Multi-Agency Public Protection Arrangements

Annual Report 2003-04



Protection Through Partnership


Strengthening the MAPPA Key Achievements during 2003-4 How the MAPPA Operates in Nottinghamshire
− − − − − Information Sharing Risk Management How is Risk Managed? Case Studies The Four Stages of Multi-Agency Public Protection Arrangements

1 3 4
5 6 7 10 12

The Strategic Management Board MAPPA Annual Report Statistical Information Contacts

13 14 16

Nottinghamshire County Council

Mansfield District Council
Creating a District where People canSucceed

Strengthening the

Multi-Agency Public Protection Arrangements
• Probation, • Police and • Prison Services to form a Strategic Management Board, chaired by the Chief Probation Officer. The Board has the responsibility for monitoring and reviewing how the arrangements are working. This continued support is greatly appreciated. The joint funding for the provision of a MAPPA Manager, Strategy & Policy Officer and Administrator is evidence of the real commitment shown by these contributors. The Criminal Justice Act (2003) has introduced several measures that will further develop the MAPPA. These provisions came into force on 5th April 2004 and help strengthen the MAPPA by: (i) making the Prison Service part of the ‘Responsible Authority’ with Police and Probation. formalising the involvement of other agencies which can make an important contribution to helping offenders not to reoffend. The Act imposes a ‘Duty to Cooperate’ with the Responsible Authority MAPPA upon: • • • • • • Local Authority Housing, Education and Social Services Health Service bodies Jobcentres Plus Youth Offending Teams Registered Social Landlords who accommodate MAPPA offenders Electronic Monitoring providers

Welcome to the Nottinghamshire MultiAgency Public Protection Arrangements (MAPPA) Annual Report for 2003 – 4.
This report has been prepared to inform members of the community and agencies connected to the MAPPA, of the work being undertaken to protect the public of Nottinghamshire from potentially dangerous offenders. Crucial to this work is the trust and co-operation between agencies that allows information to be exchanged, and full participation in the assessment and management of the risks posed by potentially dangerous people. Good relationships between agencies require ongoing effort and cannot be taken for granted. It is a credit to those involved in this difficult area of work that such effective multiagency work towards public protection is evident in Nottinghamshire. The local Multi-Agency Public Protection Arrangements (MAPPA) have benefited immensely from the support of; • • • • Nottinghamshire Healthcare Trust, Nottingham City Council, Nottinghamshire County Council Gedling and Ashfield & Mansfield District Primary Care Trusts (who represent the other PCT’s of the County).


Senior managers from these organisations join with representatives from the;


Strengthening the MAPPA
(iii) The appointment by the Home Secretary of two members of the public (‘Lay Advisors’) in each Area to assist in monitoring the effectiveness of the MAPPA. provide an important opportunity to add an element of public scrutiny to the Nottinghamshire MAPPA. Lay Advisors will be able to question what is being done and why. Their contribution to developing the complex and sensitive work of public protection will be received enthusiastically. The Sex Offenders Act 2003 overhauls sexual offences legislation, strengthens the sex offender registration requirements and introduces new civil orders to help prevent further offences from being committed. We have used existing measures enthusiastically, where appropriate, to deal with risks posed by sex offenders and will make full use of the new tools provided by this Act. At a time when there are many and varied demands on the resources of all agencies, it is important not to lose sight of the fact that sexual and violent offences are dreadful crimes that deeply affect the lives of victims and their families. Minimising the risk of further such offences being committed deserves to be one of our highest priorities.

The Prison Service in Nottinghamshire has continued to play an important part in the operational aspects of public protection and is represented on the Multi Agency Public Protection Panel (MAPPP) which deals with the most serious cases. The service now joins the Probation and Police Services as the ‘Responsible Authority’ which has a statutory duty to ensure arrangements are in place to manage the risks posed by certain violent and sexual offenders. We have been pleased to welcome the Governor of HMP Whatton to the Strategic Management Board in recognition of the Prison Service’s additional duties. From the beginning of formal processes to manage the risks posed by potentially dangerous offenders, protecting the public in Nottinghamshire has been very much through a ‘multi agency’ approach. The ‘Duty to Co-operate’ provision makes clear which agencies should be involved with the arrangements and in what way, supporting those already contributing to the arrangements, and assisting the considerable work that has been undertaken to expand the MAPPA. ‘Lay Advisors’ have been successfully piloted and evaluated in several areas across the country and the recruitment and appointment of two members of the public to the Nottinghamshire MAPPA Strategic Management Board will take place between July and October of this year. This will

David Hancock Chief Officer
National Probation Service Nottinghamshire Area

Steve Green Chief Constable
Nottinghamshire Police


Key Achievements during 2003-4
New Public Protection Protocol - The structured risk management system that has been in place since 2001 has been refined further to reflect national guidance and a new protocol has been agreed. Cases can be moved between levels of management to reflect changing circumstances or concerns about risk. Area Child Protection Committees Closer links have been established with the Area Child Protection Committees (ACPC) and a joint Public Protection Seminar has been held and attended by a wide range of agencies. Housing - Extensive work has been carried out to develop better links with housing providers. New signatories to the protocol have been achieved and links made with the Supporting People Team which co-ordinates supported accommodation. Stable accommodation for offenders is vital when trying to manage risk. Mental Health - MAPPA supported the successful multi-agency bid led by Nottinghamshire Healthcare Trust for government funding of a new Personality Disorder Treatment project and will be represented on its steering group. Links have been strengthened with mental health service providers and commissioners across

Nottingham University

the county, which will lead to improved integration of treatments for offenders with risk management plans. Training - Awareness raising training events have been provided to prison personnel at HMP Whatton, HMP Nottingham and at the National Treatment Managers Conference. Other events have been held for Magistrates and people working in the health profession. Strategic Management Board – Membership has extended to include a Prison Service representative. The Board has appointed a Strategy and Policy Officer to assist with their monitoring and reviewing functions.


How the MAPPA
MAPPA offenders are identified and risk assessed through several means: The Nottinghamshire Police’s Dangerous Persons Management Unit (DPMU), is notified of all sex offenders who are required to ‘register’ with the Police. Each offender is assessed for the risk of reconviction using the approved assessment tool, Risk Matrix 2000. The assessment informs decisions about how an offender should be monitored and who should carry out that task. As can be seen in the statistical information section of this report Nottinghamshire had 651 registered sex offenders living in the area on 31st March 2004. This shows an increase in line with national expectations owing to the cumulative effect of new offenders being required to register before the notification period for existing registered sex offenders has expired. Operation Ore (a national operation investigating on-line paedophilia) has resulted in 16 persons being required to register in Nottinghamshire as a sex offender during the period covered by this report. The National Probation Service in Nottinghamshire identify those offenders under their supervision who fall under the violent and

The Nottinghamshire Multi Agency Public Protection Arrangements (MAPPA) Protocol outlines how agencies should work together to manage the risk posed by potentially dangerous persons. It has recently been revised to take account of national guidance, but the basic structure of risk assessment and risk management has been established for some time. This means that across England and Wales all the responsible authorities are working within the same guidance. Through the joint funding, provided by the lead signatories to the protocol, a Senior Probation Officer is employed as the MAPPA Manager. Her role includes the co-ordination of the action taken by the various agencies involved in the most serious cases, providing advice and having an overview of the less serious cases. The MAPPA Manager is assisted by an administrator.


Operates in Nottinghamshire
Information Sharing
The Nottinghamshire MAPPA Protocol sets out the terms for sharing information between its signatories. Social Services Departments, health professionals, housing managers, Prison Service, Police and Probation staff exchange information known about MAPPA offenders for the purpose of risk assessment and risk management. Consideration is given to the human rights of the offender, public safety, the prevention of crime, and the protection of the rights and freedoms of others. Wider disclosure of information requires the authority of the Assistant Chief Constable. Such authority has been sought on several

Market Place, Newark

other sexual offenders category and use the offender assessment system (OASys) to identify the level of risk of harm posed by them. Probation Public Protection Teams are based in Nottingham and Mansfield and supervise those offenders assessed at the highest levels of risk of harm. Youth Offending Teams hold the responsibility for supervising offenders under the age of 18 and identifying those which require risk management through the arrangements. Their assessment tool, ASSET, assists them in this task. Through their normal course of work other agencies come across a person who raises concerns because of information about past or current behaviour. Such cases are referred to the MAPPA Manager for advice.

Market Place, Mansfield


occasions to share information in a planned and selective way alerting specific persons or organisations and enabling appropriate safeguards to be put in place. On one occasion this year full ‘community notification’ was considered to be the most effective way of locating a sex offender who had failed to register. This was a particularly unusual step to take and one not taken lightly. In this case, with the assistance of the local media, the tactic proved successful and the offender was recognised by members of the public and escorted to a police station. Greater use of community notification has been called for but there are potential negative outcomes of this which include driving sex offenders underground.

Level One A single agency approach is used for low and medium risk offenders who do not require the active contribution of more than one agency to the risk management plan. The vast majority of MAPPA Offenders are dealt with in this way. Level Two Inter Agency Risk Management Meetings – can be convened and chaired by a manager from the lead agency involved with that offender. Most of these cases are chaired by the Senior Probation Officers responsible for the Public Protection Teams because they concern offenders under their supervision. Agencies are invited to attend these meetings according to the circumstances of each case and they may include representatives from Health Services, Social Services, Police, Probation, Housing Departments, the Prison Service and voluntary organisations. The objective of these meetings is to allow all appropriate agencies to contribute to the risk assessment, share information to build an accurate picture of the issues, and formulate an agreed risk management plan aimed at minimising the risk of harm to others. In some of these cases the seriousness and complexity of them may require a referral to Level 3, the Multi Agency Public Protection Panel.

Risk Management
There are three levels of risk management employed in Nottinghamshire:

Market Place, Worksop


Level Three The Multi Agency Public Protection Panel was formed in 2001 to deal with the most difficult public protection cases and comprises a core membership which includes a Consultant Clinical Psychologist, housing managers, health professionals with specialist child protection knowledge and senior managers from the Prison, Police, Probation and Social Services. The Panel is chaired by the MAPPA Manager and takes place once a month, considering up to 8 cases throughout the day. The core panel members are joined by other professionals who have a direct involvement with the case under discussion, or who may be able to assist by providing information, advice or services. The function of the Panel is similar to the Level 2 meetings, but the additional resources that the most difficult cases often require can be directed by the panel members and specialist information can be provided or commissioned. Cases are reviewed regularly and are sometimes referred back to level 2 once a risk management plan has been put in place.

Shopping Precinct, Sutton in Ashfield

offender, and whether specific individuals or groups of people are at risk in the future. Triggers that make re-offending more likely are highlighted and actions agreed to counter them. All reasonable options have to be discussed during the risk management meetings and the combined professional judgement of those attending is used. Licence conditions Offenders released from prison may be on a ‘licence’ and in such cases part of the risk management plan may be to devise suitable conditions to be attached to that licence. These conditions can dictate where an offender can live, impose a curfew or prohibit activities (such as certain kinds of

How is ‘Risk’ managed?
Risk management plans are devised to address the risks identified during the assessment process. Particular account has to be taken of the previous victims of the


employment or living with children). An essential component when considering licence conditions, is the view of the victim. Victim concerns are relayed to risk management meetings through the agencies which are responsible for working with the victim(s) in that case. Supervision by a Probation Officer Regular supervision by a Probation Officer can be used to maintain current information on the circumstances of the offender, and any changes which may impact on the level of risk of harm. Home visits by Police Officers Nottinghamshire Police’s Dangerous Persons Management Unit (DPMU) assess each registered sex offender living in the area and determine the frequency of home visits

required in line with Home Office guidance. The visits are unannounced and provide an opportunity to monitor the lifestyle of the offenders. Sex Offender Orders These are Civil Orders applied for by the police and can be used to restrict the behaviour of convicted sex offenders who have acted in a way that causes belief that an order is required to protect the public from serious harm. There are currently 25 orders in force, a further 3 having been applied for successfully during the period covered by this report. Sex Offender Orders can be used to interrupt a cycle of offending before the behaviour leads to the commission of a sexual offence. They have proved to be an effective measure in protecting the public. Offenders who breach their orders are arrested and can receive up to 5 years imprisonment. The Sexual Offences Act 2003 creates several new orders, one of these the Sexual Offences Prevention Order (SOPO) effectively combines the Sex Offender Order with the Restraining Order. Restraining Orders These are similar to Sex Offender Orders and can be imposed by a Court at the time of dealing with an offender for certain sexual offences. 2 such orders have been imposed by the Courts in Nottinghamshire

Shopping Precinct, Kirkby in Ashfield


and have included restrictions on association, residence, employment and possession of camera or video equipment. Treatment Programmes These can be used to continue the work of Sex Offender Treatment Programmes completed by the offender in Prison, or deal with alcohol and drug problems which may be a contributory factor to the level of risk posed by the offender. Electronic Tagging This is sometimes used to assist with the enforcement of curfews and ensures that a tagged offender remains at a particular location during specified times. Housing/accommodation Stable accommodation is essential to monitor and manage an offender effectively. On several occasions it has been necessary to arrange for specialist hostel accommodation out of the county, but more usually appropriate accommodation has to be found within Nottinghamshire. The most important aspects when resolving this often difficult issue are the concerns and feelings of any previous victims of the offender, and the protection of individuals from possible future offences.

County Hall, Nottingham

Sex Offenders Register The Sex Offenders Act 1997 introduced a requirement on persons convicted of certain sexual offences to register their name and address with the police. Any change in these details has to be notified to the police within certain time limits. The Sexual Offences Act 2003 demands that a sex offender registers details with the police more speedily than before and requires annual notification regardless of any change in their details. In addition to the Police National Computer, Nottinghamshire Police use a database called ‘ViSOR’ (Violent and Sex Offender Register) to record the details of all registered sex offenders. This enables them to record visits made, any information gained, and details of assessments of risk of reconviction. A new national ViSOR database is being developed and will be used by the Police and Probation Services to record all violent and sexual offenders.


Case Study 1
The following anonymised case study is an example of a sex offender who is being managed through the MAPPP. Mr Y is a 27 year old male who is a Schedule 1 offender (i.e. he has committed offences against children in the past). He has served 3 prison sentences for serious sexual assaults against children. His offending history dates from 1985 and includes, theft, public disorder, fraud and 8 sexual offences. He is described as having ‘mild learning disability and social impairment’ and has been subject to sexual abuse himself.
At the end of his last prison sentence, concerns were such that the Panel requested the Police to make an application for a sex offender order to restrict aspects of his behaviour which were used in grooming children for sexual abuse. The order was granted by the Court - Mr Y breached the order when he was observed loitering near a group of young children. He was successfully prosecuted and received a further term of imprisonment of 4 months. On his release he was again closely monitored, a further breach of the sex offender order was identified and he was sentenced to another term of imprisonment of over three years. Mr Y does not accept his sexual attraction to children and has refused to participate in the ‘Adapted Core Programme’ (for sex offenders) while in custody. The risks posed by Mr Y have been managed over a considerable period of time. Through close co-operation among agencies, measures have identified significant behaviour patterns in his cycle of offending and an order applied for which gave the power to the police to intervene. Mr Y has been released from prison following his last sentence. His problems have not diminished, neither has his risk to the public. The MAPPP have continued to manage his case and funding was obtained from the Home Office by the MAPPA Manager to provide specialist secure hostel accommodation. Mr Y is electronically tagged, he is subject to a strict curfew and is escorted on trips from the hostel. His room is alarmed and the sex offender order has been revised to cover his new circumstances. Change in this case is gradual, but it is only with this level of oversight and management that Mr Y’s risks can be contained.


Case Study 2
The following anonymised case study is an example of a violent offender who is being managed through the MAPPP
Mr. X is a 23 year old male who has a long offending history of violence. He has been violent towards young women, including partners and ex-partners. Mr. X has no victim empathy and considers his violence towards others to be justified.
While he was serving a term of imprisonment for a serious assault and abduction, a Level 2 risk management meeting was called to decide how to manage his risk on release. He was assessed as a very high risk offender who was likely to cause serious harm to his ex partner. There were difficulties in managing the risk he posed and how to secure suitable accommodation. A decision was made at the level 2 meeting to refer the case to the Multi Agency Public Protection Panel (MAPPP). The Panel met and the Senior Probation Officer and Probation Officer outlined details of the case and their assessment of risk. An officer from the Police Domestic Violence Unit attended the meeting. A decision was made, taking into account the views of the victim and her family, that accommodation for Mr X should be sought in a different area from where the victim lived. Mr. X would be on a Licence and strict conditions would be imposed that would prevent him from travelling to the area where his previous victim lived. Arrangements would be made to ensure his immediate recall to prison if he breached any of these conditions. Mr. X was found appropriate hostel accommodation where he could be closely monitored and was released on licence to live at the hostel and abide by their rules. After 3 weeks of living at the hostel a decision was made to recall Mr. X to prison due to his challenging the hostel staff and refusing to comply with the hostel rules. He was returned to prison and served the remainder of his sentence in custody. A review of his case was called to prepare for his release from prison custody at the end of his sentence. On his release from prison Mr. X would not be under the statutory supervision of the Probation Service having completed the remainder of his sentence in custody following recall. This created difficulty with managing the risks he posed as no controls could be placed on him regarding his place of residence or reporting to the Probation Service. The Panel agreed that attempts should be made to assist Mr. X to find stable accommodation and thereby if possible influence the location of any offered. The Probation Service offered voluntary contact with Mr. X. The Health Service would make regular visits to the victim and her child to ensure there had been no contact. The Police Domestic Violence Unit would continue their work with the victim, put in place safety measures, offer support and assist the victim to take out a civil injunction to order Mr. X not to contact her or her child. In the event, Mr. X was released from prison. Shortly after he was arrested for an offence of dishonesty and returned to prison. Mr. X continues to present a risk to women with whom he forms relationships and measures are still in place to minimise that risk.


The Four Stages of the Multi-Agency Public Protection Arrangements

Stage 1 Identification

Stage 3 Stage 2 Risk Information Assessment sharing

Stage 4 Risk Management

Agencies & individuals outside of MAPPA



MAPPA Agencies MAPPA Co-ordination

Risk Assessment

Risk Management Decisions

L E V E L 1

L E V E L 2



Social Service




The Strategic Management Board (SMB)
The original group of agencies that formed the Public Protection Steering Group established the Multi Agency Public Protection Panel and agreed its funding. In April 2003 the group became the MAPPA Strategic Management Board. This not only falls into line with the terminology used in the national guidance for England and Wales, but reflects the additional tasks that the group is now responsible for:1. Monitoring & evaluating the operation of the MAPPA 2. Establishing connections to support operational work with other public protection arrangements. 3. Preparing & publishing the Annual Report and promoting the work of MAPPA. 4. Reviewing the arrangements in the light of new legislation 5. Identifying and planning training needs of those working in the MAPPA. The Board is assisted in these tasks by the MAPPA Manager and the Strategy & Policy Officer. The latter post is an innovative solution unique to Nottinghamshire and has been invaluable in managing this specialised field of work. Lay advisors will be joining the SMB within the next year and we are looking forward to this new development. It is anticipated that lay advisors will take the opportunity to promote community needs and opinions. They will play an important part in the strategic development of MAPPA

Shopping Precinct, Mansfield



Category 1 MAPPA offenders: Registered Sex Offenders (RSOs) i) The number of RSOs living in Nottinghamshire on 31st March 2004. 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 1st April 2003 and 31st March 2004 iii) The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in Nottinghamshire between 1st April 2003 and 31st March 2004.
a) b) 651 63


3 3

iv) The number of interim Sex Offender Orders (a) applied for and (b) imposed by the courts in Nottinghamshire between 1st April 2003 and 31st March 2004.

a) b)

3 3

Category 2: violent offenders and other sexual offenders. v) The number of violent and other sexual offenders (as defined by Section 68 (3), (4) and (5) of the Criminal Justice and Court Services Act (2000)) living in Nottinghamshire between 1st April 2003 and 31st March 2004



Category 3: Other offenders vi) The number of ‘other offenders’ (as defined by Section 67 (2)(b) of the Criminal Justice and Court Services Act (2000)) between 1st April 2003 and 31st March 2004. vii) The number of Restraining Orders imposed on any MAPPA offenders by the courts in Nottinghamshire between 1st April 2003 and 31st March 2004. MAPPP cases (viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (i)- RSOs, (v)- V&O and (vi)- OO above) have been managed through the MAPPP (level 3) between 1stApril 2003 and 31st March 2004. ix) Of the cases managed by the MAPPP (i.e. (viii)) between 1st April 2003 and 31st March 2004 how many, whilst still in the MAPPP: Were returned to custody for a breach of licence? Were returned to custody for a breach of a restraining order or sex offender order? Were charged with a serious sexual or violent offence? a)
2 RSO V&O OO 14 7 5



b) c)

4 0


General enquiries for further information National Probation Service, Nottinghamshire Area

Head Office Marina Road Castle Marina Nottingham NG7 1TP Sherwood Lodge Arnold Nottingham NG5 8PP HMP Whatton 14 Cromwell Road Whatton Nottinghamshire NG13 9FQ County Hall West Bridgford Nottingham NG2 7QP The Guildhall South Sherwood Street Nottingham NG1 4BT

0115 8406500

Nottinghamshire Police

0115 9420999

Prison Service

0194 9859200

Chief Executives Office Nottinghamshire County Council

0115 9823823

Chief Executives Office Nottingham City Council

0115 9155555


Gedling PCT

Byron Court Brookfield Road Arnold Nottingham Ransom Hall Southwell Road West Mansfield NG21 0ER

0115 9931444

Ashfield & Mansfield District PCT’s

0163 23414114

VICTIM SERVICES National Probation Service Nottinghamshire Area Victim Contact Team 2nd Floor Albion House 5-13 Canal Street Nottingham NG1 7EG 2 King Edward Court King Edward Street Nottingham NG1 1EL 15 Wheeler Gate Nottingham NG1 2NA 1 Queens Road Nottingham NG2 3AS 0115 8599423

Victim Support

0115 8523508

Young Witness Service Witness Service

0115 8524286

0115 9869924