Ministerial Foreword by Baroness Scotland The work being undertaken to improve the safety of communities through the Multi-Agency Public Protection Arrangements (MAPPA) is vitally important and a priority for government. The annual reports for 2004/5 provide evidence of that active engagement. Violence and sexual abuse are unacceptable wherever they occur and it is evident that through MAPPA such offenders are identified and better managed than ever before. As the number of offenders within MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that is the local police, probation and the Prison Service, is addressing these additional demands by strengthening local partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where they breach their licence or order, and using the findings of research and inspection to strengthen national guidance and local practice. Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping to ensure that fewer people are revictimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me one of the most exciting developments in this arena in the last 12 months has been the appointment of lay advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public these lay advisers represent a diverse, able and committed group of people who are now helping the statutory agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively. Without a growing sense of public knowledge and confidence about this work much of the benefits of the public protection arrangements will be lost. I hope this annual report will be useful, informative and re-assuring to local communities. The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.

Baroness Scotland Minister of State for Criminal Justice and Offender Management


By Chief Officer of Probation, Chief Constable and Area Manager HM Prison Service This is the fourth annual report describing the work of the Multi Agency Public Protection Arrangements, (MAPPA) in Northamptonshire. It presents an opportunity for all those involved to demonstrate transparency in our work, inspire confidence and benefit from continuing comments, as well as any criticism. Sexual and violent offences deeply affect the lives of victims and their families and inspire fear in local communities. Their impact can be profound and long lasting, leaving victims feeling unsafe even in their own homes. The Annual Report outlines the ways in which agencies are working together in Northamptonshire, through mutual understanding to protect the public from dangerous offenders. Core to the effective delivery of public protection is accurate, sound and considered risk assessment of offenders (risk of reconviction and risk of harm), this leads to well planned and co-ordinated intervention designed to reduce the likelihood of further offending and the successful reintegration of the offender into the community. The case studies included in this report show how serious offenders are effectively managed in Northamptonshire. Two major police operations in Northamptonshire, targeting offenders who are involved with child pornography over the Internet have been extremely successful and has helped underline the seriousness of this type of offence. Those prosecuted or cautioned are required to register as sex offenders. The effectiveness of MAPPA in Northamptonshire has been further strengthened by the appointment of two Lay Advisors to the Strategic Management Board who bring a local viewpoint to reviews of its effectiveness and the implementation of any changes needed.


The establishment of the National Offender Management Service, (NOMS), with merger of the Probation and Prison services along with the introduction of the Criminal Justice Act 2003 are major developments in the sentencing and management of MAPPA offenders. These developments will further strengthen the effective management of MAPPA offenders in Northamptonshire and will enhance the availability of opportunities for such offenders to address the reasons and impact of offending, whilst looking at options for change

Peter Brown, Chief Officer, Northamptonshire Probation Area

Peter Maddison, Chief Constable, Northamptonshire Police.

Bob Perry, East Midlands South Area Manager, HM Prison Service

A General Overview of MAPPA
The Criminal Justice and Court Services Act 2000 introduced a statutory duty on police and probation to make joint arrangements for the assessment of the risks posed by sexual and violent offenders and other offenders who may cause serious harm to the police. A duty to cooperate was placed on other agencies notably Social Services, Health Service and Local Authority Housing Departments, electronic monitoring providers, youth offending teams and many other agencies. Multi Agency Public Protection Arrangements • Offenders falling within the remit of MAPPA comprise the following: Category 1: Registered sex offenders (RSOs) – referrals primarily from the police and probation. Category 2: Violent and other sex offenders – referrals primarily from probation – custodial sentences of 12 months + for violence. Category 3: Other offenders – primarily referrals from probation. Responsible authority must: 1. Be satisfied that the person has a conviction for an offence which indicates that he/she is capable of causing serious harm to the public. And 2. Reasonably consider that the offender may cause serious harm to the public. (Health and other agencies can also make referrals in respect of all three categories).


The MAPPA framework identifies three separate but connected levels at which risk is assessed and managed: Level 1 : Ordinary Risk Management Offenders managed at this level are generally low or medium risk cases. A large number of all MAPPA offenders are managed at this level.

Level 2 : Local Multi Agency Risk Management This is used where the active involvement of more than one agency is required but where either the level of risk of the complexity of managing the risk is not so great as to require referral to level 3 (MAPPP). Cases may be referred here from level 3. A significant numbers of offenders are managed at this level. Chairing is the responsibility of police and probation. Social services departments, housing, youth offending teams, health professionals and probation victim contact officers routinely attend.

Level 3 : Multi Agency Public Protection Panel Management of the ‘critical few’ - OASys (risk assessment tool) reflects that the risk of harm to the public is high or very high and the offender presents a risk that can only be managed by a plan which requires close co-operation at a senior level due to complexity of the case and/or because of the unusual resource commitments it requires; or because of media scrutiny/public interest.

There has been a significant increase in the number of people required to register with the Police as sex offenders. This reflects the lengthy periods of time over which sex offenders are required to register – some for life. Consequently, fewer sex offenders have reached the end of their registration periods than have been newly required to register. The success of Operation Orr and Operation Patriot in Northamptonshire, targeting child


pornography over the internet, also added to the numbers of registered sex offenders in this area. 6 sex offenders were cautioned or convicted for breaches of their registration requirement. Breaches are most commonly for failure to register with police within three days of any change of address. Police routinely visit and monitor registered sex offenders in order to protect the public and take action when breaches occur. Similarly, statistics show that Probation in Northamptonshire continues to take action to protect the public by recalling sex and violent offenders when they breach their licence conditions. 6 Sex Offender Prevention Orders (SOPOs) were successfully applied for and a further two Interim Sex Offender Prevention Orders were granted. These orders are applied for via the courts where MAPPA believe that in order to protect the public, it is necessary for police to ask the court to grant a Court Order preventing or prohibiting a person who has a previous conviction for a sex offence from doing certain things e.g. from having contact with children. There has to be evidence of heightened risk in the recent behaviour to support the application but not necessarily any recent conviction. (E.g. Case Study A). When a Sex Offender Prevention Order is granted the person must then register with police as a sex offender. Breach of a Sex Offender Prevention Order can result in a prison sentence. The decrease in the number of Category 2 offenders reflects some refinement in the collation of those statistics in Northamptonshire. There has been a slight increase in the number of Category 3 registrations. These are mostly perpetrators of domestic violence who are not subject to licence conditions but who are mainly subject to Community Rehabilitation Orders with requirements to attend relevant programmes designed to help reduce their risk of harm to the public.


The role of the Prison Service in MAPPA -2004/5
One of the important ways in which the Criminal Justice Act (2003) strengthened MAPPA was to make the Prison Service part of the Responsible Authority with police and probation in each of the 42 Areas in England and Wales. The Prison Service has been given this enhanced role in recognition of the important part it plays in protecting the public by keeping offenders in custody; helping them to address the causes of their offending behaviour; and by undertaking other work to assist their successful resettlement. As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs) in the 42 Areas. The Prison estate is configured differently from Police/Probation areas in that its establishments are contained within only 12 geographical areas and two functional areas – the High Security estate and Contracted Prisons. For this reason arrangements for Prison Service representation on SMBs vary across the country, but each Prison Service Area Manager has entered into an agreement with the SMBs on how the Service will contribute both strategically and operationally to the MAPPA. The main focus of the Prison Service contribution is at an operational level. A number of measures have been put in place across the prison estate to ensure that this will be effective and result in: • Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements including interventions to manage and reduce risk. Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with police and probation colleagues. All relevant risk management information being provided to multi agency meetings, which help plan, an offender’s release. At least three months notification to police and probation of 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 risk meetings.

• •


No changes to release dates or arrangements being made without prior consultation with police and probation.

Playing an effective role in the multi agency risk management of MAPPA offenders requires good communication between criminal justice partners. The Prison Service has taken steps to ensure that there are dedicated points of contact for public protection at both Area level and in every prison establishment and that these are published together with police and probation contacts to ensure better communication across the Responsible Authority. With the ever increasing MAPPA population and proportion of those received into prison likely to grow with the introduction of the new public protection sentences, the inclusion of the Prison Service as part of the Responsible Authority will continue to be vital in protecting the public.

Key Achievements
Introduction of Accredited Programme in Respect of Domestic Violence
Since 1981 the largest increase in violent crime has been incidents of domestic abuse (Home Office 1999). The serious harm caused by domestic violence has been increasingly recognised. Each year 45% of female homicide victims are killed by present or former male partners. Between April 04 and the end of March 05 incidences of Domestic Violence resulted in 187 convictions in Northamptonshire. Domestic violence units dealt with a total of 288 defendants, most of whom were men (14 were women). Northamptonshire Probation Area is introducing an accredited programme to address this type of offending. The programme is known as the Integrated Domestic Abuse Programme (IDAP) and is designed for adult male perpetrators of domestic violence who are or were in a heterosexual relationship. IDAP is based on the premise that almost without exception, men who abuse their female partners do so deliberately to control their victims and their actions are based on beliefs that allow them to justify this behaviour.


IDAP recognises domestic violence as a destructive pattern of behaviour that extends to a range of problems including alcohol abuse, family histories of violence, poor interpersonal skills, distorted views of relationships, low self esteem and problems with identifying or expressing emotions. The male perpetrator’s violence is linked to his view of the world and his partner’s place in it. A change is necessary concerning their values and goals with regard to intimate relationships with women; otherwise they will continue to find reason for the use of physical violence to control their partners. Safety Workers will be involved with participants’ partners and the active joint approach to risk management with clear links to MAPPA is an integral part of the delivery of the programme. Sunflower Centres have been established in Northampton and Corby. They offer a confidential and comprehensive service to victims of domestic violence. Police Officers attached to the Sunflower Centres work with other professionals offering support and practical assistance irrespective of whether the victim wishes to pursue prosecution.

The Violent Offender & Sex Offender Register (Visor)
The Criminal Justice and Court Services Act 2000 places a joint responsibility on Police and Probation to improve the way violent offenders and sex offenders are monitored. A national data base is therefore being established to assist with this task.

Protocol with HM Prison Service
The Strategic Management Board and the Prison Service in the East Midlands have agreed a formal Protocol for the exchange of information to assist in the risk assessment and risk management process in relation to MAPPA Offenders.

New Protocol with Local Housing Authorities
There is broad agreement that in order for offenders to be able to focus on programmes of intervention designed to challenge their offending behaviour and reduce their risk of harm to the public, appropriate accommodation is crucial.


The Housing Protocol agreed in 2003 is now regarded as a working document. It was recently reviewed and it is recognised that in itself, the housing protocol does not provide a comprehensive solution to the provision of housing for homeless MAPPA offenders and it needs to be extended to include other housing providers e.g. social landlords. Accommodation resources are varied across Northamptonshire and voluntary housing projects also offer valuable resources. Tackling the problem of accommodation provision for MAPPA offenders in Northamptonshire is complex. The Government initiative, which is Supporting People are committed to offering a service to provide additional support and monitoring which may encourage housing providers to feel more confident about offering accommodation to MAPPA offenders and support them to successfully sustain their tenancies. Lay Advisors have joined the Strategic Management Board Last year the Home Secretary announced that two Lay Advisors would be appointed to each Strategic Management Board in England and Wales. This followed from public concern regarding the risk posed by certain offenders in the community and in particular those who pose a serious risk of harm to children. Two Lay Advisors have been appointed in Northamptonshire who will contribute to the deliberations of the Strategic Management Board and assist with MAPPA review functions designed to monitor effectiveness and make any necessary or appropriate changes. The appointment of Lay Advisors, who have a role in bringing their local perspective and understanding as members of the public, to the Strategic Management Board, is in accordance with Section 326 of the Criminal Justice Act 2003. Lay advisors will undertake training on a local, regional and national basis. The increase in the number of registered sex offenders in Northamptonshire over the past twelve months should be seen in the context of two major police operations which successfully targeted offenders involved with child pornography over the internet and includes those downloading pornographic images of children. It must also be borne in mind that sex offender registration periods are lengthy, ranging from five years to life following conviction, depending on the seriousness of the offence and sentence. Consequently, the registration period has not elapsed for many offenders over the last twelve months whilst more have been required to register, often at the point of release from lengthy prison sentences. Those who are made subject to Sex Offender Prevention Orders are also required to register with police.

The Operation of MAPPA The Structure The Strategic Management Board oversees all three levels of MAPPA. These Levels are: Level 1 – Ordinary Risk Management of low/medium risk offenders who meet the MAPPA Criteria and are usually managed by a single agency. Level 2 – Local Inter-Agency management, medium/high risk cases requiring the involvement of more than one agency. Level 3 – Offenders assessed as high/very high risk of causing serious harm managed by the Multi Agency Public Protection Panel. The Chair of Strategic Management Board is drawn from the Responsible Authority – Police, Probation Service and Prison Service. Police currently chair the Strategic Management Board in Northamptonshire. In addition to senior management representatives from the Responsible Authority the following agencies are represented both at SMB and the Multi Agency Public Protection Panel: Housing Services; Youth Offending Service; Social Services; and Northamptonshire Healthcare NHS Trust. Additionally, two lay advisors have been recruited to the SMB. The MAPPP (Level 3) meets monthly in Northampton. Risk Assessment and Risk Management Meetings (Level 2) are held fortnightly in Northampton, monthly in Kettering (also covering Corby) and monthly in Wellingborough. The MAPPA Manager chairs both MAPPP and The Risk Assessment and Risk Management Meetings. The MAPPA Manager is accountable to the Strategic Management Board and reports to that Board on a quarterly basis. The MAPPA Manager also sits on Northamptonshire Area Child Protection Committee thereby strengthening the links between MAPPA and the Northamptonshire Area Child Protection Arrangements.


MAPPA in Practice
Public Protection work is for the most part carried out by each of the partner agencies in their normal duties. Good quality risk assessment and clear risk management plans, together with appropriate professional input at the first level ensures offenders are assessed and risk managed appropriately. Offenders are offered the opportunity to gain understanding as to why they offend and support to develop strategies to control or change their behaviour. When an agency has a concern about an offender who meets the MAPPA criteria, they can refer to MAPPA. At this stage a full risk assessment is undertaken using a Risk Assessment tool. The Risk Assessment tool used will vary according to the agency (OASys is used by the Probation Service and Prison Service, Risk Matrix is used by the Probation Service in addition to OASys in some instances and it is used by the Police, Asset is used by the Youth Offending Teams). Risk Assessment tools are used to help inform decision making concerning risk management levels and risk management plans. A Risk Assessment and Risk Management Meeting may be arranged in response to referral. Key practitioners who have contact with the offender are obliged to attend. Line Managers are also encouraged to attend. This meeting will consider the assessment of risk, agree the Level of Risk Management required and formulate a Risk Management Plan. 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 3 are reviewed regularly to consider whether the risk continues to require multi-agency management, the effectiveness of the risk management plan and any changes to it, which may be appropriate. An offender who meets the MAPPA criteria will be managed on a multiagency basis if effective risk management requires the active involvement of two or more agencies.


Role of the agencies involved
Police The Sex and Dangerous Offenders Unit comprises a Detective Sergeant, two Detective Constables and a Police Support Officer. These Officers risk assess all registered sex offenders using an evidence-based risk assessment tool. They visit registered sex offenders at home and ensure the sharing of information both within the Police and with other agencies, in particular Social Services’ child protection teams. Through their assessment of risk, the police identify individuals whose risk indicates the need for cooperation between two or three partner agencies. The police work closely with the Probation Service frequently undertaking joint visits to offenders. Police identify individuals for referral to the MAPPP and to the Level 2 Risk Assessment and Risk Management Meetings. Crucially, Police have a key role in carrying out risk management plans. This covers covert surveillance of offenders, the provision of alarms to potential victims, the disclosure of information to members of the public and giving support and advice to offenders. Two Officers from the Sex and Dangerous Offenders Unit are Core Panel Members. Community Based Police Inspectors and Sergeants routinely attend the Risk Assessment and Risk Management Meetings in their Local Areas. Additionally, Domestic Violence Officers attend both Level 2 and Level 3 Meetings as appropriate in respect of cases in with which they are involved. In Northampton and in Corby these officers are based at the Sunflower Centre. A key development has been a greater awareness/confidence of community-based police officers who are increasingly making referral to MAPPA. Stronger links are also being forged with the Crown Prosecution Service who has taken forward requests for Sex Offender Prevention Orders. Sex Offender Prevention Orders are imposed by the Courts and prohibit certain activities linked to the sex offender’s risk of commuting further offences. They are applied for via the Crown Prosecution Service.


Probation The Probation Service uses the Offender Assessment System (OASys) to risk assess each offender it supervises or in respect of whom it prepares a court report. Additionally, specialist risk assessment tools are used when assessing offenders convicted of specific offences such as sex offences and domestic violence. The High Risk Team supervises 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 to reduce the risk they pose to the community e.g. prohibit contact with victims. Community sentences and post release licences are rigorously enforced with breaches resulting in court action or recall to prison. Northamptonshire Probation Area also delivers the Community Sex Offender Groupwork Programme. This comprises a 240-hour programme for men who have committed sexual offences to gain insight into (understanding of) their offending, identify the triggers and develop strategies to control their abusive behaviour. The aim of the programme is for sex offenders to: take responsibility for their actions and the harm they have caused; make changes in their lives to reduce their risk of re-offending; develop sustainable, healthy lifestyles and strategies to stop them relapsing into abuse or damaging behaviour. Northamptonshire Probation Area also runs a Sex Offender Groupwork Programme adapted for men who have learning difficulties. This Programme is being delivered together with the Forensic Psychology Partnership. Northamptonshire Area is piloting the use of a polygraph in its work with sex offenders. The polygraph which has been described as a “truth facilitator” checks breathing, cardiovascular activity and sweating whilst a series of questions are asked, the questions are agreed beforehand and each one is asked three times. Three or four of the questions are relevant. It is used at the start of the Sex Offender Treatment Programme to elicit disclosure, and subsequently (usually six monthly) to monitor compliance and areas of concern. It is used on a voluntary basis as it is a pilot programme. The supervising Probation Officer normally attends all MAPPA Meetings.


The Prison Service The Prison Service is represented on the MAPPP by the Head of Resettlement based at a local prison. As previously mentioned there is a protocol agreed by the Prison Service in the East Midlands region and the SMB. This sets out the expectations in terms of information sharing and level of attendance at MAPPA meetings. OASys is also the risk assessment tool used by the Prison Service in England and Wales. Prison staff identify prisoners who fit the MAPPA criteria and ensure that this is recorded on the Local Inmate Data Base System (LIDS). Inter-departmental risk management team meetings are held. The offender’s risk of harm is assessed and this assessment is kept under review. Relevant information is passed to the Supervising Officer and in respect of Level 3 Cases to the MAPPA Manager. It is also passed to the receiving prison when prisoners are transferred. Within the Prison environment various Programmes are offered to assist offenders to address their offending behaviour including the Sex Offender Treatment Programme. Prison representatives make a valuable contribution to MAPPA pre-release as they are able to give information regarding the offender’s attitudes and progress. They share information about the offender’s discipline record, education opportunities etc. to assist in the planning and management of risk. The Prison service can also access resources such as psychiatric assessments whilst the offender is in custody. Community Forensic Services A core panel member represents Northamptonshire Healthcare NHS Trust Community Forensic Services at Management Level. Community based mental health Nurses work closely with MAPPA and one has particular responsibility for Prison in-reach in respect of Northamptonshire cases where mental health issues are apparent. They attend Level 2 meetings and also Level 3 when appropriate. Information they are able to share together with their knowledge of mental health issues and skill in working with offenders suffering from mental illness or personality disorder is critical to the work of MAPPA. Community based mental health services have taken forward referral to the Personality Disorder Outreach Team in Leicester, which is a new pilot scheme operating in the East Midlands Area. It provides assessment concerning Personality Disorder and offers consultation re interventions targeted specifically to help reduce the risk posed by offenders diagnosed as personality disordered who are subject to mental health patient care.

Housing Northamptonshire has seven Local Authorities, each with its own housing department. Each one has now identified a MAPPA contact within the Housing Department. The contact from Northampton Borough Council is a core panel member. The other six Local Authority Housing Departments work with MAPPA on a case-by-case basis. Whilst it is recognised that the provision of stable accommodation is necessary for effective case management (monitoring and intervention) of MAPPA offenders it is often difficult to meet this need, particularly where there is a history of aggression and anti -social behaviour towards accommodation providers or particular offences such as arson. Difficulty in obtaining suitable accommodation for some MAPPA offenders has generated a great deal of anxiety as this increases the risk of harm to the public. As previously mentioned there is general agreement that the housing protocol agreed in 2003 should be extended and improved. A working party has been set up to examine how systems can be further developed to accommodate MAPPA offenders appropriately and to examine the possibility of developing support packages with assistance from Supporting People. It is agreed that in addition to accommodation, these offenders also need to have or to acquire the skills needed to maintain their tenancies successfully.

Youth Offending Team Youth Offending Teams manage young offenders who may present a risk to others but who may also be damaged by their childhood experiences and be in need of protection from others. Youth Offending Teams therefore undertake a specialist criminal justice role that links the work of the Police and child protection agencies. A manager represents the Youth Offending Team on both the MAPPP and the SMB. The Youth Offending Team is also represented at Level 2 on a case-by-case basis.


Social Services and Health Services Social Services and Northamptonshire Healthcare NHS Trust provide services to vulnerable groups both adults and children. These include services to children in need and their families, older people, disabled people and those with mental health needs. As the area of responsibility for these services is wide, three panel members represent them (in addition to the Manager for Community Forensic Services). One member who represents children’s services, manages child protection in the county and is therefore ideally placed to contribute towards the risk assessment and management of individuals where there are concerns for children. The Manager of the County Approved Social Work Service is also a Panel member contributing her own expertise to the panel and linking with other mental health professionals including Psychiatrists and approved Social Workers countywide. The third is the Senior Nurse Advisor for Child Protection; she links the panel with health services (community midwifes, health visitors and general practitioners) and with the Area Child Protection Committee.


Case Examples

The following case histories provide examples of multi-agency risk management in Northamptonshire over the past year. 1) Case A was convicted of sex offences some fifteen years ago and his victims were children. He was not required to register with Police as a sex offender because his offences and sentence expiry date pre-dated the requirement for registration, which is from September 1997. However, some people in the community were aware of his offending history. Case A made telephone contact with Northamptonshire Police and said that he was concerned that he was having sexual thoughts about children. Police were then informed by a member of the community that Case A was babysitting for small children whose parents were unaware of the risk he posed. Police called at the address where he was indeed babysitting for young children. There was no evidence to suggest that he had sexually abused the children but he reiterated that he was having sexual thoughts (fantasies) about sexually abusing children. Police referred this case to the MAPPP and a risk assessment was undertaken by Probation. The MAPPP advised that a SOPO should be imposed. The Crown Prosecution Service made an application to the Court. The Court made him subject to a Sex Offender Order prohibiting him from having contact with children. The imposition of the SOPO also requires him to register with the police. Case A was motivated to engage with Sex offenders treatment. As his IQ was below 80 he was assessed as unsuitable for the Core Sex Offender Treatment Programme but suitable for the Adapted Programme. Pre – Programme work has been undertaken with him on an individual basis by a psychologist who works in partnership with Northamptonshire Probation Area.


Case A also disclosed that his accommodation was at risk. He was living with a friend who was being evicted and Case A had no tenancy rights. With support from the MAPPA contact at the local Housing Department, he was suitably accommodated. MAPPP intervention in this case resulted in Case A’s risk of further offending being effectively reduced. He continues to engage with Probation on a voluntary basis and he is now risk managed at a lower level. 2) Case B has a history of violent offending which is linked to his consumption of alcohol. He has previously breached his licence by committing further violent offences and was returned to prison. Case B was consequently brought to Panel to formulate a risk management plan. A hostel placement was secured out of area in order to provide close monitoring and support for Case B responded well within the hostel setting, complied with his licence conditions and with the rules of the hostel. He demonstrated that he was able to control his drinking. Case B wished to return to live in Northampton and his father offered accommodation. The Panel had some concerns as he had not lived with his father since childhood as a consequence of his parents separating. The Case Manager visited his father and did some preparatory work in preparation for his return at an appropriate time. She assessed his father and his family as supportive of his controlling his drinking and not reoffending. Her approval of the move on address was endorsed by the MAPPP. Weekend leave with his family was granted in the first instance. As this was successful he was subsequently given approval to reside at his father’s address whilst he remained closely monitored and the case was overseen by the MAPPP. He successfully resettled at the family home and his risk management level was reduced. Case C has numerous convictions for sex offences against children. He was subject to licence conditions and he was also subject to a Sex Offender Prevention Order prohibiting him from having contact with children. Case C had convictions for breach of his Sex Offender Prevention Order and his pattern of behaviour linked to his offending was predictable. He was placed in Approved Premises where he



could be most closely monitored. His movements were noted and it became clear that he was frequenting a particular venue. The MAPPP requested police surveillance and the police observed him making contact with a girl under the age of sixteen, which placed him in breach of both his Licence Conditions and his Sex Offender Prevention Order. He was immediately recalled to prison. An application was made for immediate recall to prison by the Probation Service. This was agreed and he was recalled the same day.

Work with Victims
The Probation Service has a statutory duty to contact victims in cases where a sentence of twelve months or more has been given for a sexual or violent offence and ask if they wish to be consulted about release arrangements. Specialist Victim Contact Officers employed by the Probation Service deal exclusively with the victims of crime. The Victim Contact Officers make extensive efforts to locate victims and ascertain if they wish to be consulted about the offenders release arrangements. Where a victim chooses to be consulted, the Victim Contact Officer will arrange to meet them at a time and place convenient to them. Victims are entitled to be kept informed of the release arrangements for the offender, the month in which the offender will be released, general location, and details of any licence conditions that restrict the offender’s movements and reduce the impact on the victim. Victims are entitled to be informed if the offender is discussed at MAPPP. The MAPPP has acted on concerns of victims, fed back via Victim Contact Officers, on licence conditions preventing offenders from entering specific geographical areas and prohibiting contact. Police have acted to protect victims and reduce their fears by the installation of alarms in victims’ homes. Victim Contact Officers link victims to Victim Support Services which operate separately from the Probation Service.


Future Developments
Changes in Sentencing The Criminal Justice Act 2003 introduced public Protection Sentences for dangerous offenders, which came into force on 4th April 2005. Public Protection Sentences are aimed specifically at sexual and violent offenders convicted of particular offences committed on or after the above date. An assessment of risk to the public will be made at the point of sentence and where the Court considers that the offender does pose a serious risk in the community Pubic Protection Sentences will apply. Life Sentences for public protection can be imposed under the act for serious specified offences which ordinarily carry maximum custodial sentences of ten years or more, such as rape committed on or after 4th April where in the opinion of the Court the perpetrator is likely to commit further serious offences (listed as specified offences) and therefore poses a significant risk of serious harm (death or serious personal injury which may be physical or psychological) to members of the public. Imprisonment for public protection may be imposed where the court is of the opinion that the perpetrator of a serious specified offence carrying a maximum penalty of ten years or more poses a risk of serious harm to the public but considers life imprisonment to be unmerited. Imprisonment for public protection is an indeterminate sentence (no limit of time), the minimum custodial term is announced in open court and then the offender will not be released until such time as the Parole Board is satisfied that the level of risk is manageable in the community. If the risk is not assessed as having been reduced to a safe level, the offender may never be released. Extended sentences for public protection may be imposed for specific offences which carry a maximum penalty of less than ten years where, in the assessment of the Court, the offender poses a significant risk of serious harm to the public. The custodial term is as would otherwise (if not assessed as posing a significant risk of harm to the public) be considered appropriate but the licence supervision period is extended by up to five years for a violent offence and eight years for a sexual offence. The Offender will be subject to recall if licence requirements are breached. The Criminal Justice Act will increase the duration of statutory involvement with public protection cases and make additional demands on the Responsible Authority.


Disqualification Orders Anyone convicted of a specified sexual or violent offence against a child, or of supplying a class A drug to a child, may be disqualified from working with children if sentenced to more than 12 months custody or a hospital or guardianship order under the Mental Health Act 1983. Legislation recently introduced (Criminal Justice Act 2003) now allows for the Crown Prosecution Service to make retrospective application. It also allows the higher Courts to make a disqualification order in cases where the penalty is less than 12 months custody if it believes the offender is likely to commit a further offence against a child. This is likely to lead to more disqualification orders being made. National Offender Management Service (NOMS) NOMS has been established during the last year and a Regional Offender Manager has been appointed in the East Midlands. NOMS covers both the prison and probation services, which are to be developed into an integrated Offender Management System with a single line of accountability for reducing re-offending and with strong links to health, education and other public services. NOMS has oversight of the Youth Justice Board for England and Wales. NOMS is introducing a way of working within a single framework with different organisations and staff within it working effectively together. The Offender Manager will have responsibility for ensuring that the sentence of the court is delivered effectively. There will be a split between Offender Management and the delivery of services which Regional Offender Managers will be responsible for commissioning. Accommodation In terms of accommodation there have been developments in respect of identifying MAPPA points of contact within all of the Council Housing Departments and meeting with them together to identify problems and consider resolutions. There is a need for further work in order to develop a clear and coordinated system to consider the most appropriate options for housing MAPPA Offenders at the point of release and in the longer term. In order to achieve this Local Authority Housing Departments have expressed a willingness to assist but other housing providers also need to be included. Joint training for housing and probation staff has


been identified as a need and Floating Support for High Risk Offenders is being pursued. Links with the CPS The establishment of links between the Crown Prosecution Service and MAPPA is being pursued at a senior level. Quality Control Following on from the East Midlands Region SMB Conference at which there was some focus on the issue of quality control, Northamptonshire SMB are pursuing the development of more robust audit systems.


Required for the reporting period 1st APRIL 2004 - 31st MARCH 2005

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The statistical information you will be required to publish in this year’s report will be substantially the same as last year's. However, to capture a more accurate picture of the work being done under MAPPA we shall require figures on level 2 activity in addition to level 3 (MAPPP) as well as outcome measures from that activity. New civil orders introduced by the Sexual Offences Act 2003 which replace and build on the Sex Offender Order and Sex Offender Restraining Order will also need to be recorded.

Type your area name here: Northamptonshire
Question Number of Offenders

1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i) The number of RSOs living in your Area on 31st March 2005.
This is information principally held by the police and is a snapshot of RSOs on 31/03/05. It should NOT include RSOs in prison.


ia) The number of RSOs per 100'000 head of population. (This figure will be calculated centrally by NPD) ii) The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2004 and 31st March 2005 Only those cautions that have actually taken place and breaches that have been successfully completed during the reporting period should be counted iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in your Area between 1st May 2004 and 31st March 2005 Sex Offender Orders & Sex Offender Restraining orders (both superseded by the SOPO) and their interim a) b) c)



8 8 6

counterparts applied for and/or imposed by the courts between 1st - 30th April 2004 should be incorporated into these figures a) b) c) a) b) 0 0 0 0 0

iv) The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in your Area between 1st May 2004 & 31st March 2005 v) The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in your Area between 1st May 2004 & 31st March 2005 2. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS) vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in your Area between 1st April 2004 and 31st March 2005 You should include in this figure only those Category 2 offenders who are living in your Area during the reporting period. You should NOT include those Category 2 offenders who are still in custody. Care must also be taken NOT to include here any Category 1 offenders. 3. Category 3 MAPPA offenders: Other Offenders (OthO) vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1st April 2004 and 31st March 2005. This figure should not include any offenders who are included in either the Category 1 or 2 (i.e. (i) and (vi) above) unless they have left those categories and are still considered by the Responsible Authority to pose a risk of serious harm



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4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management)


(viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (1)- RSOs, (2)- V&O and (3)- OthO above) have been managed through the MAPPP (level 3) and through local interagency risk management (level 2) between 1st April 2004 and 31st March 2005.


Level 3 14 7 8

Level 2 13 19 8

The level 3 figure is the ‘critical few’. The criteria for referring a case to the MAPPP are defined in MAPPA Guidance as those in which the offender: · is assessed under OASys as being a high or very high risk of causing serious harm; AND · presents risks that can only be managed by a plan which requires close co-operation at a senior level due to the complexity of the case and/or because of the unusual resource commitments it requires; OR · although not assessed as a high or very high risk, the case is exceptional because the likelihood of media scrutiny and/or public interest in the management of the case is very high and there is a need to ensure that public confidence in the criminal justice system is sustained. The level 2 figure should include those offenders who have not been managed at level 3 at any point in the counting period & meet the criteria set out in the MAPPA Guidance as follows: · The management of the offender requires the active involvement of more than one agency but the complexity of managing the risk is not so great as to require referral to Level 3, the MAPPP (ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2004 and 31st March 2005 how many, whilst managed at that level: (a) Were returned to custody for a breach of licence? (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? (c) Were charged with a serious sexual or violent offence?

a) b) c)

Level 3 6 0 0

Level 2 3 0 0

PLEASE NOTE: Only record outcome measures appropriate to the level at which the offender was managed at the time of their breach/further offence (e.g. if an offender was initially managed at Level 3 but goes on to commit a serious further offence after he has been moved to Level 2, he should be recorded in the 'Level 2' column for question (c)) For these purposes a serious sexual and violent offence is one of the following (i.e. the same offences as used to trigger reporting in the National Probation Service as a ‘serious further offence’): q Murder;q Attempted murder; q Arson (where there is an intent to endanger life); q Manslaughter; q Rape; q Kidnap/abduction or attempted kidnap/abduction. q Any other very serious violent or very serious sexual offence, armed robbery (defined as robbery involving a firearm), assault with a deadly weapon or hostage taking. q 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.



Name MAPPA Manager

Address Northamptonshire Police Crime and Community Mere Way Northampton NN4 8B

Telephone Number 01604 700700

Northamptonshire Area Northamptonshire Walter Tull House Probation Area Assistant Chief Officer 43 – 47 Bridge Street

01604 658000

Northampton NN1 1NS Northamptonshire Police Crime and Community Mere Way Northampton NN4 8BE East Midlands Area Office Empriss House Unit C, Harcourt Way Meridian Business Park Leicester LE19 1WP County Director Northampton Victim Support Scheme Angel Street Northampton NN1 1ED 7 – 8 Mercers Row Northampton NN1 2QL C/o The Volunteer Bureau Elizabeth Street Corby N’pton NN17 1PN

Northamptonshire Police Detective Chief Superintendent HM Prison Service Area Manager

01604 700700

01162 814016

Northamptonshire Victim Support Scheme Sunflower Centres

01604 603477

01536 204691

01604 233684