by the
system used by the Youth Offending Service. Probation Service, and attend a specified Probation
programme to target his/her offending behaviour.
The Probation Service also uses the Risk Matrix
assessment tool in relation to offenders convicted of There are often conditions that deal particularly
sexual offences, as do the Police. Risk Matrix looks with victim issues e.g. no contact with the victim.
at particular static (unchangeable) factors in an Conditions for those convicted of sexual offences
offender’s history, which research has shown to against children routinely have conditions
have a significant link to the likelihood of re-conviction prohibiting association with any persons less
for offending. than 18 years of age.

An additional assessment process is called SARA, The Multi-Agency Public Protection Panel
which stands for Spousal Assault Risk Assessment (MAPPP) is involved with the management of
(SARA). The assessment has been developed risk in the minority of cases requiring multi-agency
specifically for use with incidents of domestic violence. involvement at a senior level (Level 3) due to
the nature of the risk and the resources required
Assessment tools are used to help inform decisions to effectively manage that risk in the community.
concerning risk management levels and risk
management plans. As well as using these proven Cases risk managed at Level 2 and at Level 1 are
assessments systems, the staff involved are required reviewed regularly to consider, if the risk continues
to collect and thoroughly evaluate all information. to require multi-agency or inter-agency management,
the effectiveness of the risk management plan and
Staff members must also record and carry out any changes, which may be required.
decisions, follow policies and procedures and take
all reasonable steps in order to achieve high quality Case Reviews will benchmark and update against
risk assessment and management. 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.
10

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 ViSOR is now being used to record the personal
regarding dangerous and sexual offenders with the attendance of Registered Sex Offenders at Police
Probation and Prison Services. stations to register their addresses, and any changes.

This information will be available 24 hours a day, The system also logs home visits undertaken by
365 days a year. It is anticipated that ViSOR will Police Officers.
begin to be rolled out to Probation and the Prison
Services later in 2007. The efficient use of VISOR as a research and
pro-active tool in the management of violent and
Northamptonshire Police has now updated ViSOR sex offenders is an integral part of the overall
with details of all the Registered Sex Offenders in management of information in this area of work.
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.
11

HOW THE MAPPA OPERATES

PUBLIC PROTECTION MEASURES

SEXUAL OFFENCES DISCLOSURE


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

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.”
12

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.
13

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.
14

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
A DAY IN THE LIFE OF …. supervision than is possible in most other forms of
An Approved Premises Officer housing and give opportunities to both monitor and
support offenders who move on to independent living.

“As a member of the team, I perform regular The Approved Premises provides a significant
hostel checks throughout the day. This serves a oversight of offender activities and contacts for the
dual purpose as I can monitor the residents we Police and Probation Service. This overview
have concerns about, and I will check that provides useful opportunities for the agencies to
individuals do not spend all day in their rooms. assess the offender’s behaviour, motivation and
compliance with supervision.
As an Approved Premises Officer I play a pivotal
role in monitoring the potential levels of risk of Approved Premises are a vital and pivotal part of
the residents. This side of my work involves: the public protection process. As well as helping
to monitor the offender’s compliance with
- Monitoring residents’ curfew and signing in times, supervision and licence conditions, residency at a
- Performing random drug tests, when applicable, hostel is also covered by clear rules and standards
- Challenging anti-social behaviour, of behaviour. This includes not acting in a way as
- One to one working with individuals to deal with to cause disruption within the premises or in the
any issues or incidents that may arise. neighbourhood.

If a resident fails to be present for the start of their Failure to comply with the hostel rules, such as not
curfew or signing in, I would inform either the returning at specified times, renders the offender
Offender Manager, hostel management, or the liable to sanctions, including recall to prison if they
Director on call during out of hours and weekends.” are on licence.
15

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 Conditions imposed on offenders to protect victims
victims of any violent or sexual offender who has include: not approaching or communicating with
been given a custodial sentence of 12 months or named person(s) without the prior approval of the
more for a relevant offence. Victims should be supervising officer and/or the appropriate Social
contacted within 56 days of sentence being imposed. Services Department, and avoiding a specified area
without prior approval.
This responsibility has been extended to cover the
victims of offenders who have been detained under Information from victims can also help with the
a Hospital Order due to mental illness or other assessment of an offender’s risk so that not only
disability at the time of their offending. they, but other people can be better protected
from harm.
The circumstances can vary widely. Some victims
may not have known the offender, whilst others may Victims of crime are entitled to be informed if the
have been acquainted with the perpetrator in some offender is discussed at the Multi-Agency Public
way. Other victims may have been in a close or Protection Panel. The panel has acted on concerns
trusting relationship, which the offender has abused of victims concerning licence conditions, which
or betrayed. 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


Specialist Victim Contact Officers deal exclusively introduced across the Criminal Justice System
with the victims of crime, and have no direct contact to protect and serve the needs and interests of victims.
with offenders. The officers make extensive efforts to
locate victims to ascertain if they wish to be kept It is for the victim, or the victim’s family, to decide
informed. If a victim wishes to engage with this whether they wish to take up the service that is
service, the officer will arrange a meeting at a time offered. If they decline, the victim can request
and place convenient to them. The officer can then contact at a later stage.
feedback their views and concerns.
16

ROLE OF THE AGENCIES INVOLVED

NORTHAMPTONSHIRE POLICE

The local Dangerous Persons Management Unit The Detective Sergeant from the DPMU and the
(DPMU) is staffed by a Detective Sergeant, four Detective Superintendent Director of Intelligence
Detective Constables, two Police Constables, two from Crime and Community are core MAPPA
Detective Support Officers and an Administrator. Panel Members. Community-based Police
Inspectors and Sergeants routinely attend
The DPMU role is two-fold: first the risk assessment Inter-Agency Risk Management Meetings in
of newly released sex offenders using an actuarial their local areas.
risk assessment tool, and by examining a number
of dynamic risk assessment factors. Domestic Violence Officers also attend both Level
2 and Level 3 meetings concerning cases in which
ACTUARIAL RISK FACTORS can refer they are involved. In Northampton and Corby these
to an individual’s offending history, officers are based at the Sunflower Centres.
which cannot be altered.
The DPMU supports the local Basic Command
DYNAMIC RISK FACTORS can be Unit’s objectives by providing advice on the
changed and include basic skill deficits, investigation of relevant crime, and the application
substance abuse, and finding and of Sexual Offences Prevention Orders.
maintaining work.
The unit continues to drive forward new practices
and ideas, including the development of a Dynamic
Secondly, officers working within this unit visit Risk Assessment Tool (DRAM) for use in initial
Registered Sex Offenders at home to get a realistic visits. The Police’s DRAM considers the actions
picture of their circumstances to be able to accurately which led to the crime, the offence and its
assess continued risk factors. The officers are then consequences, as well as the offender’s family
able to share relevant information with other agencies relationships, employment status, accommodation,
such as Probation and Social Services. leisure pursuits and other factors.

It is commonplace to have joint visits between the A further new initiative includes a weekly Risk
Police and other key agencies, which have involvement Assessment Meeting (RAM), as well as a number
with offenders, when it is appropriate and will of planned Police training seminars later this year.
support and inform the risk management plan.
There are now designated Inspectors with
This work covers the: responsibility for Police participation at
- Covert surveillance of offenders, Inter-Agency (Level 2) MAPPA meetings in
- Supply of alarms to potential victims, respect of Category 2 and 3 offenders.
- Disclosure of information to members
of the public,
- Provision of support and advice to offenders.
17

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
The Probation Service has responsibility for the prison and are staffed by new Offender
management of offenders over 18 years of age in the Supervisors. (See Key Developments section)
community and on licence after release from prison.
Community sentences and post release licences are The Prison Service is
rigorously enforced with breaches resulting in court represented on the
action or recall to prison. Northamptonshire MAPPP
by a senior manager at a
The National Public Protection Unit oversees the local prison. The protocol
supervision of sex offenders and offenders assessed agreed by the Prison Service
as high or very high risk of harm. in the East Midlands Region
and the SMB, sets out the
Violent offenders and sex offenders sentenced to expectations in terms of
imprisonment of 12 months or more can be subject information sharing and
to additional licence conditions upon release from level of attendance at Michelle Dyne
prison. The conditions aim to reduce the risk MAPPA meetings. Head of Offender Management,
they pose to the community e.g. prohibit contact HMP Ryehill
with victims. There are no changes to release dates or
arrangements without prior consultation with
The Northamptonshire Probation Area delivers the Police and Probation Services.
Community Sex Offender Groupwork Programme
for men who have committed sexual offences. Within the county boundaries of Northamptonshire
The 240 hour long programme has been developed there are three separate prisons. These are:
to enable the participants to gain an understanding - HMP Wellingborough (Cat. C)
of their offending, identify the triggers and develop - HMP Onley (Cat. C)
strategies to control their abusive behaviour. - HMP Ryehill (Cat. B).

The supervising Offender Manager normally A number of offenders who originate from Northants
attends all MAPPA meetings to discuss the case are held in other prisons throughout the country.
for which they have accountability or involvement. Prisoners on remand are located at HMP Woodhill.
18

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 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
HOUSING 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 YOUTH OFFENDING SERVICE

Local Authorities provide advice about housing The Youth Offending Service manages young
options including council housing, housing offenders who may present a risk to the public and
associations and private lettings. who may have been damaged by childhood
experiences. These experiences can make them
The councils also offer information to individuals vulnerable and in need of protection.
making enquiries concerning housing applications,
including those looking for transfers or mutual The Youth Offending Service undertakes a specialist
exchanges. criminal justice role that cuts across the work of the
Police, the Crown Prosecution Service and those
The Housing Register does not prevent anyone, agencies involved in safeguarding children and
regardless of tenure or location within the UK, young people.
from joining the waiting list.
A manager with the Youth Offending Service
An applicant’s circumstances are assessed using represents the YOS on both the Senior Management
the Local Authority Housing Allocations & Board and the Level 3 Multi-Agency Public
Lettings Policy. Protection Panels. The YOS is also represented at
Level 2 on a case by case basis.
LOCAL AUTHORITY
HOMELESS SERVICES: The Youth Offending Service holds internal panel
Advice on all aspects of housing is provided. meetings that categorise the level of risk.
The aim is to give advice and assistance in the short The identification process is via ASSET, the
term and to ensure tailored support is achievable in assessment tool used by the YOS.
the long term. The primary client group is homeless
families with support needs. The same process
identifies the
The secondary client group is single homeless people vulnerability of
with support needs. There are no restrictions placed young people and
upon age range, ethnicity or culturally specific referrals are made
groups and/or household types. Any exclusion is either to MAPPA
determined by the council housing department on a or through the child
case by case basis and in line with current legislation, protection process,
policies and procedures. depending on the levels
of risk or vulnerability
The Homeless Legislation of 2002 and the Code evidenced.
of Guidance are used by housing staff to assess
Dave Palmer
homeless applicants.
Unit Manager,
Y.O.S.
21

ROLE OF THE AGENCIES INVOLVED

SOCIAL SERVICES LOCAL SAFEGUARDING CHILDREN BOARD

Northamptonshire County Council provides Social The Local Safeguarding


Services to the local community. Children Board (LSCB)
Adults are served by Community Services, while is the key statutory body
children and their families are served by the that agrees how relevant
Children and Young People’s Service (CYPS). organisations will
co-operate to safeguard
One of the panel members is a Team Manager in and promote the welfare
the Northampton Referral Team, which is part of of local children. The
CYPS, and his role within the organisation is to LSCB also ensures the
manage and oversee child protection investigations effectiveness of the work of
as well as assessments regarding children in need. individual agencies when
The CYPS works closely with statutory and non- working in partnership.
statutory agencies delivering services to safeguard Board members sit on the Bill Cook
and promote the welfare of children in the county. MAPPA Strategic Team Manager, Children &
Management Board, Young People’s Service
The Team Manager provides a link for other which ensures a synergy
MAPPA agencies to Social Workers within of purpose.
CYPS and contributes to the panel from a child
protection perspective. The LSCB replaced the Area Child Protection
Committee in April 2006.
All agencies will now contribute to the following key
NHS TRUST – SAFEGUARDING outcomes for children:
CHILDREN REPRESENTATIVE - Be healthy and stay safe,
- Enjoy and achieve and make a positive contribution,
A designated nurse for - Achieve economic well-being.
Safeguarding Children
links the panel with The key focus of the LSCB will be to safeguard
Health Services children, whilst also contributing to the other
(Community key outcomes. Safeguarding and promoting the
Midwives, Health welfare of children is defined as:
Visitors and General - Protecting children from maltreatment,
Practitioners) - Preventing impairment of children’s health
and with the Local or development,
Safeguarding Children - Ensuring that children are growing up in
Board. circumstances consistent with the provision of safe
Pamela Palmer
and effective care,
Designated Nurse for
- Undertaking that role so as to enable children
Safeguarding Children
to have optimum life chances and enter
adulthood successfully.
22

CASE STUDIES

CASE ONE: PLANNING FOR RELEASE CASE TWO:


This case history demonstrates the planning that PROVIDING THE RIGHT SUPPORT
goes into finding an offender suitable accommodation This case demonstrates how the right support can
and support. Mr A was sentenced to a number of help an offender to resettle successfully back into
years in prison for Manslaughter. He was scheduled the community.
for release mid 2007.

Mr A was transferred to HMP Wellingborough. Mr Y is a 62 year old male who was sentenced to a
At this stage some mental health and resettlement lengthy term for the Rape, and Gross Indecency, of
issues were identified. Mr A stated that he was his two daughters. He was registered at MAPPA
unable to return to his home area as he felt at risk Level 2. Mr Y pleaded Not Guilty to these
from his victim’s family. The home Probation Area, offences and maintained this denial throughout.
updated with these details, looked into the possibility
of transferring him to another area when he was He was released on licence with a condition to
released. reside in Approved Premises away from his home
area. Although his victims no longer lived in the
Suitable Approved Premises, away from the location, his ex-wife did. During the court hearing
offender’s home area, was identified. This proposal there was evidence that his ex-wife had suffered
had to be accepted by the new Probation Area that from domestic violence. There was no other
manages the Approved Premises and there had to accommodation available, which meant that Mr Y
be a place available on the offender’s release. Plans had to return back to his home town.
were discussed and agreed with Mr A.
Mr Y, whilst continuing to deny his offence, was
A sentence planning review board was booked for a compliant throughout his time at the Approved
date in early 2007. The review meeting was held Premises. The Probation Service worked with him
with the home area Probation Officer, Offender to look at his offending, and although this work was
Supervisor and Mr A was present. He agreed to difficult, some progress was made in exploring the
co-operate with a new psychiatric assessment to relationships within the family and his role as a
assess suitability for accommodation in Approved husband and parent.
Premises and his risk of harm to the public. Licence
conditions were also discussed with the offender. Mr Y was able to purchase a house after the
Probation Service approved the property, which
Healthcare advised and a new psychiatric assess- was in a location that did not jeopardise his licence
ment was requested. A further telephone conversa- conditions. He admitted that he had no daily
tion was held with the home Probation Area, and living skills.
plans were still ongoing for the offender’s transfer
and accommodation to an Approved Premises on His Offender Manager set up a programme of one-
release. The home Probation Area also contacted to-one cookery and budgeting lessons with the
the prisoner’s family with regard to follow up in-house chef. The lessons lasted for a considerable
accommodation after a period of time at the period of time before it was agreed by both parties,
supervised facility. 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.
23

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 An off duty Probation Hostel Officer saw Mr X
sexual offences against females under the age of 18 walking with a young female believed to be under
years. He had not known the victims. 18 years. They were holding hands. She contacted
the hostel and the Deputy Manager spoke to Mr X
Mr X was registered at MAPPA Level 3 and was on his return to find out how he had spent the day.
released from prison on licence with a condition to
reside in Approved Premises. Additional He stated that a friend had visited but referred
conditions and curfews were in place to help reduce to the friend as ‘he’. The Offender Manager was
the risk that Mr X posed to underage females. notified and an emergency two hour recall was
instigated.
Mr X was issued with a warning for returning late
and his curfew was amended to 8.45pm to restrict Given the risk that Mr X posed, members of the
him further. He also received an additional warning Public Protection Unit liaised with the local Police
for providing a positive drug test for cannabis, and Probation staff to ensure that when the licence
indicating an increase in his risk level. Mr X had revocation appeared on PNC, (Police National
been misusing drugs at the time of his offence. Computer) sufficient officers would be dispatched
to arrest Mr X and deal with any resistance.
It was a condition of his licence to report any
developing relationships to his supervising officer. Mr X remains in custody.
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.

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.
24

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)

Apr '05-Mar '06


355 344
Apr '06-Mar '07

Category 2 MAPPA Offenders: Violent Offenders And


Other Sexual Offenders (V&OS)

151 Apr '05-Mar '06


167 Apr '06-Mar '07
25

Category 3 MAPPA Offenders: Other Offenders (OthO)

Apr '05-Mar '06


16 16
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.
26

STRATEGIC MANAGEMENT BOARD

THE STRUCTURE COMMENT FROM THE CHAIR PAUL FELL

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.
Detective Chief Superintendent
The Lay Advisors, as the name suggests, are Paul Fell
local residents who bring a community perspective
to the SMB discussions.

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 appointment of Lay Advisors is in the Home Office and local MAPPA Boards.
accordance with Section 326 of the Criminal
Justice Act 2003. The Lay Advisors have under- The implementation of national guidance will
taken a comprehensive range of training and provide a clearer framework for improving
attended a national conference. quality of delivery. This report contains both
an update of the business plans for this year
The MAPPA Administrator has responsibility 2006–2007 and for 2007–08 where the
for all of the MAPPA administration and progress is shown and the vision translated
produces minutes of all MAPPA meetings and into action.
SMB meetings.
27

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 Multi-
Agency Risk Assessment Conferences
(MARAC), and further working links with the
Local Safeguarding Children Board.

We are delighted that the Chief Executives of


We are determined to introduce high quality the District and Borough Councils have agreed
training across multi-agency networks to increases in their contribution to the MAPPA.
ensure that processes and systems are more In addition the involvement and contribution
robust to deal with the identification of and of St Andrew’s Hospital has been a welcome
responses to the management of risk. It has development during this year.
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.
28

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.
29

STRATEGIC MANAGEMENT BOARD

LINKAGE TO OTHER KEY PLANNING DOCUMENTS

Northamptonshire MAPPA is linked to a number BUSINESS AREA 1


of key planning and commission policy documents MAPPA DEVELOPMENT
both at a national and regional level.
BUSINESS AREA 2
The Northamptonshire MAPPA is linked to the MONITORING & EVALUATION
East Midlands Reducing Re-offending Delivery STRATEGY
Plan and Youth Resettlement framework.
BUSINESS AREA 3
The stated aims in this document for 2006-2007 STATEGIC PARTNERSHIPS
are:
- To improve the co-ordination of the management BUSINESS AREA 4
of high risk offenders in the East Midlands, COMMUNICATIONS
- To promote effective joint working relations
between Multi-Agency Public Protection BUSINESS AREA 5
Arrangements and the new Local Safeguarding TRAINING & DEVELOPMENT
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, Northamptonshire Multi-Agency Public Protection
- Community Safety, Arrangements were established in accordance with
- Offenders awareness of the effects of crime on Sections 32-327 of the Criminal Justice Act 2003
victims and the public, and Section 69 Criminal Justice and Court Services
- Public confidence in the Criminal Justice System Act 2000, for the purpose of assessing and
and understanding of the public protection work managing the risks posed by sexual, violent and
of agencies, other dangerous offenders who may cause serious
- Compliance with the legal and human rights of harm to the public, taking particular account of the
victims, offenders and members of the community. needs and concerns of victims.
30

CONTACTS

National Probation Service


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

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

HM Prison Service
Bob Perry, Empriss House, Unit C, Harcourt Way,
Area Manager Meridian Business Park, Leicester,
HM Prison Service LE19 1WP (Phone 01162 814016)
East Midlands Area

Hilary Fielder, Empriss House, Unit C, Harcourt Way


Public Protection and Partnerships Co-ordinator Meridian Business Park, Leicester HM
Prison Service LE19 1WP (Phone 01162 814 016)
East Midlands Area

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)
31

NORTHAMPTONSHIRE MAPPA
BUSINESS PLANS
2006-2007
2007-2008
32
1. MAPPA DEVELOPMENT STRATEGY (06-07)

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER/RESOURCE INTENDED OUTCOME ACTUAL OUTCOME

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

1(ii)
Review SMB membership to ensure Consider representation in respect of Complete review by Review may result in Strengthe nin g of strategic Review delayed published
most effective re presentation. CPS, Housing, Mental Health, LEA, September 2 006. SMB members partne rship with agencies and March 2007.
CDRPs, CSS and PPO initiatives an d representing MAPPA on other st rategic bodies.
victim’s representation. Re view SMB other bodies.
membership to other relevant strategic
bodies e.g. Criminal Justice Board,
Safeguarding Board etc.

1(iii)
Implement re vised nat ional MAPPA Rev iew guidance and create action pla n Within 3 months of national Dependant upon Improved national consistency. Guidance to be published
guidance. t o ident ify any change areas with publication (or earlier if national guidance. July – Sept 2007. Will form a
timescales. required by the guidance). part of MAPPA SMB delivery
in this y ear.

1(iv)
To pursue development of the full Ensure the introduct ion and training of all August 2006. Funded via MAPPA Greater u nderstanding and ViSOR fully implemented by
implementat ion of VISOR. relevant staff in the use of VI SOR. budget. applicat ion of VISOR. police in 2006. Probation
implementation awaited
scheduled for 2007/08
business year.

1(v) Annual fund raising to be submitted to Annual. ACO


Identify key financial contribution to the Boar d. Probation Delivery of MAPP A as per Discussions ongoing with k ey
MAPPA. Finance. budget. partners at SMB and wider
community.

Manage delivery of service within budget. Ongoing. SMB Chair. Achiev ed wit hin financial
constraints.

1(vi)
To oversee t he full implementation To strengthen the manag ement of June 2006. Police and Probat ion Applicatio n of VISOR f or all All cases at level 3 recorded
of VISOR. relevant offenders (MAPPA Co -ordinator). MAPPA cases. on ViSOR remainder of
To provide additional monitoring application of VISOR, eg
information level 2 outstanding to be
To improve inter-agency public protection def erred to business year
work 2007 – 08.
33

To enhance operational performance.


2. MONITORING AND EVALUATION (06-07)
34

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER INTENDED ACTUAL OUTCOME
/ RESOURCE OUTCOME

2(I)
Create Audit / Op SMB Sub-Group. MAPPP Manager Chair Sub Group to review Group to be constituted by No addit ional Improved auditing Deferred aim until business year
and develop audit arrangements regarding September 2006. Group to resource required. arrangements. 2007 – 08.
Level 2 & 3 and advise SMB. report to SMB meetings
quarterly.

2(ii)
SMB to monitor: Repo rt to be approved by SMB prior to Annual report to be published as No addit ional Better learning from Key Members consult ed prior to
• Publicat ion of Annual Report publication as pr eviously achieved. required nationally. resource required. critical incident publication of annual report.
• Analysis of MAPPA offenders reporting.
who commit serious further SMB to receive analysis of any cas e where a Serious Further Off ence No Serious Furt her O ffence
offences Serious Further Off ence has occurred or there reciprocal arrangements in place Review in process. O ne case
is a Serious Ca se Review. with East Midlands MAPPA. commenced in 2005. Of fence
commit ted in 2006 ongoing
discussion in process.
• Attendance and
• co-opera tion of agencies Clarify Serious Further Off ence pro cedures by Sharing of Serious Further Guidance on SFO awaited
• at Level 2 & 3 all agencies. Rev iew relevant s ingle agency or Offence reports needs publis hed July – Sept 2007.
• Profile of offenders at Level 2 multi agency reports in relation to MAPPA confirmat ion with individual
& 3. off enders. agencie s or strategic bodies From December 2006 New
(e.g. Safeguar ding Board). MAPPA M anager undertook
Cont inued attention to of fender profiling complete rev iew of pr ocess and
information rec eiv ed at SMB meetings. procedures.

Deferred until business year


2007/ 08.

2(iii)
Implement MAPPA performance Implement performance framework an d adapt In line with national timescales. Not known. National consistency. Publication July-Sept 2007.
indicators once produced SMB reports to capture performance Locally SMB members are
nationally. information as required nationally. 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 Implement as required nat ionally. In line with national timescales. Not known. May National consistency. National guidance awaited
colla tion in line with n ational require amendments publis hed July – Sept 2007.
requirements. to lo cal protocol in
relation to
conf identiality
agre ements et c.

2(v)
Develop Serious Case Review Implement as required nat ionally. In line with national timescale. Not known. National consistency. Ongoing.
procedures in l ine with national
guidance.

2(vi)
Developme nt of Domestic Violence Develop pro vision to support the eff ective As per national guidance. No addit ional To ensure a greater MAPPA for malising
objectives. management of (convicted) high risk Domestic resources. confidence in MAPPA arrangements with Saf eguarding
Violence offenders. arrangements Boards’ business pla ns. MAPPA
Ensure the arrangements incorporat e the concerning Domestic formalising arrangements to
conduct of multi-agency domestic murder Violence and victims dovetai l plans with MARAC both
review s. as per Domestic to be key ai ms in MAPPA
Violence and Victims business plan year 2007-08.
Act 2004.

2(vii)
To Suppo rt and Promote Public Support and promote use of From April 2005. No addit ional Ensure greater The police now give
Protectio n Sentencing Measure s, Disqualification O rders resources. understan ding and use considerat ion at point of
and the use of Civ il Orders that Notification Orders of the range of conviction to obtaining a SOPO
contribute to the protection of Sexual Offences Prevention Orders Init iatives available to on all offenders conv icted of a
victims and t he public. Foreign Travel Orders MAPPA. sexual of fence, with t he
Risk of Sexual Harm Orders. Northants Police Dangerous
Persons Management Unit pro
actively making applications on
convict ion for those charged with
sex offences.
35
3. COMMUNICATION AND STRATEGIC PARTNERSHIP STRATEGY (06-07)
36

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER/RESOURCE INTENDED ACTUAL OUTCOME
OUTCOME

3(i)
Publish impro ved MAPPA Annual I mplement as previously with In line with national timesc ale. Financial costs to be minimised Constant endeav our for From business year
Report in consultation wit h SMB attention to improvements wh ich by use of electro nic distribution improved dialog ue with 2007/08 a report will
and Lay Members with can be made. where possible. the public. include cross ref erence
developed capacit y for public to other key strateg ic
engagement and understanding. docum ents.

3(ii) All agencies to give priority to


Ensure appropria te attendance at appropriate attendance. In line with national timesc ale. Staff time for participating Better understanding of MAPPA manager to
Nat ional MAPPA Conference. agencies. national prio rities. attend conference June
2007.

3(iii)
Create communication sy stem for To be devised by MAPPA Immediately. None. More ti mely and On going achieved.
the distribut ion of guidance and administration. structured
good practice whic h is shared communication.
f rom re sponsible aut hority
national st eering group.

In conjunction with the Local


Safeguarding Children Board Seek introduction of all three Home To be achieved within MAPPA staff and SMB member Not achieved to date.
develop lo cal initiativ es, where O ffice supported initiativ es and business year. time. Greater p ublic
possible, to implement: seek to publicise where protection in relatio n to
• Leisurewatch appropriate. sex off enders.
• Stop It Now
• Circles of Suppo rt.

3(iv) I mplement as per pre sentat ion Wit hin business year. Supporting People. Greater support for Working party.
Consideration to the adoption of 01/06. MAPPA Of fenders re Developing s upporting
Supporting People floating tenancy maintenance people s pecification
support for High Risk. and re integration. 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 ACTUAL


E OUTCOME OUTCOME

4(i)
Support t he att endance of Lay Members at Lay Members to cont inue attendance at relevant As required. Cost to be met by Better equipped Lay Assistant Chief
local and national training events. national and local training events. MAPPA partners via Members. Probation Officer
MAPPA budget. attended training
event February
2007.

4(ii)
Ensure appropria te attendance at national MAPPA staff to attend as appropriate. As required. Cost to be met by Better equipped co- MAP PA Manager to
MAPPA Co -coordinators Conference. partners. ordinators. attend conference
June 2007.

4(iii)
Dev elop training plan to inc lude: MAPPA Manager, in c onsultat ion with Responsible Strategy to be produced to SMB There may be costs Improved skill and MAP PA Manager
Author ity and Duty to Co-operate training by August 2006 and reviewed attached and t hese knowledge of staff has co-ordinated
depar tments to produce training strat egy which October 2006. should be set out and SMB members. planning for multi
builds upon the present skills and knowledge of within the Plan. age ncy trai ning
staff and SMB members. group to deliver
trai ning for MAPPA
across county in
business year 2007
– 08.
37
1. MAPPA DEVELOPMENT STRATEGY (07-08)
38

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER / RESOURCE OUTCOME

1(i)
To incre ase resilience in the ability Complete work to se cure a stable To be finalised during business year Additional resources to be Cost of administration support for
to deliver MAPPA processes budget fr am ework and appropriat e 2007 – 08. explored. MAPPA requirem ents to be agreed.
through the appointment of administrative re source. Review
additional resources at administrative roles to ensure
administrative level and deputy complementary working
MAPPA manager. arrangements.

1(ii)
Complete R eview of SMB Review SMB mem bership to On going throughout business year. Strengthening of strategic
membership to ensure most include other relevant stra tegic Review may result in SMB partnership with a gencies and other
effective representation. bodies e.g. Criminal Justice Board, members representing MAPPA on strategic bodies.
Safeguarding Board etc. Include other bodies.
membership of St Andrews More robust risk management
hospital. arrangements.

1(iii)
Implement r evised national MAPPA Review National Guidance and In conjunction wi th other MAPPA Awaiting publication of national Improved National consistency.
guidance. create ac tion plan to identify any areas within the region as required guidance.
changes with time scale s. by National time scales.

1(iv)
To pursue development of the full Ensure the introduction and training National roll out to comm ence Funded by MAPP A budget. Greater under standing and usage of
implementation of VISOR. of all relevant staff in the use of September 2007 March 2008. Once Additional funds for admin support VISOR.
VISOR. learning has been disseminated forthcoming from National roll out
from early adopters. programme.

1(v)
Identify key financial contributions Manage delivery of service withi n On going in conjunction with SMB Chair Delivery of MAPPA as per budget.
to MAPPA. budget. Budget formulation.
1. MAPPA DEVELOPMENT STRATEGY (07-08)

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

To improv e multi agency public


protection work.

To enhance operational
performance.

1 (vii)
Create and develop separate Develop working protocol policies From April 2007 in consultation MAPPA Co –ordination additional Comprehensive MAPPA
comprehensive MAPPA and procedures in conjunction with with SMB and senior Management resources provided by St Andrew’s arrangements for patients at St
arrangements with St Andrew’s St Andrews Hospital in line with at St Andrew’s Hospital. Hospital. Andrews Hospital.
Hospital. National requirements.

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 To strengthen and develop working On going during business year. Health in conjunction wi th SMB. Identification of need and
procedures in conjunction with the relationships and pra ctice within the development of services to mentally
county mentally disordered offender Health Care trust. disordered offenders.
sub group.
39
2. MONITORING AND EVALUATION (07-08)
40

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER / RESOURCE OUTCOME

2 (i)
Create Audit /Op SMB Sub-Group. MAPP A Manager to establish and Group to be constituted in No additional resource r equired. Improved auditing arrangements.
Chair Sub Group to review and conjunction with S MB timetable.
develop audit arrangements
regarding Level 2 & 3 cases and
advise SMB.

2 (ii)
SMB to monitor:-
• Publication of Annual report. Report to be app rov ed by key
members of SMB prior to In line with national timescales. No additional resources required. National consistency.
publication as previously achieved.

• Analysis of MAPPA offenders


who commit serious further SMB to rec eive analysis of any
offences. case where a Serious Further In line with national time scales. Additional MAPP A administration National consistency.
Off ence has occurred or there is a support.
Serious Case Review.
• Attendance and
co-operation of a gencies at Develop and establish m onitoring
Level 2 & 3. arrangements to record attendance In line with national time scales. Additional MAPP A administration In line with national monitoring
and participation at level 2 & 3 case support. requirements.
discussions.

• Profile of offenders at Level 2


& 3. Report on off ender profiling to In line with National time scales. Additional MAPP A administration Greater understanding by SMB of
SMB. support. local profiling. In line with
MAPPA Guidance and National
• Monitor and analysis the requirements.
diversity profile of off enders Report on off ender profiling to
assessed at Level 2 and Level 3. SMB. In line with National time scales. Additional MAPP A administration Greater understanding by SMB of
support. local profiling. In Line with
• Monitor and analysis National Guidance and National
of use of MAPPA risk requirements.
management thre sholds at level Report on Offender profiling to In line with National time scales. Additional MAPP A administration Greater understanding by SMB of
2 @ 3. SMB. support. risk management thresholds at level
2@3.
2. MONITORING AND EVALUATION (07-08)

2 (iii)
Implement MAPPA performance Implement performance framework In line with national timescales. Not Known. National consistency.
indicators once produced nationally. and adapt SMB reports to capture
performance as r equired nationally.
2 (iv)
Implement re cording and data Implement as required nationally. In line with national timescales. Not Known. National consistency.
collation in line with national
requirements.

2 (v)
Develop serio us Case R eview Implement as required nationally. In line with national timescales. Not Known. National consistency.
procedures in line with national
guidance.
2 (vi)
Development of Domestic Violence MAPP A manager to report to SMB On going throughout business year No additional resource required. In conjunction with Safeguarding
objectives. on progress during business year. 2007 -08. business plan and M ARAC develop
protocols, Policy Procedures and
• Develop operational working se rvice s for perpetrators and victim s
relationship with MARAC. 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 Support and promote use of On going. No additional resources. Continued understanding and use of
Protection S entencing Measures, Disqualification Orders, the range of initiatives available to
and the use of Civil Orders that Notification Orders, S exual MAPP A.
contribute to the public. Off ences Prevention Orders,
Risk of Sexual Harm Orders.
41
3. COMMUNICATION AND STRATEGIC PARTNERSHIP STRATEGY (07-08)
42

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER / RESOURCE OUTCOME

3 (i)
Publish in formative MAPPA To be circulated in accordance with In accordance with national time Financial costs to be minimised by Improved public / agency
Annual Report in line with national MAPPA communication stra tegy. scales. use of electronic distribution where understanding.
guidance in consultation with SMB possible.
with developed capacity for public
engagement and understanding.

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

3 (iii)
Create communication system for To be devised by MAPPA In consultation with SMB. None. Clearer, time bo und and structured
the distribution of guidance and good administration. information.
practice which is shar ed from
Responsible Authority national
steering group.

In conjunc tion with the Safeguarding


Children Board develop local Seek introduction of all three Home In consultation with SMB. MAPPA staff and SMB member Greater public protection in relation
initiatives, where po ssible, to Office supported initiatives and time. to sex offenders.
implement. seek to publicise where appropriate.
• Leisurewatch
• Stop It Now
• Circles of Support.

3 (iv)
Implementation of Supporting Interviews for organisations who Anticipated implementation date Supporting People. Greater support for MAPPA
People floating support for High have tendered for core business September 2007. offenders re tenancy maintenance
Risk Off ender. May 2007. and reintegration.
3. COMMUNICATION AND STRATEGIC PARTNERSHIP STRATEGY (07-08)

3 (v)
Develop and publish a To be devised by MAPPA Manager Anticipated launch date October MAPPA staff and SMB member Gre ater public and multi agency
comprehensive MAPPA and a ctioned with the authority of 2007. time. awareness of MAPPA.
communication str ategy to be rolled SMB.
out across the county incorporating
all Responsible Authorities and each
agency with a duty to co –operate.

3 (vi)
Ensure S MB are fully aware of roles Increased number of SMB On going during business year SMB members. Incre ased active involvement of
and r esponsibilities of SMB meetings. Increased participation of 2007 – 2008. SMB in MAPPA.
members and contribute towards SMB me mbers.
MAPPA development.
43
4. TRAINING STRATEGY (07-08)
44

STRATEGIC AIM DELIVERY PLAN DELIVERY DATE OWNER / RESOURCE OUTCOME

4 (i)
Support the attendance of Lay Lay members to continue As required. Cost to be met by MAPP A partners Enhanced knowledg e of Lay
Members at local and national attendance at relevant national and via MAPPA budget. members.
training events. local training events.

4 (ii)
Ensure appropriate attendance at MAPPA Manager to attend. June 2007. Cost to be met by partners. Better equ ipped co-ordinators..
national MAPPA Co-ordinators
conference.

4 (iii)
Develop tr aining plan to include: MAPPA Manager, in consultation Initial scoping and planning for It is anticipated this training will be Improved knowledge of multi
with Responsible Authority and multi agency involvement / training county wide and be delivered in 4 agency staff and SMB members.
Duty to Co-operate training April - August 2007. Delivery separate multi agency venues
departments to produce training anticipated from September 2007 incorporating multi agency training
strategy which is linked with the Feb 2008. departments. The cost of the
communication strategy and training will be m et from each
incorporates the new MAPPA agency budget.
guidance.

4 (iv)
MAPPA awareness training for key A series of training sessions for key From April 2007 on going. St Andrews Hospital / Delivery by Knowledge of MAPPA
professionals at St Andrew’s personnel at St Andrew’s Hospital. MAPPA Manager. arrangements process an d
Hospital procedures for key staff