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Multi Agency Public Protection Arrangements (MAPPA)

Northumbria Area Annual Report

2006-2007
Glossary

DO Disqualification Orders

FTO Foreign Travel Orders

LCJB Local Criminal Justice Board

MAPPA Multi Agency Public Protection Arrangements

MAPPP Multi Agency Public Protection Panels

MHA Mental Health Act

NO Notification Orders

NPS National Probation Service

OASys Offender Assessment System

PPU Public Protection Unit

ROSHO Risk of Sexual Harm Orders

RMC Risk Management Conference

RMM Risk Management Meeting

SOPO Sexual Offences Prevention Orders

SMB Strategic Management Board

SPOC Single Point of Contact (Police Officer)

TDI The Derwent Initiative

ViSOR Violent and Sex Offender Register

VLO Victim Liaison Officer

YOT Youth Offending Teams


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
Contents

Section Page

Introduction 4

1 Key MAPPA achievements 5


1.1 This years progress
1.2 Moving forward
1.3 Recapping: the story so far

2 How the MAPPA operate locally 7


2.1 Assessing the risk
2.2 Managing the risk
2.3 The role of MAPPA and approved premises
2.4 Sex offender legislation
2.5 Court orders designed to manage risk
2.6 Accredited programmes
2.7 Disclosure

Case study: beginning to end offender management 11

3 Statistical Information 14
Northumbria Area MAPPA statistics 2006-7

4 MAPPA Strategic Management Board 17


4.1 Membership of the SMB
4.2 SMB responsibilities
4.3 The role of the lay adviser

5 Contacts 19

Appendix A: Northumbria SMB Business Plan 2006/7: 20


Progress report

Appendix B: Northumbria SMB Business Plan 2007/8 21

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Introduction

Since being introduced in 2001 the Multi Agency Public Protection Arrangements (MAPPA) has
brought a consistency, depth and focus to risk assessment and management. ‘Much has been
achieved in terms of enhancing public safety in the last 5 years and the arrangements are quite
rightly described as world leading’ (MAPPA: the first five years, Responsible Authority National
Steering Group, 2006).

The central purpose of MAPPA is to reduce serious harm from known offenders and prevent
further harm to victims, operating to a central principle that the risks presented in these typically
complex cases cannot be managed by agencies working alone. It is essential that the
responsible authority, made up of the police, probation and prison service work closely with
other relevant agencies as part of these arrangements. MAPPA is not a statutory body in itself,
but a mechanism through which agencies can better discharge their statutory responsibilities to
protect the public in a coordinated and joined up way.

In Northumbria, MAPPA is now well established and integrated into the operational practice of
the partner agencies. The system has a firm foundation building on the cooperation, goodwill
and responsible approach to working together which already existed; MAPPA has formalised
this working practice into a robust, structured system with central coordination from the MAPPA
unit at police headquarters and local knowledge and direction through the six strategy groups.

It is not possible to eliminate risk entirely but it is vital to ensure that everything that can be done
to prevent serious offenders from reoffending is carried out. Alongside this all involved in public
protection must strive to increase their understanding about what works best, respond rapidly to
new learning and continue to build upon achievements to date.

Lesley Bessant Mike Craik Phil Copple


Board Chair Chief Constable Area Manager
Northumbria Probation Area Northumbria Police North East Prison Service

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1. Key achievements

This year’s report is forward looking and identifies the challenges for MAPPA that lie ahead. It also
gives an account of how MAPPA has developed over the last few years, providing a sound
structural base of operational and strategic experience which underpins MAPPA today and for the
future.
A decision has been taken to opt for a more
1.1 This years progress streamlined strategic management board with a
core membership which will include:
In addition to the MSCR sub-group, it is
intended to form a communications group to
O Police
progress the communications and partnership
O Probation
strategy and to establish a performance group.
O Prison
The latter will be convened following receipt of
O Health
national key performance indicators (KPIs).
O 2 Lay Advisers
The revised MAPPA guidance expected to be
These representatives will continue to meet
launched in the autumn will contain a number of
quarterly. In addition, the remaining membership
KPIs which will need to be adopted by the SMB
will be available to provide advice and guidance
and form a focus for the work of MAPPA in
to the SMB and to be co-opted onto sub groups
2008/09. Much of 2006/7 has been spent in
as required. This arrangement took effect from 1
consolidating our arrangements and preparing
April 2007.
for future challenges, working with the
framework of the SMB business plan, for which
The contribution of the sub groups together with
a progress report is attached as appendix A.
the duty to co-operate representation on the six
local MAPPA strategy groups is felt to be a more
A dedicated MAPPA manager was appointed in
efficient and effective way of ensuring that
November 2006 in accordance with the
MAPPA in Northumbria can be robust and
requirements of the business plan. The MAPPA
respond with flexibility to the developing
manager carries responsibility for the
requirements of MAPPA.
operational management of the arrangements,
for servicing the local MAPPA strategy groups,
for quality assuring the application of risk 1.2 Moving forward
management, for training and awareness raising
in regard to MAPPA and for line management of
In anticipation of national guidance on the
the three senior practitioners based at the
implementation of MAPPA serious case reviews
MAPPA unit.
(MSCRs) for those offenders managed under
MAPPA who go on to commit serious further
In addition to the MAPPA manager, and in order
offences, Northumbria has established a MSCR
to ensure accurate data collection and analysis,
sub-group. This group has considered the
a MAPPA register co-ordinator is now in post.
operation of the process in regard to one
This post helps fulfil the business plan
particular case and will report back to the SMB
requirement to have dedicated MAPPA
in due course. It was felt to be a useful exercise
administration capacity, but extends the role into
which enabled agencies involved with the
areas of analysis and report preparation.
offender to review their practices and identify
areas for improvement where appropriate.
In preparation for the increased demands and
challenges to be faced by MAPPA during the
The Northumbria SMB business plan 2007/08
next reporting year, the membership and
has picked up the challenge of the KPIs,
function of the SMB was reviewed in January
however, and the facility for these will be
2007 and a proposal presented at the March
incorporated into the electronic MAPPA register.
2007 board meeting.

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In addition, the 2007/08 plan includes: National

O the recruitment of two lay advisers (now in O the creation of the police and probation
post) services as the responsible authority

O supporting the implementation of ViSOR O the development of information sharing


across the responsible authority protocols between agencies

O transforming the local MAPPA strategy O the establishment of systems for identifying
groups into delivery groups to enable them to offenders required to be included in the
take forward the MAPPA agenda locally, arrangements i.e. the categories
linking into other partnership groupings e.g.
supporting people O the establishment of methods of risk
management i.e. levels
O developing responsible authority
performance indicators for MAPPA O the identification of dedicated staff in police
and probation services to develop and
The success of the joint strategic manage the arrangements
police/probation unit at Northumbria Police
headquarters has been recognised locally and O the establishment of MAPPA Strategic
nationally as a positive way to promote and Management Boards (SMB)
support the operation of MAPPA in the area. As
a result of this success and the need for closer, O the inclusion of the prison service as part of
effective joint working, consideration is being the responsible authority and the imposition
given at present to replicating this co-location at of a statutory duty to co-operate upon
area command level. specified agencies

The bulk of the work this year, therefore, has O the opportunity for lay adviser contribution to
been to set in place structures to ensure that the arrangements
MAPPA in Northumbria is in good shape to move
forward and confront the challenges ahead, both Local
in terms of local initiatives and national
requirements. O the creation of a joint police/probation
MAPPA unit at police headquarters
1.3 Recapping: the story so far
O the implementation of the MAPPA framework
The Multi-Agency Public Protection across Northumbria with probation senior
Arrangements were established in April 2001 as practitioners, team and district managers
a result of legislation included in the Criminal chairing all MAPPA meetings
Justice and Court Services Act 2000. They were
subsequently strengthened by the Criminal O the introduction of six local MAPPA strategy
Justice Act 2003 resulting in a robust set of groups to support the SMB
arrangements with a statutory base currently
operating in Northumbria. O the creation by Northumbria Police of six
public protection units co-terminus with the
Last year we celebrated the first five year’s of six local authority areas
MAPPA and the annual report included a
detailed account of how MAPPA has O the commencement of a business planning
progressed. Significant national and local process for the Northumbria SMB
developments include:

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2. How the MAPPA operate locally

MAPPA by definition includes all the In addition to the 3 categories of offender in


arrangements required under the Criminal MAPPA, there are 3 levels at which the risk that
Justice and Court Services Act 2000 (re-enacted these offenders pose will be managed.
and strengthened by the Criminal Justice Act
2003) to assess and manage the risks posed by Level 1 – ordinary risk management (the
“relevant” sexual and violent offenders. offender does not require the active
Therefore, MAPPA in Northumbria is designed involvement of more than one agency in order to
to ensure that all relevant offenders who are manage the risk).
covered by the legislation are systematically
identified and included in the arrangements. A total of 868 offenders have been managed
at level 1 during the reporting year.
There are 3 categories of offender managed
through MAPPA:
Level 2 – local inter-agency risk management
Category 1 – registered sex offenders. These (the offender does require the active
offenders will be required to register their involvement of more than one agency in order to
address with the police under the terms of the manage the risk, but this can be achieved by the
Sex Offender Act (2003) and its amendments. inclusion of practitioners and middle managers
of the agencies identified).
Category 2 – Violent offenders and other sex
offenders (not required to register) who have A total of 424 offenders have been managed
been sentenced to 12 months imprisonment or at level 2 during the reporting year.
more and are currently subject to post-release
licence supervision by the probation service. Level 3 – the Multi-Agency Public Protection
Panel (MAPPP) (the offender does require the
Category 3 – other offenders who are active involvement of more than one agency in
considered by the responsible authority to pose order to manage risk and because of the high
a risk of serious harm to the public. level and imminence of the risk posed or the
complexity of the case, the inclusion of senior
There are two essential criteria for category 3 managers from the agencies identified is
offenders: required. Level 3 risk management is intended
for the “critical few”.
Firstly, the offender must have a conviction for
an offence which indicates they are capable of A total of 37 offenders have been managed at
causing serious harm to the public. The offence level 3 during the reporting year.
could have been committed abroad and there is
no time limit on when. The majority of offenders included in MAPPA are
managed at level 1 by the police and probation
Secondly, the responsible authority must services.
reasonably consider that the offender is likely to
cause serious harm to the public. The requirements of sex offender registration
and the civil orders detailed under Sex offender
Category 1 and category 2 offenders are legislation on page 9 can be sufficient to
identified by the police and probation services, manage the risks posed by category 1
but category 3 offenders can be identified by any offenders.
agency and referred into the arrangements.
Category 1 and category 2 offenders are The conditions in post-release licences,
automatically included in MAPPA because of together with supervision by the probation
the offence they have committed and as a result service, can be sufficient to manage the risks
of the disposal they receive from the courts. posed by category 2 offenders.

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Together, police and probation manage the Critical to rigorous assessment is the collation
majority of category 1 and 2 offenders without and sharing of all relevant information. This
the active involvement of other agencies, but sharing of information takes place within MAPPA
where necessary these offenders will be and leads to informed decision making about the
referred to level 2 or 3 multi-agency risk management of the risk. The risk assessment is
management. not a one-off activity and must be regularly
reviewed and monitored to ensure that any
Category 3 offenders, however, cannot be variation in the offender’s risk status is reflected
managed at level 1. They are not automatically in the risk management plan.
included in MAPPA and rely upon identification
by all agencies. They need to have the qualifying
offence, but in addition, their current behaviour 2.2 Managing the risk
must be giving cause for concern to the agency
making the initial referral. Because the inclusion For offenders subject to statutory supervision
of Category 3 offenders is based upon an by the probation service which can include
assessment of risk, they can only be managed community orders or post release licence,
at either of the two higher levels i.e. level 2 or 3. there are national standards to which the
offender must comply, plus the opportunity to
impose restrictive conditions which are all
2.1 Assessing the risk rigorously enforced. A post-release licence may
contain a variety of conditions tailored to
Crucial to the identification of offenders referred manage the risk posed by that individual
to MAPPA are the features of the individual offender. An example of conditions often
case. The type of offence and the resultant applied might be:
sentence assist in the identification of relevant
offenders who are covered by MAPPA. In O requirement to live at a particular address
addition to this, the application of robust risk e.g. approved premises and to observe a
assessments distinguish which level of MAPPA curfew enforced with an electronic tag
is the most appropriate for the management of
these relevant sexual, violent and other O compliance with an exclusion zone, ie
dangerous offenders. prohibition on entering certain localities

Structured, well researched risk assessment O prohibition on making contact with certain
tools are used by probation, police and youth individuals or groups of people – and
offending teams (YOTs) to assess risk in terms particularly victims
of who is at risk and the level of risk posed to
those individuals by the offender. The national O restrictions on the type of employment they
probation service and prison service use the may have
same risk assessment tool, the Offender
Assessment System (OASys). Risk O reporting as directed to the offender manager
assessments in regard to young offenders
(under 18s) are completed by the YOTs, using O engagement in offence focused work
an assessment tool called ASSET. Both are able
to identify dynamic risk factors, which will vary, O adherence to conditions regarding
together with the static, actuarial risk factors, reasonable behaviour
such as those derived from past behaviour. They
complement the assessment mechanism used Failure to keep any of the conditions set will
by the police to identify serious sexual and result in the probation service taking
violent offenders. enforcement action and could result in the
offender being returned to custody.

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2.3 The role of MAPPA and
Besides updating the list of sexual offences, the
approved premises Sexual Offences Act 2003 also reformed the sex
Approved Premises, or probation hostels are offender registration legislation. It imposed more
managed by the probation service, and other stringent requirements on sex offenders,
voluntary or private sector providers. Premises including the requirement to notify Police of any
are approved by the home secretary under change of name or home address within three
Section 9 of the Criminal Justice and Court days, to provide their national insurance number
Services Act 2000, and operate under guidance and a requirement to notify the police of their
set out in Regulations, National Standards and details every 12 months, even if there are no
non-statutory guidance. changes to those details.

Approved Premises are used to house a number The sex offender registrar in the MAPPA unit at
of MAPPA offenders, usually on initial release police headquarters monitors all offenders who
from prison. Many offenders who have have a requirement to register and Northumbria
completed the custodial part of their sentence Police always deal robustly with those offenders
remain subject to close oversight by the who fail to comply with the legislation.
probation service, during a period ‘on licence’ in
the community. The licence period provides the
opportunity to monitor and support resettlement,
2.5 Court orders designed to
and the offender can be recalled to prison swiftly manage risk
by the probation service if they fail to comply
with a licence condition. Approved Premises In addition to statutory supervision and the
provide a staged return to the community, imposition of conditions, it may be necessary for
affording significant additional monitoring and the courts to impose orders which contain
oversight of the offender’s behaviour and prohibitions to restrict the activities of certain
activities; this provides an important opportunity sexual offenders.
for the probation service and police to assess
the offender’s behaviour and motivation on The Criminal Justice and Court Services Act
release. 2000, together with the Criminal Justice Act
2003 and the Sexual Offences Act 2003, has
Admissions decisions are made by the extended the power of courts to impose these
probation service, based on a rigorous process orders upon sexual offenders who pose the
of risk assessment. Where an offender is highest risk to the public.
subject to MAPPA, the risk assessment will also
take in the views of other local agencies. Each The effect of this legislation has been to
referral is, therefore, subject to at least two, and increase the external controls available to the
sometimes three, levels of scrutiny before a final multi-agency risk management. The statutory
decision is taken. provision is available to enforce these
restrictions for the protection of the public.
2.4 Sex offender legislation
2.5.1 Sexual Offences Prevention Orders
The year 2003 saw a complete change in sex
(SOPOs)
offender legislation resulting in an updated set of
This order can be imposed at conviction or upon
offences more relevant to today’s society. The
application by the police under civil proceedings.
Sexual Offences Act 2003 which came into force
The SOPO can be imposed at both magistrates’
on 1 May 2004 created new offences, such as
courts and crown courts.
grooming, an offence which was welcomed by
the police and probation services alike, as it
The SOPO will be designed to include
enables potential risk to be dealt with more
prohibitions tailored to manage that individual
easily and at an earlier stage.
offender’s risk and will, therefore, be exclusive

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to that offender. Prohibitions included in a SOPO 2.5.5 Disqualification Orders (DO)
could be intended to prevent an offender In addition to those orders previously
entering school playgrounds, visiting swimming mentioned, the senior courts e.g. the crown
baths etc. Breach of a SOPO is punishable by a court, the appeal court, a court martial and the
maximum penalty of five years imprisonment. courts martial appeal court also have the
legislative authority to impose disqualification
In addition to the SOPO there are other orders orders on certain offenders convicted of
which can be obtained upon application by the offences against children. Individuals convicted
police in regard to sexual offenders. These are of one of a list of specified sexual and violent
risk of sexual harm orders, notification orders offences against a child, or supplying class A
and foreign travel orders. drugs to a child, may be eligible for the
imposition of a disqualification order (from
2.5.2 Risk of Sexual Harm Orders (ROSHO) working with children).
This is a civil preventative order containing
prohibitions that can be applied for by the police The disqualification order prevents an offender
against any person thought to pose a sexual risk from “working with children”. Examples of
to children aged under sixteen years. It is not working with children extend from babysitting to
necessary for the defendant to have a prior working as a school teacher and from working in
conviction for a sexual offence. The court can a local authority or social services department to
make an order if it is satisfied that it is necessary voluntary work at a boys football club. They also
for the purpose of protecting children generally include positions whose normal duties include
or any individual child from the defendant. the supervision or management of another
individual who works directly with children, for
2.5.3 Notification Orders (NO) example a member of a school governing body.
These orders are intended to protect the public
in the UK from the risks posed by sex offenders These orders must be imposed upon adult
who have been convicted or cautioned for offenders unless the court is satisfied that it is
sexual offences committed overseas. Such unlikely the offender will commit any further
offenders may be British citizens or foreign offences against a child and makes this
nationals who reside in the UK. A notification statement in open court. The order is also
order requires the offender to register their available for offenders under the age of 18 years
details with the police as if they had been at the discretion of the court. A disqualification
convicted in the UK. An application for a order applies for life, although there is an appeal
notification order is made to the magistrates process.
court acting in its civil capacity. A notification
order, once imposed, carries the sex offender 2.6 Accredited programmes
registration requirements for the offender.
Through MAPPA, a number of external controls
are put in place to manager offenders. Work is
2.5.4 Foreign Travel Orders (FTO) also undertaken to address their behaviour
This order is intended to prevent offenders with through nationally accredited offending
convictions for sexual offences against children behaviour programmes. These programmes are
from travelling abroad where there is evidence intended to develop offender responsibility for
that they intend to commit sexual offences their own behaviour and to assist the individuals
against children abroad. In these cases the in developing strategies which will reduce the
police may apply to a magistrates court for a risk of them reoffending. Attendance on these
foreign travel order. programmes can be imposed as a condition of a
community order or a post-release licence and
To date Northumbria Police has not needed to failure to comply will be rigorously enforced.
apply for a foreign travel order. continues on page 13...

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case study: beginning to end offender management

b a c k g r o u n d : Paul was convicted of a section 20 wounding on his wife, a short time before
getting divorced. He pleaded guilty at court and was sentenced to 3 years in prison. He has no
children and no contact with his ex-wife.

arrest
12 months after his release, Paul was arrested for a breach of the peace following a domestic
disturbance at his home address where he lived with his new partner, Julie. Julie refused any
assistance and no charges were made.
Paul had become involved with Julie shortly after release from prison. Julie has 2 girls, then
aged 6 and 9 years, and Paul referred to himself as their step-father. Social Services were
notified so they could consider the risk to the children. The police also disclosed to Julie details
of Paul’s previous offence.
In 2003 the older of Paul’s step-children disclosed that he had indecently assaulted her on
several occasions during the past 6 months. Her friend also made a similar allegation,
stating that Paul had indecently assaulted her whilst she had been staying at the house.
Paul was arrested and admitted the offences.

remand and court sentence


Paul was charged and remanded in custody, where he was assessed as presenting a risk to
children. He was prohibited from any contact with children, either by written correspondence,
telephone or visits. His external contact with adults was restricted to certain individuals who
had confirmed to prison staff they were agreeable. The prison governor also authorised the
monitoring of his mail and telephone calls.
Paul pleaded guilty to the offences, and a pre sentence report was submitted to the court by
the probation service clearly outlining the risks that Paul presented to women and children and
the necessary interventions to reduce the risk. The crown court imposed the following:
> an extended sentence, comprising 5 years custody and 5 years on licence
> a mandatory disqualification from working with children order which prevents him from ever
seeking employment, whether paid or voluntary, with children
> an indefinite sexual offences prevention order (SOPO), including prohibitions to prevent
Paul living in the same house as a child under 16 or from communicating with a child under
16 by any means
> to go on the sex offenders register for life

prison
Regular risk management and sentence planning meetings were held, including representatives
from within the prison, police and his offender manager (probation officer). A sentence plan was
agreed with Paul outlining which offending behaviour programmes he should undertake and the
educational and employment training he required. A prison psychologist’s assessment
recommended that he should undertake the sex offender treatment programme (SOTP) and
Paul transferred to another prison where this was available.

Whilst in prison Paul made veiled threats to Julie, his now ex partner, which were identified
through the monitoring of his mail and telephone calls, although Julie refused to make a formal
complaint. The threats indicated an increase in the risk he presented and contact with his ex
partner was stopped.

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Paul, age 42, MAPPA category 2 , level 3

release
Preparations to manage Paul in the community began 6 months prior to his release. Due to
concerns that Paul continued to present a risk of serious harm to the public, a decision was
made to manage him at level 3, the highest level of MAPPA management, involving very regular
meetings with senior representatives from police, probation, victim liaison, children’s services,
education and JobCentre Plus. A risk management plan was devised which included the
following:
> instructing Paul to live in approved premises (probation hostel) on release
> additional licence conditions:
>> no contact with any children
>> no contact with his previous victims
>> not to enter a designated geographical area
>> abide by a curfew at the Approved Premises
>> attend groupwork programme to address offending behaviour
>> notify the offender manager of any developing personal relationships with women

> meeting with Job Centre Plus to discuss employment opportunities

> victim liaison to keep his ex-partner informed

> monthly visits by the police

> attendance at the community based sex offenders relapse prevention programme, to continue
the work undertaken whilst in prison

Following his release, although Paul was complying with licence conditions, he was not
forthcoming about where he was going when he was away from the hostel and other residents
had reported hearing him say he was meeting his girlfriend. Paul was adamant that this was
untrue. Groupwork staff assessed that whilst Paul was attending as required he was not fully
engaging in the discussions.

Staff at the hostel reported that they had heard Paul having a heated telephone conversation
using derogatory comments which were obviously directed towards a woman. Paul reluctantly
admitted that he had been seeing someone for two weeks. Further enquiries via the police and
social services ascertained that whilst she did have children he had not been to her home or met
the children.

recall to prison
At this point a decision was made to recall Paul to prison as he was in breach of his licence
conditions. Paul was recalled the same day and is awaiting a parole board hearing. A report has
been submitted by the offender manager stating that at this point in time the level of risk that Paul
presents is not considered manageable in the community.

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continued from page 10...
case study: Phil, MAPPA category 1, level 3
Northumbria Probation Area runs a national sex
offender programme approved by the
Situation
Phil, a convicted sex offender subject to a 3
correctional service accreditation panel. This
year community rehabilitation order for taking
programme has a proven track record for
indecent photographs of children, residing in
reducing the risk of reoffending. There are also
approved premises (probation hostel) began
two accredited programmes addressing
to display behaviour which gave concern as
problem-solving skills and victim awareness and
to the likelihood of him sexually re-offending
another two accredited programmes which
(offences that would be more serious in
focus upon substance misuse and drink
nature than his index offence). He described
impaired driving. In addition, Northumbria
in graphic detail his likelihood of
Probation Area runs an accredited programme
abducting/assaulting a child. A level 3
which addresses the behaviour of domestic
MAPPP was convened.
abuse perpetrators. The programme requires
the inter agency risk management of all
participating offenders.
Action
Following the MAPPP which included
probation, police and health, a risk
2.7 Disclosure management plan was drawn up which
included:
Disclosure is another important tool used to
manage the risk posed by dangerous offenders. > The police applying for and obtaining a sex
Whilst every effort is made to reduce the need to
offender order (now SOPO) with
disclose information about an offender there are
prohibitions designed to reduce the risk of
occasions when this must be done in the
re-offending and protect children from
interests of public protection. Disclosure may be
serious harm. These prohibitions included
to an individual, an organisation or to the wider
Phil not being allowed to own a car and not
public. Each case is considered individually and
being allowed to communicate with
should disclosure be required then Home Office
children.
guidelines are invoked. In addition, the legality
and proportionality of disclosure is considered > Intervention by specialist mental health
by Northumbria Police legal department in each team (Department of Forensic Psychiatry).
case. > Intense joint supervision/management by
police and probation.
One of the recommendations from the Review of
the Protection of Children from Sex Offenders > Disclosure to Phil’s girlfriend in order to
commissioned by the Home Secretary in June manage and monitor his contact with
2006 relates to the issue of disclosure. As a children.
result the government will introduce a new legal
duty on the MAPPA Responsible Authority to Outcome
consider disclosing a child sex offender’s As a result of the supervision and risk
convictions to those who need to know – for management of this case, it was discovered
example to employers, girlfriends, friends or Phil had breached the prohibitions of his sex
family members – where a child is at risk. offender order. He was arrested and
subsequently sentenced to 18 months
The new law will mean that this disclosure must imprisonment. He had not committed any
be considered in every case where the offender further offences and it was possible for police
is being managed by MAPPA and that reasons and probation to be proactive in the
for each decision to share information or not to enforcement of the sex offender order to
share information must be formally recorded. ensure that children were protected.

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3. Statistical information

The collection of data for this year’s report has likely to cause serious harm to the public and as
remained the same as for last year. such, they can only be managed at level 2 or 3,
and the majority fall within level 2.
The total number of offenders who have been
managed through MAPPA in Northumbria Sexual Offences Prevention Orders (SOPOs)
between 1 April 2006 and 31 March 2007 has (see page 9)
risen from 1318 to 1329, an increase of 11 which The total number of SOPOs which were
is much smaller than previous years. imposed by the courts during the reporting
period was 58, an increase of 20. 34 of these
Categories of offenders (see page 7) SOPOs were imposed by the courts at the point
Although there has been an increase overall, the of conviction, showing that the courts are
number of offenders managed from category 1 utilising their powers to do everything possible to
(registered sex offenders) has decreased by 28, provide the police with the tools to manage
and from category 2 (violent and other sex sexual offenders.
offenders) has decreased by 29. Category 1 and
2 offenders are automatically included in 24 applications were made to the magistrate’s
MAPPA as a result of their conviction and courts for SOPOs. 14 interim orders were
sentence, so the decrease in numbers for granted and 21 full SOPOs. 1 application was
2006/7 indicates there were fewer offenders refused when it transpired that the offender did
meeting those criteria living in the Northumbria not meet the criteria.
area during the reporting period.
No notification orders, RoSHOs or foreign travel
The increase in numbers is all within category 3, orders were applied for.
other offenders who are considered by the
responsible authority to pose a risk of serious
harm to the public. These are offenders who are Serious further offences
not automatically included in the arrangements During the reporting period, none of the
but are identified and referred by any one offenders managed at level 3, the highest level,
agency for multi-agency risk management. were charged with a further serious offence. Of
Many of the referrals come from mental health the 424 offenders managed at level 2, 3 were
services, social services, housing and other duty charged with a further serious offence. For two
to cooperate agencies; often the offenders do of these cases, aggravated burglary and rape of
not have involvement with police or probation. a male child under 13, the offenders have been
As such the increase in category 3 offenders, an found not guilty at crown court. In the third case,
increase of 68 from 151 to 219, demonstrates which is murder, the offender is awaiting trial.
their involvement and contribution. The MAPPA
unit has strived to increase awareness amongst
the duty to cooperate agencies about referrals of
offenders who fall into category 3, and the
increase in referrals is evidence of the success
of this.

Levels of risk management (see page 7)


The number of offenders managed at level 3,
often referred to as the critical few, has
decreased by 8 since last year, whilst the level 2
number of offenders has increased by 93. This is
as a result of the increased number of category
3 offenders being managed through MAPPA.
Category 3 offenders are assessed as being

14
Northumbria Area MAPPA statistics 2006-7

Number of
Category Explanation
offenders
1. Category 1: registered sex offenders
i) Number of registered sex offenders 870 This is the number of sex offenders
(RSOs) on 31/03/07 currently residing in the Northumbria area
who are subject to registration. This does
not include RSOs who are in prison

RSOs per basic command unit: This list shows the breakdown of the RSO
Gateshead 136 population across Northumbria
Newcastle 239
North Tyneside 125
Northumberland 137
South Tyneside 61
Wearside 172
ia) The number of RSOs per 100,000 head 62 The number of RSOs per 100,000 head of
of population population in Northumbria

ii) The number of sex offenders having a 91 This is the number of offenders who failed
registration requirement who were either to comply with the requirements of their
cautioned or convicted for breaches of the registration order and were either
requirement between 1 April 2006 to 31 cautioned or convicted. The breach may
March 2007 have been as a result of failure to notify
police of their addresses within the
prescribed time, failure to notify the police
that they had changed their name or
failure to notify police of their intention to
travel abroad
iii) The number of Sexual Offences This order can be imposed at conviction
Prevention Orders (SOPOs): or upon application by the police under
a. applied for on complaint a. 24 civil proceedings. It is designed to include
b. of those, interim orders granted b. 14 prohibitions tailored to manage the
c. full notification order imposed by the c. 58 individual offenders risk and is, therefore,
courts in Northumbria Area between exclusive to each offender
1April 2006 and 31 March 2007
iv) The number of Notification Orders: No notification orders have been applied
a. applied for a. 0 for
b. interim orders granted b. 0
c. full notification orders imposed by the c. 0
courts in Northumbria Area between
1April 2006 and 31 March 2007
v) The number of Foreign Travel Orders: The order prevents convicted sex
a. applied for a. 0 offenders from travelling abroad where
b. imposed by the courts in Northumbria b. 0 there is evidence they intend to commit
Area between 1 April 2006 and 31 sexual offences against children living
March 2007 abroad. To date Northumbria Police has
not needed to apply for a foreign travel
order
15
Number of
Category Explanation
offenders

2. Category 2: violent offenders and other sexual offenders

vi) The number of violent and other sexual 240 This figure is the number of violent and
offenders living in Northumbria between 1 other sex offenders (not registered sex
April 2006 and 31 March 2007 offenders) living in the community who
were sentenced to 12 months or more
imprisonment and are currently subject
to post release licence supervision

3. Category 3: other offenders

vii) The number of other offenders between 219 The number of other offenders (ie, not
1 April 2006 and 31 March 2007 category 1 or 2) who were identified for
risk management and referred into
MAPPA by various agencies

4. Offenders managed through level 3 (MAPPP) and level 2 (local inter agency management)

viii) Identify how many MAPPA offenders in level level 1) Registered sex offenders who have
each of the three categories above have 3 2 been considered by the MAPPA level 2
been managed through MAPPA (level 2 and or 3.
3) between 1 April 2006 and 31 March 2007
1) RSOs 14 94 2) Sexual/violent offenders who have
2) Violent and other sexual offenders 17 117 received 12 months or more
3) Other offenders 6 213 imprisonment and have been
considered by MAPPA level 2 or 3.

3) Offenders consider to pose a serious


risk of harm to the public who have
been considered by MAPPA level 2 or 3

ix) Of the cases managed by MAPPA level 2 level level a) Number of offenders managed at
or 3 between 1 April 2006 and 31 March 3 2 MAPPA level 2 or 3 who were returned
2007, how many whilst still in MAPPA level 2 to custody for breaching their licence
or 3: conditions
a) were returned to custody for breach of 14 55
licence b) This is the number of offenders
b) were returned to custody for breach of a 2 4 subject to MAPPA level 2 or 3 who
restraining order or sexual offences were returned to custody for breach of
prevention order a restraining order or SOPO
c) were charged with a serious sexual or 0 3
violent offence c) No offenders subject to level 3 have
been charged with a further serious
sexual or violent offence. However, 3
offenders managed at level 2 have
been charged with such an offence.

16
4. Northumbria MAPPA Strategic Management Board

Senior MAPPA leads for other partner agencies


4.1 Membership of the SMB
include:
As outlined on page 5, from April 2007
Northumbria introduced a streamlined strategic Customer Relationship Manager
management board, comprising representatives Group 4 Securicor
from police, probation, prisons, health and the
lay advisers. This includes: South Tyneside Youth Offending Service
Manager
Director of Operations Regional Youth Offending Service
Northumbria Probation Area
SMB Chair Service Improvement Manager
Regeneration Housing, North Tyneside
Area Manager – Public Protection
Northumbria Probation Area Head of Adult Services
Sunderland Social Services Department
Assistant Chief Officer – Public Protection
Northumbria Probation Area Northumbria Deputy District Manager
Jobcentre Plus
Regional Prison MAPPA Lead
HM Prison Service Chief Executive
National Housing Federation
Assistant Chief Constable
Northumbria Police

Detective Superintendent 4.2 SMB responsibilities


Crime Management/Public Protection,
Northumbria Police The SMB is responsible for the monitoring and
reviewing of MAPPA and for ensuring that the
Detective Sergeant MAPPA Lead risk assessment and management
Northumbria Police arrangements are revised where necessary to
reflect legislative and wider criminal justice
Northumberland & Tyne & Wear Strategic changes.
Health Authority
The board is, therefore, provided with data by
Professor of Forensic Psychiatry the MAPPA unit which includes information on
Northumberland & Tyne & Wear NHS Trust the number of offenders in MAPPA, the levels at
which risk is being managed and data on
Professor of Psychiatry enforcement action, together with details of
Northumberland and Tyne & Wear NHS Trust those offenders subject to MAPPA who have
been charged with a further serious sexual or
2 Lay Advisers violent offence.

This quantitative data is accompanied by case


examples which serve to highlight issues of
organisational and operational difficulty, as well
as featuring examples of good practice and
successful inter-agency working.

The SMB works alongside the Local


Safeguarding Children Boards (LSCB) and the
Local Criminal Justice Board (LCJB) to promote

17
the protection of the public. Both the MAPPA
annual report and the MAPPA SMB business case study: Stuart, MAPPA category 1, level 3
plan are submitted to both boards to update Situation
them on progress. A convicted sex offender, living in the
community, whose offences were committed
4.3 Role of the Lay Adviser against children, was referred to the Level 3
MAPPP by the police. He was subject to
indefinite sex offender registration, but not
Northumbria is currently recruiting to ensure that under any statutory supervision by the
the SMB will include two lay advisers in the probation service.
coming year. The role of lay adviser in each area
is to: It had come to the attention of the police that
this offender had joined a church group and
“Keep the arrangements established by the was also visiting leisure facilities in the
responsible authority under review with a view to Northumbria Area. The latter activity had
monitoring their effectiveness and making any been brought to the attention of the police
changes to them that appear necessary or through the Leisurewatch project managed
expedient”. by The Derwent Initiative.

The value of the Lay Advisers’ role is essentially Action


twofold. Firstly, they represent a community The MAPPP included police, probation,
interest in public protection and secondly they housing, local social services and a victim
bring a different perspective from that of the liaison officer. The MAPPP had to consider
professional interests in MAPPA. This different the risk posed by this man’s activities and
perspective brings a freshness of view, an decide how to manage that risk. Decisions
independent opinion which can provide what were made and a risk management plan was
might be termed “a reality check”. drawn up:
> To monitor the home circumstances
In practical terms the lay advisers’ role involves:
through the housing association
O their preparation for and attendance at SMB > To increase home visits by the police in
meetings line with his sex offender registration, to be
unannounced and include evening visits
O asking questions of the responsible authority > To apply for disclosure to the church
about the business under discussion, authorities regarding his membership of
particularly the ‘why’ questions the church group
O being the ‘critical friend’: offering > To notify local leisure facilities within
constructive criticism and challenging Leisurewatch arrangements
assumptions which, while rooted in
> To pursue application for a Sex Offender
professional good practice, are not clearly Order which would include prohibitions to
understood by the lay person prevent the offender engaging in certain
offering views as to how the responsible activities
authority can communicate the work of
MAPPA to the local community
Outcome
The above Action Plan was proceeded with
and the offender was made subject to a Sex
Offender Order. Breach of this order could
result in a further prison sentence.

18
5. Contacts

MAPPA Unit
MAPPA Unit
Block 45
Northumbria Police HQ
North Road
Ponteland
Newcastle upon Tyne
NE20 0BL

Tel: 01661 868077

Staffed by key public protection staff from police and probation service, this unit is the first point of
contact for all MAPPA and public protection enquiries.

The unit will then direct enquiries to local MAPPA strategic groups and other agencies as appropriate
and provide any necessary contact details.

Northumbria Probation Area Victim Liaison Unit

Victim Liaison Unit


Northumbria Probation Area
6th Floor, Collingwood House
Collingwood Street
Newcastle upon Tyne
NE1 1JW

Tel: 0191 261 2541

This unit provides an information service for victims of serious sexual or other violent offences, where
the offender receives a custodial sentence of 12 months or more

Victim Support
Alnwick 01665 602 863
Bedlington 01670 822 334
Blyth 01670 360 182
Gateshead 0191 477 8395
Heaton 0191 276 4080
Newcastle 0191 274 4274
North Tyneside & Blyth 0191 257 9079
South Tyneside 0191 454 6198
Sunderland 0191 567 2896

Victim Support is an independent organisation offering a free and confidential service to people
affected by crime

19
Northumbria SMB Business Plan 06/07: Progress Report Appendix A

MAPPA development strategy Communication and strategic partnership


strategy
Strategic Aim

To achieve dedicated MAPPA co-ordination and Strategic Aim


administration capacity: To publish MAPPA annual reports which are
designed to improve public understanding and
Outcome engagement and to develop a communications
strategy for the Northumbria area SMB taking
O MAPPA manager/co-ordinator appointed account of the national strategy devised by the
November 2006 Responsible Authority National Steering Group
(RANSG).
O Dedicated MAPPA administrator appointed
September 2006 Outcome
O Media strategy finalised and operational

O Targeted, intelligence led communication


Monitoring and development strategy in place supported by Local MAPPA
strategy groups
Strategic Aim
O SMB to establish communications sub-group
O Monitoring arrangements to support the to take forward the strategy during 2007/8
following in place:
O Two lay advisers appointed to the SMB and
O Publication of the annual report will take on the role in June 2007

O An analysis of MAPPA risk management O Recruitment of lay advisers to local MAPPA


thresholds at level 2 and 3. strategy groups not proceeded with

O An analysis of MAPPA offenders who commit Training strategy


serious further offences.

O An analysis of attendance and level of Strategic Aim


cooperation of agencies contributing to level Northumbria Area SMB to include a training
2 and 3 meetings. strategy in the business plan, to include:
O induction to MAPPA for new practitioners
O An analysis of diversity profile of offenders
assessed at level 2 and 3.
O training for MAPPA SMB members
Outcome
O training for MAPPA co-ordinators
O Electronic MAPPA register established March Outcome
2007
Northumbria has continued with its MAPPA
This will facilitate the collection of data for next awareness raising sessions organised through
year’s annual report. the local MAPPA strategy groups and LSCBs.
These are diaried throughout the year and
comprise multi-agency and single agency events
delivered jointly by police and probation staff. The
national strategy is still awaited.
20
Northumbria SMB Business Plan 2007-8

AIM PROCESS RESPONSIBILITY TIMESCALE

Recruitment of lay > Canvas interest in the role from Probation Two lay
advisers to the board ex police authority and probation advisers
board members Police appointed by
> Arrange interviews June 2007 with
ministerial
1 Identify 2 successful candidates
and appoint approval
requested
> Seek ministerial approval via
forthwith
Ministry of Justice

Implementation of > ViSOR already established with Probation Roll out January
ViSOR subject to police 2008
national > Acklington Prison - early
requirements adopter site
> Probation will roll out ViSOR -
January 2008 subject to national
implementation timescales:
2 > Establishment of local ViSOR
implementation group
> Related implementation plan
> Proposed “narrow” business
model for ViSOR suggests
centralised model based around
MAPPA unit

Joint training in > Relevant aspects of NOMS risk Probation End of March
relation to sex of harm training and resource 2008
offenders in pack to be disseminated across Police
response to Joint the responsible authority
Sex offender > In line with PC 17/07, probation Prison
Thematic Inspection to carry out audit and related
Report May 2005 action to ensure RM2000 training
is made available across the
responsible authority
3 > Police & probation to lead on
local workshop development to
focus upon the joint assessment
and management of risk posed
by sex offenders. To be informed
by scoring exercise undertaken
by Jackie Coleman (police) and
Wynne McLean (probation)
> Joint MAPPA awareness
raising events to continue

21
Appendix B

AIM PROCESS RESPONSIBILITY TIMESCALE

Register coordinator > 1:Register coordinator Probation 1: May 2007


appointed and appointed
electronic MAPPA Police 2: End October
register established > 2: Electronic MAPPA register 2007
established and functioning
3: December
> 3: Identification of core set of
2007
reports for use by SMB
4

Local MAPPA > MAPPA manager to be link Probation March 2008


strategy groups to between SMB and local MAPPA
develop into delivery strategy groups MAPPA steering
groups > Review progress in group (RA)
establishing the strategy groups
by responsibly authority
> At local level, DTC partners to
5 be engaged in review process
> Terms of reference to be
revisited and review of progress
against terms of reference to
ensure appropriate focus on
delivery
> Comments to be considered by
SMB and change strategy to be
devised if necessary

Develop responsible > Performance indicators to be MAPPA steering March 2008


authority determined in light of revised group (RA)
performance MAPPA guidance which will
indicators for include prescribed KPIs
MAPPA > In keeping with joint
6 HMIP/HMIC inspection report
“Putting risk of harm in context”
2006, multi agency audit of
MAPPA in practice to be carried
out

22
www.northumbria.police.uk www.northumbria-probation.co.uk www.hmprisonservice.gov.uk

MAPPA Unit, Northumbria Police Headquarters


North Road, Ponteland, Newcastle upon Tyne, NE20 0BL
Tel: 01661 868077