Multi-Agency Public Protection Arrangements Annual Report 2006-2007


for England and Wales


Introduction National Perspective Achievements Reflections MAPPU Multi-Agency Public Protection Unit (Cardiff Review) Wales MAPPA Co-ordinators MAPPA case studies Statistical information MAPPA Statistics for South Wales Area 2006 - 2007 MAPPA Managed Serious Further Offences 2006 - 2007 MAPPA Offenders An overview of the population Strategic Vision 1. MAPPA Development 2. Monitoring and Evaluation Strategy 3. Communication and Strategic Partnership Strategy 4. Training Strategy 1 2 3 6 7 8 9 10 11 12 13 14 15 17 19 21


for England and Wales


The past year has seen significant events both nationally and locally and Public Protection continues to be subject to intense media scrutiny. All partners of the Multi-Agency Public Protection Arrangements have been working closely together to ensure the best possible protection of the public in South Wales and that the public is fully informed about the work undertaken. Significant area wide progress has been made in accommodation arrangements for dangerous offenders released from custody, ensuring appropriate accommodation will be made available and that, consequently, the supervision and monitoring of MAPPA offenders is further improved. The success of co-located multi-agency public protection working in the Cardiff MAPP Unit has prompted the establishment of a similar unit in the Rhondda Cynon Taff / Merthyr Tydfil areas and this will be fully effective by publication of this report. This new unit again demonstrates the closeness of cooperation between partners and the commitment to properly resource Public Protection work in South Wales. We will continue to improve our inter-agency co-operation and develop the skills that ensure the people of South Wales enjoy and have confidence in the highest levels of public protection. The Strategic Management Board of MAPPA in South Wales will ensure that the area both benefits from the best possible levels of practice and that this practice is monitored and managed to sustain a process of continuous improvement.

Ian Lankshear
Chief Officer South Wales Probation

Barbara Wilding, CBE, QPM, CCMI Chief Constable South Wales Police John May
Area Manager, Her Majesty’s Prison Service

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


National Perspective
Maria Eagle MP
Parliamentary Under Secretary of State 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.


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

Strategic Management Board members
Kevin Gibbs Area Children’s Services Manager, NSPCC Kevin Jones South Wales Adult Protection Forum Linda Badman Jobcentre Plus Dick Geen Cardiff Community Safety Partnership Robert Rees Head of Housing Service, Neath Port Talbot CBC John Davies Community Safety Partnership Co-ordinator Tegwyn Williams Consultant Forensic Psychiatrist, Caswell Clinic Alison Lewis G4S, HMP Parc Jeff Davison Swansea Community Safety Partnership Sarah Davis HMPS Reducing Re-offending Lead Det. Supt. Martin Jones South Wales Police Tony Young Head of Children and Family Services, Vale of Glamorgan CBC Pam Harding Area Manager, Victim Support Andy Homer Assistant Director, Operational Support, Serco Monitoring Chris Pike Housing and Community Safety, Vale of Glamorgan CBC Mal Gay Bridgend Youth Offending Team Helen Bennett Head of Mental Health Services, Cardiff and Vale NHS Trust Susan Cousins Executive Director, Safer Merthyr Tydfil ACC Giles York South Wales Police Reverend John Dale Lay Adviser Phil L. Jones National Probation Service South Wales Area Nigel Rees MAPPA Manager Chris Fox Cardiff CC Housing

The Strategic Management Board within South Wales has demonstrated innovative and challenging working practices. It is a measure of the engagement of all parties that we formulated and delivered annual business plans in 2006-2007 and in advance of the national roll-out. We recognise as partners that the management of offenders within our communities is an extremely challenging and difficult task in a constantly evolving world. The business plan seeks to enhance our capabilities, and to develop our responses as partners, particularly in light of emerging issues. Our business plan has been split into six distinct areas. Each area has an identifiable strategic aim with complimentary business plans and timescales. Further to this, SMB partners are identified in respect of their responsibility to deliver the work in progress. This work is then subject to evaluation and progress reports and is managed through the Strategic Management Board. We now are well advanced into the second year of a rolling three-year plan. The significance of the business plan is that it clearly identifies the importance of partnership working to deliver tangible outcomes to protect the communities of South Wales and to minimise the risk posed by offenders living within the community. It is my belief that it has galvanised our response as responsible authorities, duty to co-operate agencies and wider community partnerships. The challenge for us all, now, is to ensure that we plan for the future in both a dynamic but also pragmatic way. Ensuring we have clarity of aim and that we make best use of all resources available in making South Wales a safer place in which to live. Det. Supt. Simon Clarke South Wales Police Public Protection Department The full Business Plan is published at the end of this report.

SMB HM Prison Service
The Prison Service continues to play both a strategic and operational role in the MAPPA process. There is a particular commitment to raising the profile of the Prison Service as a ’Responsible Authority’. The appointment of a senior manager to lead on Public Protection within the Wales Area has given greater consistency and expert input to the Area Manager’s representation on the SMB. It is hoped that improved communication and improvements in dynamic risk assessment will enable the wealth of quality information on MAPPA nominals held in custody to be readily available to panels. The Public Protection lead will be a link with all prison establishments but will also develop such issues as the work of the Police Liaison officers, information protocols and the management of MAPPA nominals in open conditions. Sarah Davis HMPS Area Reducing Re-Offending Lead

Jobcentre Plus Wales
Jobcentre Plus Wales is well aware of the important role it has to play in protecting the public and its workforce through MAPPA arrangements. We are mindful that this will be done through successful partnership working with other Responsible Authorities and Duty to Cooperate Agencies. I will also continue my commitment to work with the relevant partner agencies in progressing the development of our staff awareness of the MAPPA process. Future developments will include representation on other MAPPA Strategic Management Boards in Wales. Linda Badman Customer Services Director Wales

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


Lay Advisor
It has been a year when I have observed the drawing together of the SMB. It seems to me that all the agencies are pulling together to achieve the best in the way of protecting the public. I have also been glad to take part in Quality Audits of the work of MAPPA. I regret that at the start of the year and for the last few months I have been the only Lay Advisor on the South Wales Area SMB and I hope to be joined by another person or persons soon. The Reverend John Dale Multi-agency working is at the heart of all CSP activity and it is the same ‘joined-up’ approach that makes it possible to respond to the challenges of public protection at all levels. The role of the MAPPA Strategic Management Board is to ensure that this ‘joining-up’ occurs across the seven CSPs in the South Wales Police area and this depends on effective communication between agencies and across geographical boundaries While representing the Merthyr Tydfil CSP on the SMB I have seen at first hand how barriers to communication and partnership working have been overcome through the commitment of individuals, from senior management to practitioner level. I have no doubt that the strategic lead taken by the SMB has made a positive difference to the way in which we are dealing with public protection and reassurance both in Merthyr Tydfil and throughout South Wales as a whole. Sue Cousins Executive Director Safer Merthyr Tydfil

Youth Offending Teams (YOTs)
Youth Offending Teams deal with young offenders aged 10 - 18 of whom relatively few pose a serious danger to the public. YOTs were not initially really engaged in the MAPPA process but this has altered considerably over the past few years. It has been recognised that whilst the numbers are small it is vital for YOTs to appropriately identify and refer those who can pose a risk and to ensure they are fully engaged in the MAPPA process. There is now a representative of the 7 South Wales YOTs on the Strategic Management Board and all the YOTs in South Wales are fully signed up to the MAPPA Protocol. There is now greatly increased awareness of the MARAC and MAPPP procedures and processes and YOTs make regular referrals, providing assessment and background information when requested As YOTs move towards a more focused Risk Based method of working, the links with MAPPA become even more important. Mal Gay YOT Manager Bridgend

The Housing role within MAPPA has continued to grow and evolve. We are now taking a more active role in ensuring that the central role of accommodation issues, and the views of accommodation providers, are addressed, through our involvement in the South Wales SMB. Our ability to keep housing workers and our communities safer has been enhanced by greatly improve exchange of information as direct access hostels for homeless people in Cardiff are now signatories of the Memorandum of Understanding.

Community Safety Partnerships
Public reassurance and reducing the fear of crime are priorities for Community Safety Partnerships (CSPs) and local MAPP arrangements are a vital tool in ensuring the effective implementation of public protection and reassurance.


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

The establishment of the Multi Agency Public Protection unit has made significant progress in breaking down barriers between agencies and improving relations with partner agencies within the South Wales area, with much more effective sharing of information and intelligence, in the management of dangerous and potentially dangerous offenders. For the coming year there remains significant work to done in working with other partnerships within Wales in order that we can smoothly assist each other in managing offenders who have crossed, or need to cross, administrative boundaries. There also remains the challenge of ensuring that accommodation providers are resourced adequately, to provide safe suitable accommodation for offenders, and for the staff to manage them safely. Chris Fox Cardiff City Council Housing Department full and active role in the management of dangerous offenders and in particular providing more information which can be shared within the current confidentiality guidelines to make our communities safer. Helen Bennett Head of Mental Health Nursing Cardiff and Vale NHS Trust Gwenan Roberts Head of Planning Pontypridd & Rhondda NHS Trust

Monitoring Services
Serco have been committed to MAPPA and its principles since the implementation of ‘tagging’ and fully support the Strategic Management Board, and co-operate openly with other agency colleagues throughout Wales & England. With the greater use of electronic monitoring our contact with MAPPA has increased and we now include MAPPA familiarisation training during our4 week residential Initial Training Course (ITC) for new staff. This means that all our staff know how MAPPA works, its categories, levels and how it protects the community. This training is ongoing with all staff attending an annual refresher course. We have also received support from Nigel Rees, who came to our South Wales Base to give a presentation to members of Field Staff, Management and Service Delivery Officers. This received an encouraging response as it gave the officers who attended a chance to ask questions. It also left staff reassured of their own safety while working in the subject’s homes and that of the broader community Serco Monitoring’s involvement with MAPPA facilitates the use of electronic monitoring of curfews along with other requirements put in place by MAPPA meetings. We provide advice on the suitability of premises and the times during which the subject is on curfew. We strongly feel that our involvement with MAPPA makes a worthwhile contribution to protecting the public. Andrea Chichester Service Delivery Officer

Health continues to participate fully in the joined up approach to the management of dangerous offenders and we are now actively involved in the serious case review process. We are committed to providing health representation on the MAPPA Strategic Management Board to ensure support at the strategic level but also working to ensure that health staff support the process at the local operational MAPPA meetings. Within health we are always looking for innovative ways of working with new partners to ensure a

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


Janet M Chaplin MBE
Assistant Chief Officer Janet Chaplin retired at the end of this year as Co-Chair of the South Wales Area Strategic Management Board of MAPPA, having held that post since its’ inception. I take this opportunity to reflect on Responsible Authority relationships. I recall the time when Probation and Police staff rarely spoke to one another unless it was to criticise, while Prison staff were simply people who supervised prisoners. Now, years on, it is refreshing to observe how Probation, Police and Prison staff at all levels recognise that, whilst we have different roles, the responsibility for Public Protection and preventing re-offending belongs to us all. Thus, we share information, engage in joint decision making and risk assessment and work tirelessly to make South Wales a safer place. Why then are the public not more aware of our success? The endless time and boundless energy devoted to ensuring that every aspect of risk is thoroughly reviewed; the speed with which actions are taken and offenders recalled if they step out of line is something the public does not get to see. Despite the most rigorous applications of public protection principles and the best assessment and management of risk, nevertheless some offenders will re-offend. No system can be 100% risk free or guarantee 100% protection. What is given in South Wales is a guaranteed 100% effort from professionals who are highly trained to work both as individuals and as teams. Those who do their best to keep us safe will, despite their best endeavours, sometimes make mistakes. Any such mistakes need to be thoroughly investigated. We must be sure that lessons are learned and shared so that the Responsible Authorities and their partners continue to improve in their role of protecting the public. Let us try to remember that offenders are from our community. They are our responsibility and we should thank and congratulate those who take the responsibility, on our behalf, for ensuring our safety.


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

MAPPU Multi-Agency Public Protection Unit (Cardiff Review)
The Multi-Agency Public Protection Unit (MAPPU) is currently in its second full year of existence and the staffing levels have been increased due to workload demand. In addition to the staffing levels of March 2007 - 2 x police officers, 1 part time Probation Officer, 2 x part time Housing Officers, 1 x part time CPN, the Unit has a further 1 Detective Sergeant and 2 x Police Officers and a part time Adult Services and Children’s Service Social Worker. The unit brings together all the above agencies under one roof, which ensures the process of risk assessment and risk management is maximised to its full potential. Within the Unit (based at Cardiff Central Police Station) the agencies can gain access to each others systems, which enables fast and effective risk management of the critical few offenders who are currently either serving a custodial sentence or being supervised and monitored within the community. It is this close co-operation between the agencies that has developed a greater understanding of each others roles and responsibilities. The staff within the Unit are accomplished single point of contacts for the partners, taking joint working to a new dimension. The MAPPA can demonstrate the attributes of reinforcing joint risk management and deal effectively with referrals within the Unit (see diagram 1). This has allowed the weekly MARAC to deal with the relevant few cases that need MAPPA level II co-ordination. Eirian Evans Team Manager Cardiff Offender Management

How MAPPU filters referrals to MAPPA Cardiff

MAPPU Managed

Referred on to MAPPA


Multi-Agency Public Protection Arrangements Annual Report 2006-2007


Wales MAPPA Co-ordinators
MAPPA Co-ordinators Making co-ordination of MAPPA effective across the whole of Wales
MAPPA co-ordinators from all 4 welsh areas (Dyfed-Powys, Gwent, North Wales and South Wales) meet on a regular basis to share best practice and ensure that MAPPA processes are consistent and as effective as they can possibly be for Wales.

Issues concerning:
• transfer of cases into Wales and between areas • referral processes into MAPPA • structure of MAPPP minutes • format and circulation of the SMB Annual Reports • notification of the release of offenders not subject to supervision • training for partner agencies • video conferencing • administration • contact information concerning partner agencies

have all been discussed
The opportunity to meet with colleagues undertaking the same public protection role is valued, allowing us all to learn from the way things have been and are planned to be implemented in other areas. The developing relationship of trust between the co-ordinators will also allow us to collectively address and solve problems that may arise in the future.


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

MAPPA case studies
Case study 1
Serious violent offender with convictions for Aggravated Burglary, Manslaughter and Rape. Released to the area at the end of 2006. The offender had a significant history of failing to cooperate with or adhere to licence supervision. Detailed planning for this release began in mid 2005 with actions being undertaken to ensure the protection of victims. This was done by ‘target hardening’* their homes, investigation of all children that the offender may have contact with upon release and the preparation of suitable accommodation. The offender was eventually released to Approved Premises, subject to extensive licence conditions that prevented him contacting, either deliberately or accidentally, previous victims but that also allowed him to renew relationships with his family. Regular MAPPP meetings monitored the offender’s progress and ensured that victims were constantly informed as to the progress of the resettlement plan. Despite no further offending, the offender continues to be monitored through MAPPA processes and both local police and victims continue to be updated as to his situation * Target hardening - A package of measures designed to improve the security and safety of a victim, their home and their family MAPPA co-ordination ensured that professionals working across local authority and national boundaries delivered a structured risk management plan that successfully delivered suitable post release accommodation, offending behaviour interventions, protection of victims from revictimisation and the protection of the public in general. This comprehensive approach also produced a level of co-operation and attitudinal change from an offender that had never previously been achieved. Throughout his sentence the offender had refused to engage with supervision, believing himself to be the victim of injustice. He had no victim empathy and had not undertaken any offending behaviour work to address his attitude to his sexual offending, violence and the risk he posed to teenage females. The offender was released in July 06 and accommodated in Approved Premises, subject to strict reporting requirements and regular drug testing. The offender was given drug agency support, the support of a key-worker, accommodation issues were addressed and preparations made to move to his own accommodation. Throughout this period the offender continued to be monitored and when he failed to return as required by his curfew he was recalled to custody. MAPPA delivered a comprehensive risk management plan that ensured appropriate accommodation and interventions on release. It also ensured that police, probation, housing, education and social services communicated closely to successfully protect potential victims from abuse.

Case study 3
A serious and prolific sexual offender against children had been living in the community for a period of years since his release from custody. Throughout this period the offender has been closely monitored both on licence and after his licence ended by Public Protection police officers. The offender has also had consistent support and treatment interventions from the mental health professionals at a semi-secure hospital. Given the risk posed by this individual, he will be managed by MAPPA indefinitely. MAPPA has delivered close monitoring, protection of the public, appropriate accommodation and mental health intervention. Specific Child Protection issues unrelated to the offender, identified as a consequence of monitoring activities, have also been addressed and a potential victim protected.

Case study 2
A sex offender with convictions for sexual assaults on adult females, supplying cocaine, abduction, false imprisonment, cause prostitution and live on immoral earnings.

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


Statistical information
Glossary of terms
• MAPPA Multi Agency Public Protection Arrangements MAPPP Multi Agency Public Protection Panel To manage the few offenders who pose the highest risk to the community - these are categorised as Level 3 offenders • ‘Critical few’ Those offenders managed through the MAPPP process MARAC Multi Agency Risk Assessment Conference To manage those offenders presenting a high risk to the community categorised as Level 2 offenders • Strategic Management Board The Board manages the MAPPA process and has responsibility to ensure that it is applied consistently across South Wales Responsible Authority Those agencies who are responsible under statute for the Public Protection Arrangements. They are: Police, Probation and Prisons Category 1 offenders Registered sex offenders Category 2 offenders Violent and other sexual offenders Category 3 Offenders Other offenders defined by Section 325 (2) (b) of the Criminal Justice Act 2003

1.4.06 - 31.3.07 compared with 05-06

Category 1 MAPPA offenders: Registered Sex Offenders (RSO)
Number of RSOs living in South Wales on: 31/3/07 695 (31/3/06) 680

BCU: A Division (Rhondda Cynon Taff / Merthyr Tydfil) C Division (Cardiff) E Division (Vale of Glamorgan) F Division (Bridgend) G Division (Neath Port Talbot) H Division (Swansea) Number of RSOs per 100,000 of population Number of RSOs either cautioned or convicted for breaches of requirement between 1.4.05 and 31.03.06 Number of: Sexual Offences Prevention Orders (SOPOs) applied for Interim SOPOs granted Full SOPOs imposed by the courts Notification Orders applied for Interim Notification Orders granted Full Notification Orders imposed by the Courts Foreign Travel Orders applied for Foreign Travel Orders imposed by the Courts

136 232 69 60 67 131 56

149 211 72 61 60 127 55



5 0 5 2 0 2 0 0

10 1 10 0 0 0 0 0

Category 2 - Violent Offenders and other Sexual Offenders
Number of violent and other sexual offenders (defined by Section 327 (3)(4)(5) of CJA 2003) living in South Wales between 1.4.05 and 31.3.06 386 437

Category 3 MAPPA offenders: Other offenders
Number of other offenders (defined by Section 325 (2)(b) of CJA 2003) Between 1.4.05 and 31.3.06 91 35

Offenders managed through Level 3 and Level 2
Number of RSOs managed at: Level 3 Level 2 Level 3 Level 2 Level 3 Level 2 Level 3 Level 2 Level 3 Level 2 Level 3 Level 2 31 242 31 346 6 85 8 35 3 2 2 5 44 244 56 297 0 66 12 51 0 6 1 4

Number of violent and other offenders managed at:

Number of other offenders managed at:

Cases where offenders were: Returned to custody for breach of licence Returned to custody for breach of restraining order or SOPO

Charged with a serious sexual or violent offence


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

MAPPA Statistics for South Wales Area 2006 - 2007
Sex Offenders
There has been a small overall increase (15) in the number of Registered Sex Offenders (RSOs) as would be expected with continuing convictions and long or lifetime periods of registration. The number of Registered Sex Offenders / 100,000 population of 56 represents an increase of 1.79% over the year. This compares with a national figure of 60, an increase of 2.7%. There has been a near doubling of the number of RSOs cautioned or convicted for breaches of requirements, indicating the continuing close and effective management of the risk posed by this group of offenders. Additionally South Wales Police continue to apply for and obtain Sexual Offences Prevention Orders that allow the highest risk offenders to be more closely managed in the community. The difficulty in accessing services for those without a treatable mental illness is a significant barrier to the successful management of the risk posed by some offenders. Information shared with the health services by other community agencies also allows improved assessment and treatment decisions to be made, acting to the benefit of the offender as well as that of the public.

Supervision at Level 2 and 3 Multi-Agency Meetings
The numbers of the most serious ‘critical few’ managed at Level 3 show a reduction of 32% over the previous year, reflecting an improvement in the targeting of resources to manage these high-risk offenders. This is particularly seen in Cardiff where partners co-working in the MAPP Unit have been able to take accurate, informed decisions as to the appropriate level at which a case can be managed due to their experience and immediate access to agency databases. Fewer MAPPA offenders have been returned to custody for breach of licence in this last year. It is difficult to say whether this is a statistically significant number and if so whether the change is due to more or less effective supervision. What is clear is that operational staff are more familiar with MAPPA process and offenders are also better informed as to the impact MAPPA will have on their supervision. Serious Further Offences committed by MAPPA cases remain low despite a significant increase in the overall numbers recorded by the probation service. This may reflect effective risk management undertaken by MAPPA. Whilst it may be difficult in such a complex area of work to identify which offenders will re-offend, we can ensure that 100% effort is put in to reducing known risks in the community. We can make the best assessments of risk, put in place the best risk management plans and ensure that they are implemented. All those involved in MAPPA are committed 100% to protecting the public and to developing and improving that protection.

Violent Offenders and Other Sexual Offenders
The number of offenders managed by MAPPA at Level 2 shows an increase of 16.5%. The numbers managed at Level 3 show a decrease of 45%. The overall number managed at Level 2 and 3 demonstrates a rise of just under 7%. This reflects the improved targeting of resources at the most dangerous offenders and, in particular, the impact made by the MAPP Unit in Cardiff.

Other Offenders:
The increase in Category 3 cases (a rise of 38%) reflects the improving engagement between the Mental Health Services, Youth Offending Services and MAPPA. Doctors and nurses now work closely with partner agencies to ensure that the risk posed in the community by offenders with mental health issues, is managed effectively by all agencies involved in the care and control of that patient. Youth Offending Teams have also become increasingly aware of the beneficial role MAPPA may have in assisting the supervision of young people. It is significant that 40% of the most serious offenders, managed at Level 3, have serious mental health and personality disorder issues, the offender having considerable contact with community and secure / semi-secure mental health services.

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


MAPPA Managed Serious Further Offences 2006 - 2007
Serious Further Offences are defined by a Ministry of Justice list that includes sexual offences against children, other serious sexual offences, murder and other serious sexual and violent offences that may have permanent physical and / or psychological consequences for the victim. In the past year this list has been expanded to include for example Robbery, where a firearm is used and assaults where the intention was to cause serious harm. The Probation Service undertakes a rigorous process of review in every instance where an offender under supervision commits a Serious Further Offence. These reviews are undertaken to a process designed and monitored by the Home Office. The assessment of risk, the management of risk and the management of the offender are all addressed. Where an Initial Review assesses the management of the case as insufficient to properly manage the offender, a full Stage 4 review is undertaken. These reviews make detailed recommendations that are put into practice by the relevant agencies. It is not possible entirely to remove the potential for offenders to commit a serious further offence, and this year we have had 7 serious further offences. Whilst any serious further offence means personal tragedy for people in our community, this year’s figures (representing 0.94% of the total of those managed at MAPPA levels 2 and 3) suggest that MAPPA is generally succeeding in managing those offenders who pose the greatest threat to society. All cases of serious further offending are rigorously reviewed with learning points being addressed by the agencies involved.

Case 3
Supervised on post release licence for an offence of wounding. Under the influence of alcohol the offender assaulted his elder sister. The offender had been closely supervised through MAPPA Level 2 meeting structures and was assessed as well managed. The offender is currently serving a 5-year sentence of imprisonment.

Case 4
Supervised on post release YOI Licence for an index offence of wounding. The offender took part in a street robbery. The SFO review assessed the management of the case as sufficient. The offender is currently serving a 36-month term of imprisonment (Public Protection).

Case 5
Supervised on post release licence having previously been recalled for committing an assault whilst under licence. The offender and his codefendant took part in an assault on a victim known to them. Supervision had been closely coordinated through MAPPP procedures and was assessed as sufficient in the SFO review. The codefendant was not known to MAPPA and a further review is being undertaken. The offender is currently serving a Life Sentence (Public Protection).

Case 6 Case 1
Subject to supervision in the community following an offence of assault. The offender recklessly set light to a number of wheelie bins adjacent to a public house, consequently endangering life. The SFO review assessed the risk assessment, management and offender management as sufficient. The offender is now serving a Life Sentence (Public Protection). Supervised on post release licence for an offence of rape. The offender, together with 2 others took part in the kidnap and assault of another who was known to them. The SFO review assessed the management of the case as sufficient. The offender is presently recalled to custody.

Case 7
Supervised on Extended Licence. The offender indecently assaulted a 14-year-old male child, also committing the offence of Actual Bodily Harm. There were sufficient concerns raised concerning the multi-agency management of the case that the Strategic Management Board decided to undertake a Serious Case Review (SCR). The offender is now serving a Life Sentence (Public Protection).

Case 2
Subject to Community Rehabilitation Order for 18 months prior to his arrest for the Rape and Assault of his girlfriend. The case was well managed through MAPPA level 2 meetings and no SFO full review was required. The offender is now serving a prison sentence of 6 months.


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

MAPPA Offenders An overview of the population
Gender Managed at level 2 Offenders managed at Level 2 in South Wales Area Ethnicity Offenders at level 2
Merthyr Tydfil Swansea Rhondda Cynon Taff Neath Port Talbot

Bridgend Vale of Glamorgan



● Male ● Female ● Transgender

93% 7% 0%

● ● ● ● ● ● ●

Merthyr Tydfil Rhondda-Cynon-Taff Cardiff Vale of Glamorgan Bridgend Neath-Port Talbot Swansea

85 85 140 71 61 51 143

● ● ● ● ● ● ● ● ● ● ● ● ● ● ●

Asian: Indian Asian: Bangladeshi Asian: British Asian: Pakistani Asian: Other Black: African Black: British Black: Other Mixed: Caribbean Mixed: Other Refused White: Other White: British White: Portugal White: Irish

2 1 1 2 1 1 1 1 4 1 3 22 558 1 3

Category 2 (Violent Offenders and Other Sexual Offenders) Offence Breakdown

Age Distribution of MAPPA Managed cases at Level 2 and 3

25 Level 2 20 Level 3 15



● ● ● ● ● ● ● ● ● ● ● ●

Lifers Murder Manslaughter Threats / Incite murder Death - Dangerous Driving Attempt murder Other sex offences Rape Arson - Not endanger life s20 GBH s18 Wounding Aggravated Burglary

20 10 5 6 7 3 25 4 11 109 150 9

0 15 18 21 24 27 30 33 36 39 42 45 48 51 54 57 60 63 66 69 72 75


Multi-Agency Public Protection Arrangements Annual Report 2006-2007


South Wales Multi-Agency Public Protection Arrangements Strategic Management Board Strategic Vision
National legislation requires each Multi-Agency Public Protection Arrangements [MAPPA] Strategic Management Board [SMB] to produce an Annual Business Plan from 2006-07 onwards. The Responsible Authority in South Wales in conjunction with the Duty to Co-operate agencies has decided that these Business Plans should be underpinned by a longer term strategic vision.

SMB Business Plan
Glossary of Terms CSP DTC Community Safety Partnership Duty to Co-operate Agency (Local Authorities, Health Boards, NHS Trusts etc.) Lay representative on SMB Local Criminal Justice Board Single agency management of MAPPA Offenders MAPPA meeting to consider those offenders who pose a high or very high risk of harm that is not imminent Highest level of MAPPA meetings to consider the ‘critical few’ most dangerous offenders Multi Agency Public Protection Arrangements Multi Agency Public Protection Panel (Level 3 MAPPA Meeting) Multi Agency Risk Assessment Conference (Level 2 MAPPA meeting) Memorandum Of Understanding Overarching Leadership Group Responsible Authority (Police, Probation, Prisons) Local Child Protection Procedures Review process where a case managed by RA / MAPPA commits a Serious Further Offence Strategic Management Board Agreement between RAs and DTCs as to how MAPPA will operate in South Wales Task and Finish Group Violent and Sex Offenders Register (National police database, soon to be shared with other RAs) Welsh Assembly Government

Lay Advisor LCJB Level 1

Aims of the MAPPA Strategic Management Board
South Wales Strategic Management Board has four strategic aims:

Level 2

Level 3 • Protecting the public by reducing the number of victims of serious sexual and violent crime • Working collaboratively to minimise the risk posed by sexual and potentially dangerous offenders • Developing public confidence in MAPPA and through increased reassurance reducing the fear of serious sexual and violent crime • Respecting diversity as core of all work practice.


The Three Year Strategy
Each year the Strategic Management Board will publish an Annual Business Plan which addresses national and local requirements. In addition the Board will focus on the following complementary objective. These will be: 2006-07 2007-08 Formal Review of Working Practices Broadening and measuring the effectiveness of the Board’s work and of each Agency’s contribution Developing wider strategic role within the broader Public Protection portfolio

MOU OLG RA Safeguarding Children Groups Serious Case Review

SMB Strategic Framework T & F Group ViSOR




Multi-Agency Public Protection Arrangements Annual Report 2006-2007

South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

1. MAPPA Development
STRATEGIC AIM a. Ensure SMB MAPPA Business Plan is incorporated into Area Business Plans for South Wales Police, Probation and Prisons DELIVERY PLAN • SMB Business Plan finalised • SMB Business Plan passed to Lead officers for Police, Probation and Prisons MILESTONES • April 07 • April 07 RESOURCE/ RESPONSIBILITY RAs in consultation with SMB OUTCOME SMB MAPPA business recognised as an integral part of Police, Probation and Prison work PROGRESS Police - Done Probation - Done Prisons - Done

b. Review viability future of South Wales MAPPA Unit

• Evaluate • Consider financial implications for the future

• Develop of evaluation document • Implementation of evaluation

RAs Police/Probation lead

• Information to assist decision making

This to be reviewed at SMB - initial discussion June 07, 2 years into 3 year funding of post

c. Consider the feasibility of reference to SMB MAPPA Business Plan being included into all Duty to Co-operate Agency Annual Plans

• SMB Business Plan finalised • SMB Business Plan passed to all members of SMB for discussion with their agencies

• April 07 • May 07 onwards

• All SMB members

• MAPPA become an integral part of work of all agencies

In place for RAs SMB to confirm status for DTCs at June SMB

d. Continue to develop additional colocated Public Protection Units across South Wales

• Feasibility Study for Units in Swansea and Merthyr/RCT • Development of Unit in RCT/Merthyr • Feasibility of development of Unit in Swansea/Neath Port Talbot

Regular reports to SMB quarterly meetings


Co-located Units increased

RCT/MT MAPPU in place at Fairway Court CSP Offices by August 07 Swansea / NPT MAPPU planned but no date for start set as yet

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

1. MAPPA Development
STRATEGIC AIM e. Two Lay Advisers in post DELIVERY PLAN Advertise, interview and appoint two Lay Advisers a.s.a.p. MILESTONES April 07 onwards RESOURCE/ RESPONSIBILITY RAs in consultation with current Lay Advisers OUTCOME Two Lay Advisers in post continuously PROGRESS Process initially unsuccessful advert to go out June and LA in post by Sept 07

f. Review MoU with Duty to Corporate Agencies

• SMB Working Group to review impact changes required etc

• May 07 Development of Working Group • September 07 Report to SMB

SMB Members

All Duty to Corporate Agencies appropriately committed and involved

This process to be reported on by working group at Sept. 07 SMB

g. Implement ViSOR

• VISOR in use across the South Wales Probation Area

• ViSOR in use across Welsh Prisons

• Prepare for implementation for South Wales Probation as soon as roll-out dates are known. • Prepare for implementation for Welsh Prison as soon as rollout dates are known Regular meeting from April 07.

• RAs

Availability of the full VISOR database for all Welsh RAs

This part of a National Roll Out programme and will be applied to SWA by April 08

• Prisons to lead

h. Review the viability of developing an All-Wales Business Plan for 2008/09.

• Wales RAs to discuss. • Reports back to SMB. • Drafts by RAs - if considered appropriate

RAs in consultation with SMB

Consistency of Wales recognising this may not

RANSG is meeting on 15/6/07 Ongoing process

i. Ensure SMB Strategic links

• Regular exchange of information and cross reference with • SWAP Forum. • Safeguarding Children Board • Domestic Abuse • Priority and Prolific Offender Forum

Reports/Updates to quarterly SMB meetings

Nominated Representative

Agencies working together and not in silos

Strategic links are made by diverse representation membership of SMB


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

2. Monitoring and Evaluation Strategy
STRATEGIC AIM a. Implement SMB MAPPA Business Plan 2006/07 DELIVERY PLAN Review progress against all SMB objectives on a quarterly basis MILESTONES Commence June 06 RESOURCE/ RESPONSIBILITY In consultation with SMB Members OUTCOME Clear guidelines for future work a document against which to monitor progress PROGRESS Done - To be reviewed June 07

b. Implement multiagency Public Protection performance indicators

Await publication of national indicators

When available

SMB - Probation to lead

Clarity and consistency to measure national performance

To be approved by Dec 07 SMB

c. Develop performance indicators for South Wales

Working Group to develop draft

• Establish Working Group May 07 • Report to SMB September 07

SMB - Police to lead

Performance measures to meet specific needs for South Wales

To be approved by Dec 07 SMB

d. Rationalise police and probation registrations

Ongoing monitoring to ensure accuracy and consistency of Police and Probation registrations

Quarterly checks of registrations re-commencing April 07

MAPPA Manager and nominated Police Representative

Accurate and consistent registration processes

This will be part of the process of rolling out ViSOR to probation and prisons and will be addressed then

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

2. Monitoring and Evaluation Strategy
STRATEGIC AIM e. Quality Assure Level 3 for consistency, accuracy, efficiency and effectiveness DELIVERY PLAN • Ongoing review of thresholds attendance and agency cooperation • Ongoing review of processes • Ongoing evaluation of diversity profile of offenders • Amend Practice Directions as necessary • Ongoing review of thresholds attendance and agency cooperation • Ongoing review of processes • Ongoing evaluation of diversity profile of offenders • Amend Practice Directions as necessary • Use criteria developed to undertake Serious Case Reviews as necessary MILESTONES Three reports per year to SMB commencing May 07 RESOURCE/ RESPONSIBILITY MAPPA Manager, nominated Police Representative, 1 Lay Adviser and 1 SMB Representative OUTCOME
• Confidence that Level 3 operates for the critical few, can evidence an audit trail and defensible decision making and thus better protect the public

PROGRESS Ongoing - next July 6th 2007

f. Quality Assure Level 2 for consistency, accuracy, efficiency and effectiveness

Three reports per year to SMB commencing May 07

MAPPA Manager, nominated Police Representative, 1 Lay Adviser and 1 SMB Representative

• Confidence that Level 2 and can evidence an audit trail and defensible decision making, and thus better protect the public

Ongoing - Next July 27th 2007

g. Serious Case Review Monitoring

Reviews undertaken as cases arise

SMB Members Police lead.

Development of recommendations matrix. An opportunity to monitor implementation of processes and learn from experience

Current SMB SCR underway and on track to provide full report to SMB September 07


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

3. Communication and Strategic Partnership Strategy
STRATEGIC AIM a. Review current SMB composition DELIVERY PLAN • Review agency attendance • Review appropriateness of membership MILESTONES • Report SMB June 07 • Working Group to report September 07 RESOURCE/ RESPONSIBILITY • RAs - Probation lead • RAs - Probation lead OUTCOME SMB Group offering the best possible inter-agency public protection delivery and support for communities in South Wales PROGRESS SMB representation is in line with National Guidance, with the addition of representatives of CSPs

b. Review current Inter-Agency Strategic Framework Document

In progress awaiting new National MAPPA Guidance, Nov 2007

c. Publish Annual Report

• Ensure ongoing data collection • Ongoing collection of case studies and other information suitable for Annual Report

• Develop timescales for 07 report • Draft Report June 07 • Report published October 07

• MAPPA Manager • RAs in consultation with SMB

Increase Public understanding and confidence

In progress - June SMB to approve / amend

d. Review the media strategy

• SMB Working Group to review in the light of recent events. • Working Group to draft/ amend as necessary

• Working Group convened May 07 • Amendments to SMB September 07

RAs in consultation with SMB - Police lead

Clarity of media policy, processes and responsibilities

Ongoing - SC leading - Martyn Jones to update June SMB

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

3. Communication and Strategic Partnership Strategy
STRATEGIC AIM e. Regional collaboration DELIVERY PLAN • Ensure information exchange from various RA regional groups • Support initiatives designed to share good practice and improve consistency MILESTONES • SMB minutes shared via quarterly probation MAPPA Wales meetings. • Regional conferences/semi nars provided by the Ministry of Justice RESOURCE/ RESPONSIBILITY • RAs OUTCOME • Capitalise on good practice • Ensure work is not duplicated • Develop consistency across Wales PROGRESS All Wales RANSG meeting - next on 15/6/07 All Wales MAPPA co-ordinators meeting - next meeting 19/7/07 All Wales PP Probation Leads forum

• RAs in consultation with SMBs

f. To improve the profile of SMB MAPPA within Welsh Assembly Government

• Ensure appropriate involvement WAG Representative at relevant events • Ensure WAG is kept up-to-date with new initiatives/ legislation

Invitations to WAG representatives as appropriate

RAs in consultation with SMBs

• Improved relationships with WAG. • Increased knowledge and understanding by WAG for MAPPA processes.

Issue to be raised with All Wales RANSG

g. National involvement

• Wales representative on Police and Probation Network • Support for all National Conferences or other appropriate events

• Police and Probation are Wales Rep • Wales representation at all National events

RAs in consultation with SMB

• A voice and opportunity to influence on national proposals • First hand information of new initiatives. • Learning from other regions

Ongoing National MAPPA Conference 5th & 6th June 2007. (Welsh Regional MAPPA Conf 27/3/07)


Multi-Agency Public Protection Arrangements Annual Report 2006-2007

South Wales Strategic Management Board
Business Plan 1st April 2007 - 31st March 2008

4. Training Strategy
STRATEGIC AIM a. Lay Advisers DELIVERY PLAN • Support development of new Lay Adviser’s individual Action Plans. • Facilitate implementation of Action Plans MILESTONES • Appointment of new Lay Advisers • Develop individual Action Plans RESOURCE/ RESPONSIBILITY RAs. - in consultation with Lay Advisers OUTCOME • Lay Advisers able to make a real contribution • Lay Advisers with up-to-date knowledge PROGRESS Appointment process for 2 LA s re-starts June 07

b. MAPPP Chairs

• Undertake skills analysis • Deliver training in line with skills gap

• May 07 audit undertaken and training arranged • Training delivered

MAPPA Manager

• Targetted training • Appropriately skilled workforce

By Sept SMB Provisional date 3/8/07

c. Operational/ Level 2 Chairs

• Undertake skills analysis • Deliver training in line with skills gap

• May 07 audit undertaken and training arranged • Training delivered

MAPPA Manager

• Targeted training • Appropriately skilled workforce

DI Course input 3/7/06 Provisional date 3/8/07

d. Develop knowledge and understanding of MAPPA for SMB Members

• Consultation via SMB Membership questionnaire • Awareness/ Training arranged

• Questionnaire compiled and distributed May 07 Awareness Raising/Training arranged September 07

RAs. In consultation with SMB

Increased knowledge and understanding SMB Members

Quarterly MAPPA Manager report to SMBs Awareness raising with DTCs (St T’s, Serco, RGH etc

Multi-Agency Public Protection Arrangements Annual Report 2006-2007


South Wales Police Police Headquarters Bridgend CF31 3SU Telephone: 01656 655555

for England and Wales
National Probation Service South Wales Probation Area Tremains House Tremains Road CF31 1TZ Telephone: 01656 674820

Designed and Printed by South Wales Police Print Department Telephone: 01656 869264

Multi-Agency Public Protection Arrangements Annual Report 2006-2007