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IMPLEMENTATION OF NATIONAL Probation

SEX OFFENDER STRATEGY


PURPOSE
Circular
To assess progress in implementing the Sex Offender Strategy for the REFERENCE NO:
National Probation Service.
20/2005

ACTION ISSUE DATE:


1. Chief Officers to ensure that the contents of this Circular are drawn to
21 March 2005
the attention of staff involved in implementing the Strategy
2. that Area audits are completed and the results shared with Regional
IMPLEMENTATION DATE:
Managers
Immediate
3. Regional Managers to collate information from area ACOs using the
assessment template by 31st May. A follow-up exercise should be
completed in February 2006 to assess further progress. EXPIRY DATE:
May 2006
SUMMARY
The NPS Sex Offender Strategy was published in September 2004 and is TO:
available on the NPS website. The Strategy identified four key objectives: Chairs of Probation Boards
• Timely assessment using evidence-based tools Chief Officers of Probation
• Interventions to reduce risk Secretaries of Probation Boards
• Interventions to manage risk
• Developing accommodation options commensurate to the assessed risk CC:
The attached template is intended to enable Areas to assess what stage they Board Treasurers
are with each objective and inform their planning arrangements for 2005 – Regional Managers
2006.
AUTHORISED BY:
RELEVANT PREVIOUS PROBATION CIRCULARS Liz Hill, Head of Public Protection
PC10/2005; PC05/2005; PC14/2003; PC56/2002; PC104/2001; PC88/01;
& Courts Unit
PC46/2001;

ATTACHED:
CONTACT FOR ENQUIRIES
Appendix One: Assessment
David.Middleton2@homeoffice.gsi.gov.uk, Head of Sex Offender Strategy &
Programmes template
Elizabeth.Hayes@homeoffice.gsi.gov.uk, Sex Offender Programmes
Manager

National Probation Directorate


Horseferry House, Dean Ryle Street, London, SW1P 2AW General Enquiries: 020 7217 0659 Fax: 020 7217 0660

Enforcement, rehabilitation and public protection


Implementation Assessment

In order to assist Areas to assess progress in implementing the Strategy the attached template is based around the four
strategic objectives identified in the Sex Offender Strategy. It is not expected that all aspects of the Sex Offender Strategy
will be in place. The Strategy is composed of elements of existing good practice together with clear indications for future
development. The completion of this assessment exercise will assist area, regional and national planning (for example it
may highlight training priorities or provide the evidence base for future audit criteria) therefore this is an opportunity for
conducting a stock-take and action planning.

The Area ACO with lead responsibility for sex offenders should complete the template and assess progress using the
‘Red, Amber, Green’ (RAG) code as a performance measure. (Guidance is given on the criteria to be used in
assessing).There is also space after each section to allow for any additional comments.

Section Guidance

Assessment

Probation Areas are required to undertake assessments, using recognised assessment tools, which determine the
anticipated risk of re-conviction, risk of harm and treatment needs for each individual sexual offender. Offender
Managers responsible for supervising sex offenders are required to use:

• OASys
• Risk Matrix 2000
• Be familiar with and able to apply the Structured Risk Assessment (SRA) for dynamic risk factors known to be
associated with re-conviction*
• Acute Risk Checklists*
• Risk Prediction Monitoring (RPM) Form, which is related to the known dynamic risk factors identified through the
SRA. The domains are Sexual Interests, Distorted Attitudes, Socio-Affective factors and Self-Management*.

*These items are included in the Offender Manager training for working with sex offenders and the Facilitator follow-up accreditation
training for the sex offender programmes

Areas are required to ensure that resources are provided for accredited sex offender risk assessment training and to
ensure all appropriate staff attend the training. They also need to conduct quality audits on risk assessments.

Regional Managers are required to ensure that these training arrangements are reviewed annually.

Interventions

Changing the attitude and behaviour of the sex offender can reduce risk. Such interventions will require all Probation
Areas to provide accredited sex offender treatment programmes.
Areas are required to:

• Review Implementation Plans submitted at the time of SOTP implementation


• Assess the number of programme places required
• Provide adequate resourcing to meet the agreed level of provision
• Conduct quality audits to ensure programme integrity
• Identify and support staff to act as Regional Trainers

Regional Managers require reports from Areas on current sexual offender caseload and quality audits on programme
treatment. They will also agree with Areas the targets for the number of sexual offenders to be in treatment, performance
against commencement on programmes, the number of completions and reports on attrition.

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Risk Management

Interventions to manage risk may include:

• Regular office based supervision sessions, backed up by home visits


• Monitoring of movements, activities and associations
• Assessment and monitoring of relationships with significant others
• Restrictions on associations
• Restrictions on residence
• Restrictions on movement, eg, curfew
• Restrictions on activities and possessions which have formed part of the offending behaviour
• Electronic monitoring
• Surveillance

Areas should implement the most appropriate strategy for individual offenders with adherence to National Standards
timescales. Areas should also adhere to the Duty to Co-operate principles under the MAPP Arrangements and work with
the agencies whose statutory functions require them to engage with the individual. In particular there should be explicit
co-ordination with the police of visiting and monitoring registered sex offenders.

Accommodation

Areas will be required to place offenders in appropriate accommodation, commensurate with assessed risk and the
protection of the local community. They will need to develop a range of accommodation, including approved premises,
use of Local Authority Housing and Registered Social Landlords.

Areas therefore need to engage in dialogue with housing providers and local authorities to develop appropriate
arrangements. Areas also need to ensure that Strategic Management Boards of MAPPA work to develop local strategies
in which accommodation can be routinely accessed, as well as ensuring provisions for emergency accommodation.
Other ‘wraparound’ services should also be available in order to support sexual offenders in their accommodation.

Regional Managers should work with Areas to ensure that regional arrangements are in place for meeting sexual offender
accommodation needs, out of area resettlement and there are supportive case transfer arrangements within the region,
which provide a robust regional infrastructure.

Regional Managers

Regional Mangers have agreed to collate information from the relevant ACOs within the Region and provide the
information to NPD by 31st May 2005. The data will be collated and used to inform regional and national planning
priorities. There will be a second review of implementation collated by Regional Managers in January 2006 to assess
progress.

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Guidance on RAG Assessment criteria

Assessment

Q1. Code as Green if 95% or more of sex offenders have pre-sentence OASys assessment; Amber if 70 -94% and Red if
less than 70% or information not available (in all cases below code red if no information on the item is available)
Q2. Q3. Q4. & Q5. These assessment tools are provided during the 3 Day Offender Manager Training and repeated on
the training for Treatment Managers & Facilitators writing Post Treatment Reports on the 3 Day Follow up training.
Code Green if 90% or more of practitioners; Amber if 70 – 89% and Red if less than 70%
Q6. Code Green if system operational and reports produced; Code Amber if system for review is planned to be
implemented; Code Red if no work on quality reviews has taken place. This question also requires a comment to describe
system which is used.
Q7. Code Green if review arrangements in place and have happened; Code Amber if review arrangements in planning
stage and Red if review of training requirements not yet addressed.

Interventions

Q1. Code Green if implementation plan review completed; Code Amber if review planned or in progress; Code Red if not
yet addressed
Q2. Code Green if number of treatment places assessment completed; Code Amber if work in progress and Red if not yet
addressed
Q3. Code Green if average waiting time to commence treatment programme is within six weeks of Order/release; Code
Amber if between 12 – 6 weeks and Red if more than12 weeks
Q4.& Q5. Code Green if review arrangements in place and regular reports have been produced; Code Amber if
arrangements planned and Red if not yet addressed.
Q6. Code Green if reports on caseload produced and report on quality review produced; Code Amber if only one element
or at planning stage; Code Red if not yet produced.
Q7. Code Green if all targets agreed; Code Amber if in planning and Red if not yet addressed
Q8. Code Green if attrition is less than 10%; Code Amber if attrition is 11 –19% and Red if more than 20% per year
Q9. Code Green if Offender Management Plans generally contain reference to appropriate arrangements; Good contact
between Prison and Offender Manager to discuss case and use of post treatment assessments reflected in Offender
Management Plan; Code Amber if these features are present in some but not the majority of cases; Code Red if there is
little or no information of effective links between Prison and Offender Manager in most cases.

Risk Management

Q1. Code Green if met in 90% of cases; Code Amber if 70 – 89% and Red if less than 70%
Q2. Code Green if regular reports produced and standards are acceptable to Regional Manager; Code Amber if regional
audits are planned but not yet implemented or standards fall below acceptable levels and plan for improvement are in
place; Code Red if issue not yet addressed.
Q3. Code Green if risk plans generally link with OASys assessment, use of appropriate dynamic and acute risk
assessment; clear evidence of MAPPA at appropriate level; Code Amber if these features are present in some but not the
majority of cases; Code Red if there is little or no information in most cases.
Q4. Code Green if protocols in place with all MAPPA partners and signed off; Code Amber if work is in progress and Red
if not yet addressed.
Q5. Code Green if evidence in 90% of cases that use of SOPO, RoSH and Disqualification Orders have been considered
and used in appropriate cases; If Conditions in Licence or Order contain appropriate use of restrictions on residence,
associations and curfews; Where piloting of Polygraph is in place then appropriate referral procedures are in place. Code
Amber if present in 70 – 90 % of cases and Red if there is little consideration or use of external controls.

Accommodation

Q1. Code Green if Strategy in place and operational; Code Amber if work in progress and Red if not yet addressed.
Q2. Code Green if evidence of protocols/SLA in place or that there has been systematic engagement with
accommodation providers; Code Amber if some work in place but not comprehensive to meet needs and Red if little work
to address this issue is evidenced.
Q3. Code Green if in place and operational; Code Amber if work in progress and Red if not yet addressed
Q4. Code Green if a range of suitable accommodation is available; Code Amber if gaps in provision have been identified
but not yet addressed; Code Red if little work has been done on this issue.
Q5. Code Green if the development of floating support' provision in the accommodation sector which combine tenancy
support and resettlement with surveillance and monitoring from a risk management perspective has been developed.
Code Amber if work to address the issue is in progress and Red if not yet addressed.

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PC20/2005 – Implementation of National Sex offender Strategy
Appendix One

SEX OFFENDER STRATEGY – IMPLEMENTATION ASSESSMENT

FOUR KEY QUESTIONS


1. What percentage of sex offenders are being assessed using evidence based tools within
national standards timescales?
2. Are there sufficient places on sex offender programmes to enable the level of demand
3. Are sufficient risk management arrangements in place?
4. Is there a range of accommodation options for sex offenders?

The tables below contain a range of implementation issues and performance measures that
together would indicate the answers to the above questions. Green = completed or meeting
expectations; Amber = nearly completed or well on the way to meeting expectations; Red = not
completed or meeting expectations and some way from being able to.

In conjunction with the RM and RWWM areas should assess themselves and assign a RAG
indicator. A plan should then be developed to address all those that are Red or Amber.
Assessment
1 All sex offenders have a complete OASys assessment pre-sentence RED AMBER GREEN
2 All practitioners working with sex offenders are trained to use and interpret RED AMBER GREEN
RM2000

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PC20/2005 – Implementation of National Sex offender Strategy
Appendix One

3 All practitioners working with sex offenders are trained to assess sex RED AMBER GREEN
offender dynamic risk factors known to be associated with risk of re-
conviction, such as those identified by the Structured Risk Assessment
(SRA) framework.
4 All practitioners working with sex offenders are trained to use and interpret RED AMBER GREEN
Acute Risk Checklists (provided on 3 Day Case Manager training)
5 All practitioners working with sex offenders are trained to use and interpret RED AMBER GREEN
Risk Prediction Monitoring Form (provided on 3 Day Case Manager training)
6 A quality review of sex offender risk assessments is in place RED AMBER GREEN
7 There are regional arrangements for an annual review of sex offender RED AMBER GREEN
assessment training requirements for probation staff
Comments

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PC20/2005 – Implementation of National Sex offender Strategy
Appendix One

Interventions
1 Area implementation plan has been reviewed RED AMBER GREEN
2 Number of treatment places has been assessed RED AMBER GREEN
3 Number of treatment places available meets demand and waiting times RED AMBER GREEN
are low
4 Programme integrity is subject to routine review. RED AMBER GREEN
5 Arrangements are in place to identify and support staff to be Regional RED AMBER GREEN
Trainers
6 Reports on current sex offender caseload and results of quality reviews RED AMBER GREEN
are provided to RWWM
7 Regional Manager collated from Areas the number of sex offenders to RED AMBER GREEN
be in treatment, the number of completions and reports on attrition
8 Programme attrition is low RED AMBER GREEN
9 Arrangements are in place to enable interventions to start or complete RED AMBER GREEN
either in custody or in the community
Comments

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PC20/2005 – Implementation of National Sex offender Strategy
Appendix One

Risk Management

1 Areas meet the national standards timescale for preparation of risk RED AMBER GREEN
management plans on sex offenders
2 Annual regional review of risk management plans takes place RED AMBER GREEN
3 Risk management plans are of a satisfactory standard RED AMBER GREEN
4 Information sharing protocols are in place RED AMBER GREEN
5 Arrangements are in place to ensure appropriate availability of the full RED AMBER GREEN
range of external control measures for sex offenders (detailed in
Strategy)
Comments

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PC20/2005 – Implementation of National Sex offender Strategy
Appendix One

Accommodation

1 There is a regional strategy for meeting sex offender accommodation RED AMBER GREEN
needs and out of area placement
2 Areas have developed a range of local providers and housing RED AMBER GREEN
authorities who understand the importance of housing sex offenders
3 MAPPA SMBs have satisfactory arrangements for access, including RED AMBER GREEN
emergency access, to accommodation for sex offenders
4 There is a range of suitable accommodation provision for sex offenders RED AMBER GREEN
5 There are suitable wraparound services for supporting sex offenders in RED AMBER GREEN
accommodation
Comments