Multi-Agency Public Protection Arrangements Annual Report 2005-2006


for England and Wales

It has been a difficult year for everyone working with dangerous offenders. Several tragic serious offences carried out by offenders on licence from prison have resulted in an increased level of media scrutiny around public protection work. This has been challenging to manage. All the agencies involved have worked hard to provide information to the media and the public to explain the way in which MAPPA works and, operationally, have continued to commit efforts to this crucial area of work. Significantly, the establishment of the MAPPA Unit in Cardiff, which brings operational staff together from each of the agencies involved in the process is an example of this commitment. We’re hoping that this model of partnership working will be replicated in other parts of South Wales in the near future. Locally, it is important that we learn from the experience gained in recent months and continue to develop our practice and our inter-agency liaison and support to ensure that the people of South Wales are confident in our ability to protect the public in the future.

Ian Lankshear
Chief Officer South Wales Probation

Barbara Wilding, John May

CBE, QPM, CCMI Chief Constable South Wales Police

Area Manager, Her Majesty’s Prison Service

Multi-Agency Public Protection Arrangements Annual Report 2005-2006


National Perspective
Gerry Sutcliffe MP
Parliamentary Under Secretary of State for Criminal Justice and Offender Management Making our communities safer and reducing reoffending is our highest priority and one of our biggest challenges. That is why the work undertaken through these multi-agency public protection arrangements (MAPPA) is so important. The supervision and management of sexual and violent offenders who pose the highest risk of serious harm, whether in the community or in custody, is complex and challenging and is an aspect of public service where the public rightly expects all reasonable action to be taken. Although we have made significant progress in the last five years with the development of MAPPA across England and Wales, the review this year of a number of tragic incidents where people have been murdered or seriously injured reminded us of the importance of reviewing performance, improving practice and learning lessons. It is vital that these tasks are undertaken by the probation, police and prison services, as well as by those other agencies that contribute to the assessment and management of offenders. The publication of MAPPA Business Plans by each Area in this year’s annual reports offers a helpful and necessary programme of local development and review and must lead to enhanced practice. It will be essential that this progress is transparent and shared with local communities. In addition to this, however, it is important that no opportunity is missed to consider other measures that will further enhance public safety. That is why we are undertaking the Child Sex Offender Review, to look at how a particular group of offenders, who provoke anxiety for many, are best managed in the community. The review is consulting a wide range of practitioners and key stakeholders including the MAPPA lay advisers, and will report around the end of the year. Finally, in commending this report to you, I want to take the opportunity to thank all those involved locally in working with sexual and violent offenders, or in ensuring that these arrangements are fit for purpose. Where MAPPA is working well it is based on maintaining high professional standards and effective multi-agency collaboration in the delivery of robust risk management plans. While it is not possible to eliminate risk entirely, where all reasonable action is taken the risk of further serious harm can be reduced to a minimum and fewer victims will be exposed to repeat offending.


Multi-Agency Public Protection Arrangements Annual Report 2005-2006

The Multi-Agency Public Protection Arrangements (MAPPA) Unit
The MAPPA Unit was created in September 2005 and provides a dedicated, specialist resource to this crucial work. The MAPPA Manager, Nigel Rees, attends Level 3 MAPPPs, that is the meetings held on the 'critical few' offenders who pose the highest risk, to take the minutes and ensure the meeting is supported to actively manage the risk posed by these offenders. Together with the MAPPA Manager, the MAPPA Administrator, Katie Francis, ensures that MAPPP minutes are distributed expeditiously and that those who have the crucial information needed to manage the offender effectively are invited to and attend the meetings. In addition a great deal of work has been undertaken to quality assure the work undertaken and improve the quality of statistics provided to the MAPPA Strategic Management Board (SMB) and others. This is important because of the SMB's strategic link to the wider community through Community Safety Partnerships and the appointment of lay advisers. The key statistics provided include the number of Sex Offender Prevention Orders, the numbers of which have risen sharply in the last year, as well as the numbers of Level 1, 2 and 3 offenders who have been subject to MAPPA. These figures demonstrate that MAPPA is not only about sex offenders but also concerned with managing a greater number of serious violent offenders, who pose equally difficult challenges. The Unit also contributes to the updating of the national Police database - ViSOR - which ensures that the Police across the country are able to share information about dangerous offenders and therefore reduce the risk of harm to the public.

Multi-Agency Public Protection Unit (MAPPU)
The Multi-Agency Public Protection Unit (MAPPU) in Cardiff was established in 2005 and is the first of its kind in South Wales. It brings together police, probation, housing and a community psychiatric nurse in one office to coordinate work with high risk offenders. The Unit’s Probation manager is Eirian Evans. She says: “The great thing about the Unit is that it enables the agencies to build strong working relationships which mean that joint working is effective and meaningful, resulting in a better service to the community. Within the Unit we have access to the systems from each agency that we need to share information quickly and efficiently. “The biggest benefit that we have gained from the Unit is that the team, because they are in the same office, can discuss cases and make multiagency decisions about risk assessment and appropriate interventions that will be appropriate to protect the public. “Because of the Unit’s success in Cardiff it is now hoped that it can be replicated in other parts of South Wales.”

MAPPA in action
The two key forums within the MAPPA process are: • Multi-Agency Public Protection Panels (MAPPP) • Multi-Agency Risk Assessment Conference (MARAC) There are three levels of risk in MAPPA terms – 1,2 and 3. MAPPPs are convened to manage the risks posed by the most dangerous offenders, those assessed at Level 3 or the ‘critical few’. MARACs manage offenders at Level 2 and offenders at Level 1 are managed by Police and Probation working together without input from other agencies. This process is replicated across each of South Wales’ seven local authority areas.

Multi-Agency Public Protection Arrangements Annual Report 2005-2006


Spotlight on Merthyr Tydfil and Rhondda Cynon Taff

Tracey Girton
Team Manager Rhondda Cynon Taff In her position as Probation Team Manager Tracey has responsibility for public protection. She chairs MARACs for offenders who require multi-agency intervention, but not to the same level of intensity as those at Level 3.

Neath Port Talbot





Liz Rijnenberg
Assistant Chief Officer for Rhondda Cynon Taff and Merthyr Tydfil

Steve Cooke
Detective Chief Inspector Rhondda Cynon Taff Division Liz and Steve Co-Chair MAPPP meetings. They explain their role: “We work in partnership to manage high risk offenders, the ‘critical few’, on a case-by-case basis. The aim is to assess the case using the shared skills and knowledge of the partner agencies. This enhances the risk assessment and enables us to develop management plans which protect the public and potential victims. We ensure that interventions are targeted to the specific risk and needs of the offender in order to maximise the likelihood of successful rehabilitation. On a wider level it is important for us to build close working relationships with each of the other agencies who form a part of the MAPPA process. We are working together to achieve optimum representation of partner agencies and also to ensure that we develop closer links with our Prison colleagues. One particular issue for us has been ensuring that there is sufficient, appropriate accommodation for offenders when they are released into the community. We have been actively working with the local authority housing department to try to make sure that we can progress this in the future.”

She says: “I attend MAPPP meetings so that I am informed Cardiff about the risks these offenders pose to the community but my key Barry responsibility is for the MARAC process. We meet monthly and each meeting deals with around 12 offenders. Of these some will be reviews, meaning that we check that we have completed the agreed actions, and some will be new referrals. As Chair my key responsibility is to facilitate the process and make sure that the meeting receives the information it needs to develop action plans that will effectively manage the risk. It is essential that I am able to build effective working relationships with the agencies involved in the process. I work especially closely with the Public Protection Unit of the Police and we ensure that the appropriate people attend meetings. Of course, the work of the MARAC process really begins following the initial meeting when actions have been allocated to named individuals. The actions are carried out and reported back to the following meeting. The aim is to minimise the risks posed by this group of offenders and the only way that this can be achieved is by agencies working effectively together.”


Multi-Agency Public Protection Arrangements Annual Report 2005-2006

Approved premises offer an enhanced level of supervision by:
• Imposing a night-time curfew Providing 24 hour staffing Undertaking ongoing assessment of attitudes and behaviour Ensuring ongoing prosocial modelling Providing a programme of regular supervision, support and monitoring Surveillance and ongoing police liaison Reinforcing compliance with bail or licence conditions Encouraging attendance on, and supporting learning gained through accredited programmes Maintaining contact with supervising staff in the Probation field teams

Beverley Brooks
PP Co-ordinator Rhondda Cynon Taff Local Health Board Beverley is involved in the MAPPA process as a representative of the National Health Service. She says: “It is important that we have an involvement in the management of this group of dangerous offenders. We understand that offenders are a part of the community and that they will need to access Primary Care services such as general practitioners and hospitals. The MAPPA process provides a great deal of information that I can share, within the confidentiality guidelines, to make sure that the right people are informed. In Health we are developing the input that we make to the local MAPPA process and are looking to improve the contribution made by mental health professionals as we feel that this is crucial.”

necessary tasks. Denise Thomas, one of the Women’s Safety Workers based in Pontypridd, says: “My main job is liaison. I must have good working relationships with everyone involved in the process including the Probation Offender Manager, Police, Programmes Unit, partners in the voluntary sector and, of course, the victim. Building these relationships allows me to evaluate the risk from the victim’s perspective as well as sharing information provided by the victim that can be used to help others to manage the offender’s risk. We only work with partners of offenders currently on the IDAP programme, although they can be current, new or ex-partners. It is known that the programme can lead to an increased risk of violence as the offender must accept, and take responsibility for, his actions which is why the WSW role is so important.” Denise demonstrates how the involvement with the MARAC can directly assist a victim of domestic violence: “One victim I was working with had young children and we are not allowed to interview victims in front of children, for obvious reasons. She had no family support and was struggling with depression when I met with her so I discussed her case with my contacts on the MARAC and we were able to arrange for a nursery nurse to accompany me. This not only facilitated the interview but also meant that the victim was able to have a short break from the children.”

• •

Joanne Hourihan
• Chartered Forensic Psychologist Joanne works in Probation, on secondment from the Prison Service, to provide expert support and advice on the management of high and very high risk sexual and violent offenders to probation officers across South Wales. She is involved in the MAPPA process and provides psychological assessments to assist the process of developing action plans for Level 3 offenders. She says: “When I receive a referral, whether it has originated from a Probation Officer or directly from discussion at a MAPPP if appropriate, I read , information about the case and then decide on the most appropriate assessment. I meet with the offender, if they are motivated to do so and use this information to complete a report. This report is fed back to the MAPPP highlighting risk factors, along with recommendations about possible treatment and, more generally, about how the offender may be most effectively managed in the community. These recommendations are then built into the action plan for that individual.”

South Wales Approved Premises
Probation hostels in Cardiff and Swansea have an important role to play in the management of potentially dangerous offenders in the community. The hostels house more than 50 residents. Many of these are accommodated at the hostel as a condition of their licence following release from prison, although residents may also be on bail or probation. The hostels run to strict rules and offer a structured environment for offenders. There are a number of activities that residents can undertake during their residency. There is a focus on developing basic skills, such as literacy and numeracy and helping them to improve their personal circumstances through, for example, better money management. Activities concentrate on developing the self-esteem and victim understanding of offenders and ensure that they are safely reintegrated into the community.

Denise Thomas
Women’s Safety Worker The role of Women’s Safety Worker (WSW) is part of the recent introduction of the Integrated Domestic Abuse Programme (IDAP) and they are involved in the MARAC domestic violence forum to ensure that the victim’s perspective is heard. The staff appointed to this role have received specialist training to enable them to carry out the

Multi-Agency Public Protection Arrangements Annual Report 2005-2006


Strategic Management Board
Janet Chaplin
Assistant Chief Officer, Probation and

Strategic Management Board members
Kevin Gibbs Area Children’s Services Manager, NSPCC Christine Davies 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 Sean Sullivan Principal Psychologist, Head of Crime Reduction Unit, HMP Cardiff Det. Supt. Simon Clarke 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 Gwenan Roberts Head of Planning, Dewi Sant Hospital Reverend John Dale Lay Adviser Ms. Sharon Dixon Lay Adviser Linda Badman Acting Director, Jobcentre Plus Wales Nigel Rees MAPPA Manager

Helen Bennett
Head of Mental Health Nursing, Cardiff and Vale NHS Trust

Giles York
Assistant Chief Constable, South Wales Police Joint Chairs of SMB The Strategic Management Board (SMB) is made up of a wide range of agencies who are a part of the MAPPA process. The Board, chaired by an Assistant Chief Constable and Assistant Chief Officer from Probation, undertakes the formal review of the arrangements in place which are used to assess and manage the risks of offenders subject to MAPPA arrangements. It also has a role in quality assurance and serious case reviews. A key part of the SMB is the contribution of Lay Advisers, who are members of the community with no formal involvement in the criminal justice system. Their role is to act as a “critical friend”.

Gwen Roberts
Head of Planning, Pontypridd and Rhondda NHS Trust “Health involvement in the MAPPA process and on the strategic management board has increased during the year. This has provided added value to partnership working, a broader understanding of the work of MAPPA and opportunities to influence the process of protecting the public. Health organisations now have more understanding of the public protection processes and are currently signing up to a Memorandum of Understanding with a duty to co-operate in public protection. One of the benefits of partnership working in public protection has been the improved communication and multi-agency working in serious untoward events in which health has been fully engaged. Future developments include the establishment of other public protection teams across South Wales of which health will be active participants.”

John Dale and Sharon Dixon
Lay Advisers “We like the description of Lay Advisers as ‘critical friends’ of MAPPA. We believe it to be a true reflection of a role that captures the inclusion of the views of the ordinary members of the public. We have been encouraged to contribute our views, challenge the views of professionals and inform the direction and decision-making undertaken in relation to public protection. We feel quite independent of the statutory agencies yet are glad that they accept and welcome us. During the year we have visited Prisons, Approved Premises, Domestic Violence Unit in Cardiff, the Public Protection Bureau at Police HQ in Bridgend and various MAPPP meetings, where we have seen a high level of detailed information exchange between agencies and skillful and robust chairing. Of course we have also attended SMB meetings and made various contributions both by asking the ‘simple’ question and by making positive suggestions – some of which have been acted on and others are subject to further work. We have been pleased to take part in the audit process and encouraged by the standard of work revealed. It has, in our view, been a major step forward that there is now an established MAPPA Unit. We are glad that funding for this has been agreed for the next two years and trust that there will be no difficulty in continuing it.”

Linda Badman
Acting Director, Jobcentre Plus Wales “Jobcentre Plus Wales continues to develop the relationship with other relevant agencies in supporting public protection and managing the risk posed by dangerous offenders. During the year we have been active in introducing and supporting adviser awareness training in respect of dangerous offenders and the MAPPA process. I am committed to continuing to provide representation on the MAPPA Strategic Management Board thereby ensuring Jobcentre Plus support at both the strategic and practitioner levels.”


Multi-Agency Public Protection Arrangements Annual Report 2005-2006

Strategic Management Board
Paul Tidball, Janet Wallsgrove, Andrea Whitfield
Governors of HMP Cardiff, Parc and Swansea “Protection of the public through the MAPPA arrangements remains a high priority for the Prison Service. This is delivered through effective partnership working with the other Responsible Authorities and Duty to Cooperate agencies. All of the prisons in South Wales have processes in place to identify, assess, review and manage the risk of prisoners covered by MAPPA. The Prison Service actively contributes to developing risk management plans for prisoners held in, or being released from our establishments. The Prison Service is able to provide information and intelligence related to risk often not evident or easily observable in other contexts, a perspective that can have a significant impact on risk management strategies. This partnership work is now at the centre of all our efforts to protect the public. The forthcoming introduction of the Offender Management Model for prisoners falling under the MAPPA arrangements will inform the delivery of targeted reducing re-offending interventions, which in turn will contribute to the effective management of MAPPA offenders in the community. This collaborative approach to protecting the public remains a major priority for Her Majesty’s Prison Service in Wales.”

Kevin Gibbs
NSPCC Area Childrens’ Services Manager Vice-Chair of the South Wales Child Protection Forum “Partnership is the key component in keeping vulnerable members of our community safe. Agencies and individuals recognise that we can protect and safeguard children much more effectively when we work together. We welcome the strategic leadership within the South Wales area that sees a joined-up approach to the management of offenders, the safeguarding of children and young people, the protection of vulnerable adults and effective work with the community as the best way to protect the public. The South Wales MAPPA Strategic Management Board has a crucial role in ensuring that practice continues to develop, that agencies learn from each other and that robust measures are maintained to manage risk within this area. The NSPCC and the South Wales Child Protection Forum are pleased to continue to play an active role in protecting children and young people through our commitment to the MAPPA Strategic Management Board.”

Multi-Agency Public Protection Arrangements Annual Report 2005-2006


MAPPA case studies
Case study 1
The MAPPA Unit was contacted by a Medical Officer, who was supervising a patient subject to a hospital order. He was concerned that the patient posed a high level of risk and that a forthcoming Mental Health Tribunal would direct a return to the community from secure accommodation. A MAPPP was arranged and, although there was no probation supervision of the case, it was known that the offender had twice tried to kill different children and the police were able to bring comprehensive information to the meeting. As a result, the Medical Officer discovered significant information that was not previously known to medical staff. He was also informed of numerous victim issues and that the patient was at very high risk if he returned to the same area. This would be critical information for the tribunal and would support an appropriate release decision, together with conditions that would be required to manage any risk posed. The Medical Officer also disclosed that the patient was enjoying town visits in another area and this raised the concern of the meeting and the medical staff. The minutes were sent to the MAPPA coordinator of the other area and action is now being taken to assess the risk posed in the locality and prepare for the potential resettlement of the patient into the area. Police in this area have also taken action to reduce the existing risk to victims. Without MAPPA it is unlikely that the true level of risk would have been recognised, leading to higher risks for both the public and the patient.

Case study 2
A referral was made to the MAPPP prior to the release of a serious violent offender. This referral identified a number of victims and others at risk if the offender returned to the local area. The MAPPP met several times over a period of nine months and oversaw the offender’s eventual return to the community. This included a period of residence in an out-of area Approved Premises, moving on to a South Wales Approved Premises, all designed to test his motivation to comply with supervision. During this process, close liaison was maintained between the Approved Premise, Probation Offender Manager, Victims Unit, Domestic Abuse Unit and the police. In addition, in the light of enquiries made by the MAPPP referrals were , made to Social Services to manage child protection issues. Victims were kept fully informed and protective measures were taken by the police to minimise the risk. The period of licence supervision has now ended and, to date, there have been no incidents of violence and no victims have been re-victimised.


Multi-Agency Public Protection Arrangements Annual Report 2005-2006

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

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

149 211 72 61 60 127 63


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 31.3.06 437

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 35

Offenders managed through Level 3 and Level 2
Number of RSOs managed at: Level 3 - 44 Level 2 - 244 Level 3 - 56 Level 2 - 297 Level 3 - 0 Level 2 - 66 Level 3 - 12 Level 2 - 51 Level 3 - 0 Level 2 - 6 Level 3 - 1 Level 2 - 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 2005-2006


Commentary on statistics
Serious further offences
Five of the 707 offenders managed through the MAPPA process committed a serious further offence during this year.

Case four
A sex offender was released from an extended prison sentence of eight years. The offender was directed to reside in an approved premise and was recalled to prison when he was charged with an indecent assault that had occurred some four months earlier. MAPPA partners co-operated closely to protect public safety until recall action could be taken and to ensure the offender did not abscond prior to being charged. The offender is now serving a life sentence for the new offence.

Case one
The offender was resident at an Approved Premises whilst on an extended licence following a four-year sentence for Wounding. He was subject to a detailed risk management plan that was fully applied. The offender absconded one week after release, having failed to return to the hostel by curfew. Immediate breach action was taken, with South Wales Police searching the area and visiting all known associates. The victim of the offence was informed that the offender was missing. A few days later the offender used a bottle to attack the partner of his ex wife and was arrested at the scene. The offender was subsequently convicted of Section 18 Wounding and sentenced to five years in prison, with extended supervision. The search for the offender demonstrated good communication between different areas within South Wales and responded to the clear plan put in place through MAPPA in the event that the offender failed to comply with strict supervision. This contributed to the protection of victims and the eventual arrest of the offender.

Case five
A sex offender undergoing the Sex Offenders Treatment Programme was closely monitored in the community. MAPPA partners were aware of the risk posed by the offender and the potential for further historical offences to be brought to court. MAPPA partners ensured the victim’s family knew of the risk posed by the offender but could not convince them to break contact. Ultimately, the offender did re-offend. A full review of the case concluded that it had been well managed. In every case where an offender commits a Serious Further Offence there is a full review and any recommendations, changes in policy or learning points are implemented immediately. Police, Probation, Prisons and all the MAPPA partners must manage a number of high risk offenders in the community and, while it is not possible to completely eliminate the risk, they can ensure that 100% effort is put into reducing the risk of re-offending.

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

Simon Clarke
Detective Superintendent Public Protection South Wales Police

Case two
A sex offender was released from prison after a nine-year sentence. He was closely managed and directed to reside in an approved premise. He was immediately recalled when charged with a sexual assault upon another resident.

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

Case three
A offender on life licence was recalled following an offence of Wounding. Following allegations of further offences the MAPPA partners co-operated to ensure the offender’s arrest with minimum risk to the public. The Police placed a warning notice about the car of the offender’s girlfriend on their national computer system. This ensured that the car was stopped when seen and led to the offender’s arrest.

Janet Chaplin
Assistant Chief Officer

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


Multi-Agency Public Protection Arrangements Annual Report 2005-2006