Multi Agency Public Protection Arrangements (MAPPA) Northumbria Area Annual Report 2006-2007

DO FTO LCJB MAPPA MAPPP MHA NO NPS OASys PPU ROSHO RMC RMM SOPO SMB SPOC TDI ViSOR VLO YOT Disqualification Orders Foreign Travel Orders Local Criminal Justice Board Multi Agency Public Protection Arrangements Multi Agency Public Protection Panels Mental Health Act Notification Orders National Probation Service Offender Assessment System Public Protection Unit Risk of Sexual Harm Orders Risk Management Conference Risk Management Meeting Sexual Offences Prevention Orders Strategic Management Board Single Point of Contact (Police Officer) The Derwent Initiative Violent and Sex Offender Register Victim Liaison Officer 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


4 5


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


How the MAPPA operate locally 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 14


Statistical Information Northumbria Area MAPPA statistics 2006-7


MAPPA Strategic Management Board 4.1 Membership of the SMB 4.2 SMB responsibilities 4.3 The role of the lay adviser





Appendix A: Northumbria SMB Business Plan 2006/7: Progress report Appendix B: Northumbria SMB Business Plan 2007/8




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 Board Chair Northumbria Probation Area

Mike Craik Chief Constable Northumbria Police

Phil Copple Area Manager North East Prison Service



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 streamlined strategic management board with a 1.1 This years progress 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 launched in the autumn will contain a number of KPIs which will need to be adopted by the SMB and form a focus for the work of MAPPA in 2008/09. Much of 2006/7 has been spent in consolidating our arrangements and preparing for future challenges, working with the framework of the SMB business plan, for which a progress report is attached as appendix A. A dedicated MAPPA manager was appointed in November 2006 in accordance with the requirements of the business plan. The MAPPA manager carries responsibility for the operational management of the arrangements, for servicing the local MAPPA strategy groups, for quality assuring the application of risk management, for training and awareness raising in regard to MAPPA and for line management of the three senior practitioners based at the MAPPA unit. In addition to the MAPPA manager, and in order to ensure accurate data collection and analysis, a MAPPA register co-ordinator is now in post. This post helps fulfil the business plan requirement to have dedicated MAPPA administration capacity, but extends the role into areas of analysis and report preparation. In preparation for the increased demands and challenges to be faced by MAPPA during the next reporting year, the membership and function of the SMB was reviewed in January 2007 and a proposal presented at the March 2007 board meeting. These representatives will continue to meet quarterly. In addition, the remaining membership will be available to provide advice and guidance to the SMB and to be co-opted onto sub groups as required. This arrangement took effect from 1 April 2007. The contribution of the sub groups together with the duty to co-operate representation on the six local MAPPA strategy groups is felt to be a more efficient and effective way of ensuring that MAPPA in Northumbria can be robust and respond with flexibility to the developing requirements of MAPPA.


Moving forward

In anticipation of national guidance on the implementation of MAPPA serious case reviews (MSCRs) for those offenders managed under MAPPA who go on to commit serious further offences, Northumbria has established a MSCR sub-group. This group has considered the operation of the process in regard to one particular case and will report back to the SMB in due course. It was felt to be a useful exercise which enabled agencies involved with the offender to review their practices and identify areas for improvement where appropriate. The Northumbria SMB business plan 2007/08 has picked up the challenge of the KPIs, however, and the facility for these will be incorporated into the electronic MAPPA register.


In addition, the 2007/08 plan includes: O the recruitment of two lay advisers (now in post) O supporting the implementation of ViSOR across the responsible authority O transforming the local MAPPA strategy groups into delivery groups to enable them to take forward the MAPPA agenda locally, linking into other partnership groupings e.g. supporting people O developing responsible authority performance indicators for MAPPA The success of the joint strategic police/probation unit at Northumbria Police headquarters has been recognised locally and nationally as a positive way to promote and support the operation of MAPPA in the area. As a result of this success and the need for closer, effective joint working, consideration is being given at present to replicating this co-location at area command level.

National O the creation of the police and probation services as the responsible authority O the development of information sharing protocols between agencies O the establishment of systems for identifying offenders required to be included in the arrangements i.e. the categories O the establishment of methods of risk management i.e. levels O the identification of dedicated staff in police and probation services to develop and manage the arrangements O the establishment of MAPPA Strategic Management Boards (SMB) O the inclusion of the prison service as part of the responsible authority and the imposition of a statutory duty to co-operate upon 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 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: 6


Recapping: the story so far


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


Together, police and probation manage the majority of category 1 and 2 offenders without the active involvement of other agencies, but where necessary these offenders will be referred to level 2 or 3 multi-agency risk management. Category 3 offenders, however, cannot be managed at level 1. They are not automatically included in MAPPA and rely upon identification by all agencies. They need to have the qualifying offence, but in addition, their current behaviour must be giving cause for concern to the agency making the initial referral. Because the inclusion of Category 3 offenders is based upon an assessment of risk, they can only be managed at either of the two higher levels i.e. level 2 or 3.

Critical to rigorous assessment is the collation and sharing of all relevant information. This sharing of information takes place within MAPPA and leads to informed decision making about the management of the risk. The risk assessment is not a one-off activity and must be regularly reviewed and monitored to ensure that any variation in the offender’s risk status is reflected in the risk management plan.


Managing the risk


Assessing the risk

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

For offenders subject to statutory supervision by the probation service which can include community orders or post release licence, there are national standards to which the offender must comply, plus the opportunity to impose restrictive conditions which are all rigorously enforced. A post-release licence may contain a variety of conditions tailored to manage the risk posed by that individual offender. An example of conditions often applied might be:

Failure to keep any of the conditions set will result in the probation service taking enforcement action and could result in the offender being returned to custody. 8


The role of MAPPA and approved premises

Approved Premises, or probation hostels are managed by the probation service, and other voluntary or private sector providers. Premises are approved by the home secretary under Section 9 of the Criminal Justice and Court Services Act 2000, and operate under guidance set out in Regulations, National Standards and non-statutory guidance. Approved Premises are used to house a number of MAPPA offenders, usually on initial release from prison. Many offenders who have completed the custodial part of their sentence remain subject to close oversight by the probation service, during a period ‘on licence’ in the community. The licence period provides the opportunity to monitor and support resettlement, and the offender can be recalled to prison swiftly by the probation service if they fail to comply with a licence condition. Approved Premises provide a staged return to the community, affording significant additional monitoring and oversight of the offender’s behaviour and activities; this provides an important opportunity for the probation service and police to assess the offender’s behaviour and motivation on release. Admissions decisions are made by the probation service, based on a rigorous process of risk assessment. Where an offender is subject to MAPPA, the risk assessment will also take in the views of other local agencies. Each referral is, therefore, subject to at least two, and sometimes three, levels of scrutiny before a final decision is taken.

Besides updating the list of sexual offences, the Sexual Offences Act 2003 also reformed the sex offender registration legislation. It imposed more stringent requirements on sex offenders, including the requirement to notify Police of any change of name or home address within three days, to provide their national insurance number and a requirement to notify the police of their details every 12 months, even if there are no changes to those details. The sex offender registrar in the MAPPA unit at police headquarters monitors all offenders who have a requirement to register and Northumbria Police always deal robustly with those offenders who fail to comply with the legislation.


Court orders designed to manage risk

In addition to statutory supervision and the imposition of conditions, it may be necessary for the courts to impose orders which contain prohibitions to restrict the activities of certain sexual offenders. The Criminal Justice and Court Services Act 2000, together with the Criminal Justice Act 2003 and the Sexual Offences Act 2003, has extended the power of courts to impose these orders upon sexual offenders who pose the highest risk to the public. The effect of this legislation has been to increase the external controls available to the multi-agency risk management. The statutory provision is available to enforce these restrictions for the protection of the public. 2.5.1 Sexual Offences Prevention Orders (SOPOs) This order can be imposed at conviction or upon application by the police under civil proceedings. The SOPO can be imposed at both magistrates’ courts and crown courts. The SOPO will be designed to include prohibitions tailored to manage that individual offender’s risk and will, therefore, be exclusive


Sex offender legislation

The year 2003 saw a complete change in sex offender legislation resulting in an updated set of offences more relevant to today’s society. The Sexual Offences Act 2003 which came into force on 1 May 2004 created new offences, such as grooming, an offence which was welcomed by the police and probation services alike, as it enables potential risk to be dealt with more easily and at an earlier stage. 9

to that offender. Prohibitions included in a SOPO could be intended to prevent an offender entering school playgrounds, visiting swimming baths etc. Breach of a SOPO is punishable by a maximum penalty of five years imprisonment. In addition to the SOPO there are other orders which can be obtained upon application by the police in regard to sexual offenders. These are risk of sexual harm orders, notification orders and foreign travel orders. 2.5.2 Risk of Sexual Harm Orders (ROSHO) This is a civil preventative order containing prohibitions that can be applied for by the police against any person thought to pose a sexual risk to children aged under sixteen years. It is not necessary for the defendant to have a prior conviction for a sexual offence. The court can make an order if it is satisfied that it is necessary for the purpose of protecting children generally or any individual child from the defendant. 2.5.3 Notification Orders (NO) These orders are intended to protect the public in the UK from the risks posed by sex offenders who have been convicted or cautioned for sexual offences committed overseas. Such offenders may be British citizens or foreign nationals who reside in the UK. A notification order requires the offender to register their details with the police as if they had been convicted in the UK. An application for a notification order is made to the magistrates court acting in its civil capacity. A notification order, once imposed, carries the sex offender registration requirements for the offender.

2.5.5 Disqualification Orders (DO) In addition to those orders previously mentioned, the senior courts e.g. the crown court, the appeal court, a court martial and the courts martial appeal court also have the legislative authority to impose disqualification orders on certain offenders convicted of offences against children. Individuals convicted of one of a list of specified sexual and violent offences against a child, or supplying class A drugs to a child, may be eligible for the imposition of a disqualification order (from working with children). The disqualification order prevents an offender from “working with children”. Examples of working with children extend from babysitting to working as a school teacher and from working in a local authority or social services department to voluntary work at a boys football club. They also include positions whose normal duties include the supervision or management of another individual who works directly with children, for example a member of a school governing body. These orders must be imposed upon adult offenders unless the court is satisfied that it is unlikely the offender will commit any further offences against a child and makes this statement in open court. The order is also available for offenders under the age of 18 years at the discretion of the court. A disqualification order applies for life, although there is an appeal process.


Accredited programmes

2.5.4 Foreign Travel Orders (FTO) This order is intended to prevent offenders with convictions for sexual offences against children from travelling abroad where there is evidence that they intend to commit sexual offences against children abroad. In these cases the police may apply to a magistrates court for a foreign travel order. To date Northumbria Police has not needed to apply for a foreign travel order.

Through MAPPA, a number of external controls are put in place to manager offenders. Work is also undertaken to address their behaviour through nationally accredited offending behaviour programmes. These programmes are intended to develop offender responsibility for their own behaviour and to assist the individuals in developing strategies which will reduce the risk of them reoffending. Attendance on these programmes can be imposed as a condition of a community order or a post-release licence and failure to comply will be rigorously enforced.
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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.

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

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. 11

Paul, age 42, MAPPA category 2 , level 3

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.


continued from page 10...

case study: Phil, MAPPA category 1, level 3

Northumbria Probation Area runs a national sex offender programme approved by the correctional service accreditation panel. This programme has a proven track record for reducing the risk of reoffending. There are also two accredited programmes addressing problem-solving skills and victim awareness and another two accredited programmes which focus upon substance misuse and drink impaired driving. In addition, Northumbria Probation Area runs an accredited programme which addresses the behaviour of domestic abuse perpetrators. The programme requires the inter agency risk management of all participating offenders.

Phil, a convicted sex offender subject to a 3 year community rehabilitation order for taking indecent photographs of children, residing in approved premises (probation hostel) began to display behaviour which gave concern as to the likelihood of him sexually re-offending (offences that would be more serious in nature than his index offence). He described in graphic detail his likelihood of abducting/assaulting a child. A level 3 MAPPP was convened.

Following the MAPPP which included probation, police and health, a risk management plan was drawn up which included: > The police applying for and obtaining a sex offender order (now SOPO) with prohibitions designed to reduce the risk of re-offending and protect children from serious harm. These prohibitions included Phil not being allowed to own a car and not being allowed to communicate with children. > Intervention by specialist mental health team (Department of Forensic Psychiatry). > Intense joint supervision/management by police and probation. > Disclosure to Phil’s girlfriend in order to manage and monitor his contact with children.



Disclosure is another important tool used to manage the risk posed by dangerous offenders. Whilst every effort is made to reduce the need to disclose information about an offender there are occasions when this must be done in the interests of public protection. Disclosure may be to an individual, an organisation or to the wider public. Each case is considered individually and should disclosure be required then Home Office guidelines are invoked. In addition, the legality and proportionality of disclosure is considered by Northumbria Police legal department in each case. One of the recommendations from the Review of the Protection of Children from Sex Offenders commissioned by the Home Secretary in June 2006 relates to the issue of disclosure. As a result the government will introduce a new legal duty on the MAPPA Responsible Authority to consider disclosing a child sex offender’s convictions to those who need to know – for example to employers, girlfriends, friends or family members – where a child is at risk. The new law will mean that this disclosure must be considered in every case where the offender is being managed by MAPPA and that reasons for each decision to share information or not to share information must be formally recorded. 13

As a result of the supervision and risk management of this case, it was discovered Phil had breached the prohibitions of his sex offender order. He was arrested and subsequently sentenced to 18 months imprisonment. He had not committed any further offences and it was possible for police and probation to be proactive in the enforcement of the sex offender order to ensure that children were protected.


Statistical information
likely to cause serious harm to the public and as such, they can only be managed at level 2 or 3, and the majority fall within level 2. Sexual Offences Prevention Orders (SOPOs) (see page 9) The total number of SOPOs which were imposed by the courts during the reporting period was 58, an increase of 20. 34 of these SOPOs were imposed by the courts at the point of conviction, showing that the courts are utilising their powers to do everything possible to provide the police with the tools to manage sexual offenders. 24 applications were made to the magistrate’s courts for SOPOs. 14 interim orders were granted and 21 full SOPOs. 1 application was refused when it transpired that the offender did not meet the criteria. No notification orders, RoSHOs or foreign travel orders were applied for.

The collection of data for this year’s report has remained the same as for last year. The total number of offenders who have been managed through MAPPA in Northumbria between 1 April 2006 and 31 March 2007 has risen from 1318 to 1329, an increase of 11 which is much smaller than previous years. Categories of offenders (see page 7) Although there has been an increase overall, the number of offenders managed from category 1 (registered sex offenders) has decreased by 28, and from category 2 (violent and other sex offenders) has decreased by 29. Category 1 and 2 offenders are automatically included in MAPPA as a result of their conviction and sentence, so the decrease in numbers for 2006/7 indicates there were fewer offenders meeting those criteria living in the Northumbria area during the reporting period. The increase in numbers is all within category 3, other offenders who are considered by the responsible authority to pose a risk of serious harm to the public. These are offenders who are not automatically included in the arrangements but are identified and referred by any one agency for multi-agency risk management. Many of the referrals come from mental health services, social services, housing and other duty to cooperate agencies; often the offenders do not have involvement with police or probation. As such the increase in category 3 offenders, an increase of 68 from 151 to 219, demonstrates 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

Serious further offences During the reporting period, none of the offenders managed at level 3, the highest level, were charged with a further serious offence. Of the 424 offenders managed at level 2, 3 were charged with a further serious offence. For two of these cases, aggravated burglary and rape of a male child under 13, the offenders have been found not guilty at crown court. In the third case, which is murder, the offender is awaiting trial.


Northumbria Area MAPPA statistics 2006-7
Number of offenders

Category 1. Category 1: registered sex offenders i) Number of registered sex offenders (RSOs) on 31/03/07



This is the number of sex offenders currently residing in the Northumbria area who are subject to registration. This does not include RSOs who are in prison This list shows the breakdown of the RSO population across Northumbria

RSOs per basic command unit: Gateshead Newcastle North Tyneside Northumberland South Tyneside Wearside ia) The number of RSOs per 100,000 head of population ii) The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement between 1 April 2006 to 31 March 2007

136 239 125 137 61 172 62

The number of RSOs per 100,000 head of population in Northumbria This is the number of offenders who failed to comply with the requirements of their registration order and were either cautioned or convicted. The breach may 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 This order can be imposed at conviction or upon application by the police under civil proceedings. It is designed to include prohibitions tailored to manage the individual offenders risk and is, therefore, exclusive to each offender No notification orders have been applied for


iii) The number of Sexual Offences Prevention Orders (SOPOs): a. applied for on complaint b. of those, interim orders granted c. full notification order imposed by the courts in Northumbria Area between 1April 2006 and 31 March 2007 iv) The number of Notification Orders: a. applied for b. interim orders granted c. full notification orders imposed by the courts in Northumbria Area between 1April 2006 and 31 March 2007 v) The number of Foreign Travel Orders: a. applied for b. imposed by the courts in Northumbria Area between 1 April 2006 and 31 March 2007

a. 24 b. 14 c. 58

a. 0 b. 0 c. 0

a. 0 b. 0

The order prevents convicted sex offenders from travelling abroad where there is evidence they intend to commit sexual offences against children living abroad. To date Northumbria Police has not needed to apply for a foreign travel order



Number of offenders


2. Category 2: violent offenders and other sexual offenders vi) The number of violent and other sexual offenders living in Northumbria between 1 April 2006 and 31 March 2007 240 This figure is the number of violent and other sex offenders (not registered sex 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 1 April 2006 and 31 March 2007 219 The number of other offenders (ie, not 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 each of the three categories above have been managed through MAPPA (level 2 and 3) between 1 April 2006 and 31 March 2007 1) RSOs 2) Violent and other sexual offenders 3) Other offenders level level 1) Registered sex offenders who have 3 2 been considered by the MAPPA level 2 or 3. 14 17 6 94 2) Sexual/violent offenders who have 117 received 12 months or more 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


Northumbria MAPPA Strategic Management Board
4.1 Membership of the SMB
Senior MAPPA leads for other partner agencies include: Customer Relationship Manager Group 4 Securicor South Tyneside Youth Offending Service Manager Regional Youth Offending Service Service Improvement Manager Regeneration Housing, North Tyneside Head of Adult Services Sunderland Social Services Department Northumbria Deputy District Manager Jobcentre Plus Chief Executive National Housing Federation

As outlined on page 5, from April 2007 Northumbria introduced a streamlined strategic management board, comprising representatives from police, probation, prisons, health and the lay advisers. This includes: Director of Operations Northumbria Probation Area SMB Chair Area Manager – Public Protection Northumbria Probation Area Assistant Chief Officer – Public Protection Northumbria Probation Area Regional Prison MAPPA Lead HM Prison Service Assistant Chief Constable Northumbria Police Detective Superintendent Crime Management/Public Northumbria Police Detective Sergeant MAPPA Lead Northumbria Police Northumberland & Tyne & Wear Strategic Health Authority Professor of Forensic Psychiatry Northumberland & Tyne & Wear NHS Trust Professor of Psychiatry Northumberland and Tyne & Wear NHS Trust 2 Lay Advisers


SMB responsibilities

The SMB is responsible for the monitoring and reviewing of MAPPA and for ensuring that the risk assessment and management arrangements are revised where necessary to reflect legislative and wider criminal justice changes. The board is, therefore, provided with data by the MAPPA unit which includes information on the number of offenders in MAPPA, the levels at which risk is being managed and data on enforcement action, together with details of those offenders subject to MAPPA who have been charged with a further serious sexual or 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


the protection of the public. Both the MAPPA annual report and the MAPPA SMB business plan are submitted to both boards to update them on progress.

case study: Stuart, MAPPA category 1, level 3

A convicted sex offender, living in the community, whose offences were committed against children, was referred to the Level 3 MAPPP by the police. He was subject to indefinite sex offender registration, but not under any statutory supervision by the probation service. It had come to the attention of the police that this offender had joined a church group and was also visiting leisure facilities in the Northumbria Area. The latter activity had been brought to the attention of the police through the Leisurewatch project managed by The Derwent Initiative.


Role of the Lay Adviser

Northumbria is currently recruiting to ensure that the SMB will include two lay advisers in the coming year. The role of lay adviser in each area is to: “Keep the arrangements established by the responsible authority under review with a view to monitoring their effectiveness and making any changes to them that appear necessary or expedient”. The value of the Lay Advisers’ role is essentially twofold. Firstly, they represent a community interest in public protection and secondly they bring a different perspective from that of the professional interests in MAPPA. This different perspective brings a freshness of view, an independent opinion which can provide what might be termed “a reality check”. In practical terms the lay advisers’ role involves: O their preparation for and attendance at SMB meetings O asking questions of the responsible authority about the business under discussion, particularly the ‘why’ questions O being the ‘critical friend’: offering constructive criticism and challenging assumptions which, while rooted in professional good practice, are not clearly understood by the lay person offering views as to how the responsible authority can communicate the work of MAPPA to the local community

The MAPPP included police, probation, housing, local social services and a victim liaison officer. The MAPPP had to consider the risk posed by this man’s activities and decide how to manage that risk. Decisions were made and a risk management plan was drawn up: > To monitor the home circumstances through the housing association > To increase home visits by the police in line with his sex offender registration, to be unannounced and include evening visits > To apply for disclosure to the church authorities regarding his membership of the church group > To notify local leisure facilities within Leisurewatch arrangements > To pursue application for a Sex Offender Order which would include prohibitions to prevent the offender engaging in certain activities

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.


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

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


Northumbria SMB Business Plan 06/07: Progress Report
MAPPA development strategy
Strategic Aim To achieve dedicated MAPPA co-ordination and administration capacity: Outcome O MAPPA manager/co-ordinator appointed November 2006 O Dedicated MAPPA administrator appointed September 2006 Strategic Aim

Appendix A

Communication and strategic partnership strategy

To publish MAPPA annual reports which are designed to improve public understanding and engagement and to develop a communications strategy for the Northumbria area SMB taking account of the national strategy devised by the Responsible Authority National Steering Group (RANSG). Outcome O Media strategy finalised and operational

Monitoring and development
Strategic Aim O Monitoring arrangements to support the following in place: O Publication of the annual report O An analysis of MAPPA risk management thresholds at level 2 and 3. O An analysis of MAPPA offenders who commit serious further offences. O An analysis of attendance and level of cooperation of agencies contributing to level 2 and 3 meetings. O An analysis of diversity profile of offenders assessed at level 2 and 3. Outcome O Electronic MAPPA register established March 2007 This will facilitate the collection of data for next year’s annual report.

O Targeted, intelligence led communication strategy in place supported by Local MAPPA strategy groups O SMB to establish communications sub-group to take forward the strategy during 2007/8 O Two lay advisers appointed to the SMB and will take on the role in June 2007 O Recruitment of lay advisers to local MAPPA strategy groups not proceeded with

Training strategy
Strategic Aim Northumbria Area SMB to include a training strategy in the business plan, to include: O induction to MAPPA for new practitioners O training for MAPPA SMB members O training for MAPPA co-ordinators Outcome Northumbria has continued with its MAPPA awareness raising sessions organised through 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





Recruitment of lay > Canvas interest in the role from Probation advisers to the board ex police authority and probation board members Police


> Arrange interviews Identify 2 successful candidates and appoint > Seek ministerial approval via Ministry of Justice Implementation of ViSOR subject to national requirements > ViSOR already established with Probation police > Acklington Prison - early adopter site > Probation will roll out ViSOR January 2008 subject to national implementation timescales:
> Establishment of local ViSOR implementation group > Related implementation plan > Proposed “narrow” business model for ViSOR suggests centralised model based around MAPPA unit

Two lay advisers appointed by June 2007 with ministerial approval requested forthwith

Roll out January 2008


Joint training in relation to sex offenders in response to Joint Sex offender Thematic Inspection Report May 2005

> Relevant aspects of NOMS risk Probation of harm training and resource pack to be disseminated across Police the responsible authority > In line with PC 17/07, probation Prison to carry out audit and related action to ensure RM2000 training is made available across the responsible authority > 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

End of March 2008



Appendix B





Register coordinator > 1:Register coordinator appointed and appointed electronic MAPPA register established > 2: Electronic MAPPA register established and functioning > 3: Identification of core set of reports for use by SMB

Probation Police

1: May 2007 2: End October 2007 3: December 2007


Local MAPPA strategy groups to develop into delivery groups

> MAPPA manager to be link between SMB and local MAPPA strategy groups > Review progress in establishing the strategy groups by responsibly authority > At local level, DTC partners to 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

Probation MAPPA steering group (RA)

March 2008



Develop responsible authority performance indicators for MAPPA

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

MAPPA steering March 2008 group (RA)


MAPPA Unit, Northumbria Police Headquarters North Road, Ponteland, Newcastle upon Tyne, NE20 0BL Tel: 01661 868077