Multi-Agency Public Protection Arrangements Annual Report 2004-2005


for England and Wales

Introduction by Ian Lankshear, John May and Barbara Wilding National Perspective Achievements How MAPPA operates locally Partners with a view MAPPA case studies Frequently Asked Questions Statistical information Statistical commentary

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for England and Wales

Ian Lankshear
Chief Officer of South Wales Probation

Barbara Wilding, QPM
Chief Constable South Wales Police

The protection of the public through MultiAgency Public Protection Arrangements (MAPPA) continues to be our top priority in Probation. The partnership with Police and Prison colleagues in this work is vital and has grown substantially in the last year, including the commitment to joint staffing of a Public Protection Unit. The contribution of the area’s Lay Advisers to the work of the partnership is becoming increasingly important and, with my colleagues, I will be seeking to ensure the work of MAPPA is more widely understood in the communities we serve. The partnership work undertaken to manage the risks posed by serious offenders and the delivery of services for their victims is at the forefront of planning across criminal justice agencies. This report provides substantial evidence of this and the positive impact for communities in South Wales.

In the South Wales area, Multi Agency Public Protection Arrangements provide an excellent example of how committed partnership working is making our communities even safer and more secure. These arrangements bring together, at both strategic and practitioner level, a wide range of partners with the aim of ensuring that a comprehensive assessment of risk is built enabling appropriate action plans to be drawn up and implemented. It is the most effective way of ensuring that potentially dangerous offenders who present a threat to the safety of the public are strictly monitored and controlled. I am also pleased to report that over the course of the year partnership arrangements have been further enhanced through the development of a MAPPA Co-ordination Unit. This is to be jointly funded by the Probation Service and South Wales Police and will result in even closer and more effective working arrangements. I have no doubt that this annual report will reassure the public of our commitment and determination to make South Wales known nationally and internationally as one of the safest areas in the United Kingdom.

John May
Area Manager, HM Prison Service

The Prison Service became a responsible authority of the Multi-Agency Public Protection Arrangements in April 2004. Acquiring that status has enabled us to develop further the already excellent working relationships with our partners. “The close integration of our efforts to manage and reduce the risks presented by our most serious offenders is undoubtedly proving effective in supporting the safety of communities across Wales. With our partners’ help, we are better able to identify those offenders who present a particular risk, to target them for programmes and interventions aimed at reducing their propensity to re-offend, and to prepare careful release plans which minimise the possibility of future victims. “It is axiomatic that, in work with the higher-risk offenders, it is the occasional failure that makes the headlines. It is therefore a particular pleasure to be part of a structure, which is increasingly recording success in managing and reducing the risk of harm to citizens in Wales.

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


National Perspective
Baroness Scotland
Minister of State for Criminal Justice and Offender Management The work being undertaken to improve the safety of communities through the Multi-Agency Public Protection Arrangements (MAPPA) is vitally important and a priority for government. The annual reports for 2004/5 provide evidence of that active engagement. Violence and sexual abuse are unacceptable wherever they occur and it is evident that through MAPPA such offenders are identified and better managed than ever before. As the number of offenders within MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that is the local police, probation and the Prison Service, is addressing these additional demands by strengthening local partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where they breach their licence or order, and using the findings of research and inspection to strengthen national guidance and local practice. Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me one of the most exciting developments in this arena in the last 12 months has been the appointment of lay advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public these lay advisers represent a diverse, able and committed group of people who are now helping the statutory agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively. Without a growing sense of public knowledge and confidence about this work much of the benefits of the public protection arrangements will be lost. I hope this annual report will be useful, informative and re-assuring to local communities. The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.


Multi-Agency Public Protection Arrangements Annual Report 2004-2005

Strategic Management Board members
Ian Barrow South Wales Probation Helen Bennett Cardiff and Vale NHS Trust Janet Chaplin South Wales Probation Simon Clarke South Wales Police Sue Cousins Merthyr Tydfil CSP John Dale Lay Member Chris Davies Job Centre Plus John Davies Bridgend CSP Jeff Davison Swansea CSP Sharon Dixon Lay Member Mal Gay YOT Manager BCBC Dick Geen Cardiff CSP Jane Griffiths Neath Port Talbot CSP Albert Heaney NSPCC Alison Lewis Securicor – Parc Prison Martin Price NPT CBC Gwennan Roberts RCT CBC Sean Sullivan HMP Cardiff Dave Thomas SWAP Forum Tegwyn Williams Caswell Clinic Jenny Willott Victim Support ACC Giles York South Wales Police Tony Young Vale CSP

The Strategic Management Board (SMB) was established during 2002 and is chaired by the Assistant Chief Constable (Crime) and Assistant Chief Constable (Public Protection). It is attended by, among others, the two Lay Advisers. The implementation of the new Criminal Justice Act 2003 placed a responsibility on a number of agencies including social services, health, Job Centre Plus, Youth Offending Teams, local authority housing, registered social landlords, education and electronic monitoring providers to co-operate with the Responsible Authorities of Police, Probation and Prisons to assess and manage potentially dangerous and sexual offenders. South Wales has had a history of excellent interagency co-operation and already had arrangements in place to cover most of these organisations. However, there was concern that Community Safety Partnerships (CSPs) were not integral to this process. To address this the SMB was reformed during the year. One representative from each Strategic CSP now represents the local authority area irrespective of their designation or responsibility. Additional membership of the Board comes from the areas of work who have a duty to co-operate. This arrangement will be monitored throughout the year to ensure that it is achieving its aim of bringing the responsibility and understanding of public protection to the heart of the community. Another result of the SMB reform was the creation of a number of sub-groups to focus on particular areas of difficulty locally. The SMB Accommodation sub-group is made up of representatives from a number of agencies including the Probation Service, Police, the Local Authority Housing Departments, Welsh Assembly Government and voluntary sector groups. The group was established to ensure a consistent approach to the housing of MAPPA offenders across the South Wales Area. This was to recognise the vital role stable accommodation can play, both in terms of supervising and monitoring MAPPA offenders and ensuring their successful resettlement and rehabilitation. It also recognises that achieving stable accommodation for this group of offenders can be extremely challenging because of the difficult victim issues involved. The SMB Quality Assurance sub-group consists of representatives from the Probation Service, Police and Community Safety Partnerships. The group also liaises with, and receives input from, the Area’s Lay Advisers. The South Wales Area participated in national research during the course of the year and this highlighted many strengths in local MAPPA work. However, some areas for improvement were also identified, these were primarily around work with Level 2 offenders – those subject to the Multi Agency Risk Assessment Conference (MARAC) – and ensuring that appropriate thresholds were set for Level 1 and Level 2 cases. In addition a template is currently being devised for use at Level 2 meetings, which will mirror the process of Level 3 meetings, ensuring an improved level of consistency across the Area and an effective method of quality assurance. The group will undertake a comprehensive audit of Level 3 work during the coming year. One of the important ways in which the Criminal Justice Act (2003) strengthened the Multi-Agency Public Protection Arrangements (MAPPA) was to make the Prison Service part of the Responsible Authority with Police and Probation in each of the 42 Areas in England and Wales. The Prison Service has been given this enhanced role in recognition of the important part it plays in protecting the public by keeping offenders in custody; helping them to address the causes of their offending behaviour; and by undertaking other work to assist their successful resettlement. As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs) in the 42 Areas. The Prison estate is configured differently from Police and Probation areas in that its establishments are contained within only 12 geographical areas and two functional areas – the High Security estate, and Contracted Prisons. For this reason arrangements for Prison Service representation on SMBs vary across the country, but each Prison Service Area Manager has entered into an agreement with the SMBs on how the Service will contribute both strategically and operationally to the MAPPA. The main focus of the Prison Service contribution is at an operational level. A number of measures have been put in place across the prison estate to ensure that this will be effective and result in: • Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


• Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with police and probation colleagues • All relevant risk management information being provided to multi agency meetings which help plan an offender’s release • At least three months’ notification to Police and Probation of the expected release dates of those offenders who have been referred to the Multi-Agency Public Protection Panel (MAPPP), and at least six weeks notification of those being managed at the Multi-Agency Risk Assessment Conference meetings, designed to deal with those offenders who pose a particular level of risk • No changes to release dates or arrangements being made without prior consultation with Police and Probation. This work brings challenges and opportunities for prisons. We need to ensure that we have established sustainable, effective processes to undertake this work to a high standard and in this way we will fully realise our potential for significantly contributing to protecting the public in South Wales.

Sean Sullivan
Head of Crime Reduction - HMP Cardiff We have been actively working since becoming the third Responsible Authority to develop and streamline our MAPPA procedures. It should be acknowledged that this has demanded a substantial shift in prison culture: a shift that takes in risk outside the prison walls as well as security within them. We know of many offenders who fit comfortably into prison life, but who can pose a serious risk of harm on release. There is ongoing educational work to be done with prison staff to further develop this understanding of public protection work. The system developed at Cardiff identifies all prisoners who fit the MAPPA criteria, as well as others such as harassers and racially motivated offenders. An assessment process is carried out and, at a multi-agency Public Protection Board held each month, their areas of risk is agreed and appropriate action decided. In addition to this formal system, potentially dangerous prisoners are identified through other means such as the OASys assessment, reports from probation officers, psychologists and drugs workers. Significantly, the most frequent reports come from the community psychiatric nurses, this is no surprise given the extent of mental health problems within the prison. Another key to success is effective communication with outside agencies, especially Police and Probation. Having a probation officer in prison dedicated to MAPPA work has helped us to improve those links. An important consequence of establishing better contacts with the organisers of domestic violence MARACs has been an improved awareness of a specific group of offenders, many of whom fall below the risk threshold for MAPPA. Finally, we are looking at the role of the Police Liaison Officer. This role has traditionally been embedded within the Security Department, but

Playing an effective role in the multi agency risk management of MAPPA offenders requires good communication between criminal justice partners. The Prison Service has taken steps to ensure that there are dedicated points of contact for public protection at both Area level and in every prison establishment, and that these are published together with Police and Probation contacts to ensure better communication across the Responsible Authority. With the ever increasing MAPPA population, and proportion of those received into prison likely to grow with the introduction of the new public protection sentences, the inclusion of the Prison Service as part of the Responsible Authority will continue to be vital in protecting the public.

Jerry Knight Director, HMP/YOI Parc

This past year we have been very actively striving to ensure that we are participating fully and effectively to the South Wales Public Protection procedures. We have implemented the Prison Service Order, which specifically outlines our responsibility to MAPPA. We have a rolling schedule of training in place to ensure that all staff are aware of new and important local arrangements for identifying and sharing information with our strategic MAPPA partners in Police and Probation. There has been a significant positive shift in the way staff understand the role of prisons in this work. A wide range of new procedures have ensured that we can both comply with requirements and develop our good practice in this area.


Multi-Agency Public Protection Arrangements Annual Report 2004-2005

its importance to public protection reflects just how much these two major functions of the prison overlap and interact with each other. Acknowledging and formalising this interaction will be the next big step forward that we take. The systems seem to be working well as can be evidenced from a recent case when HMP Swansea was holding ‘one of the critical few’. Close co-operation with the home based Probation Officer, In Reach Teams and Secure Mental Health Units led to the Deputy Governor attending a special MAPPA meeting in Pontefract, Yorkshire, to enable the prisoner to be moved to HMP Leeds immediately before release. This meant that the effective risk management plans could be properly implemented. The prison is building links to provide information to enable effective release and risk management plans to be put in place to help protect the public from dangerous offenders.

Mick Micklam
Deputy Governor - HMP Swansea

At HMP Swansea, public protection is key performance driver as part of the vision of the new National Offender Management System. Public protection issues are taken forward by a multi-disciplinary team. A seconded prison Probation Officer and the prison’s Sentence Management Unit link via the OASys System. The Probation staff keep a daily updated register of dangerous offenders, sex offenders, offenders who pose a risk to children and young people, those remanded for harrassment issues and Persistent and Prolific Offenders. At the time of writing there are 103 prisoners held in HMP Swansea who fall into these catagories. This information is available to all prison departments and wing staff and can inform how prisoners are managed in the establishment. The prison holds a monthly public protection meeting chaired by the Deputy Governor when prisoners who are due to be released and those whose future release plans are causing concern, are discussed by the Multi-Disciplinary Team. This process provides effective links to the MAPPA processes on the outside and can help plan for the effective risk management of dangerous prisoners on release. There are developing links with In Reach Mental Health Teams, Drug Agencies, Housing Providers and Job Centre Plus as well as the traditional links to field teams and hostels.

South Wales’ contribution to MAPPA Nationally
Assistant Chief Officer Janet Chaplin represents Wales on the national Probation Service Public Protection Network. This group, which is chaired by the Head of the Public Protection Unit, meets quarterly. Its remit is to facilitate information sharing and the development of ideas about practice and policy in relation to the supervision and management of potentially dangerous offenders. In particular, it provides a national forum where best practice can be shared and developed both in terms of the management of this group of offenders and also the multiagency partnerships that are necessary for the delivery of this work. Assistant Chief Officers from across the Welsh Probation Areas, who have a responsibility for public protection, meet on a quarterly basis to ensure that there is a regional dimension to the work undertaken. This is a valuable opportunity to share best practice, capitalise on new initiatives and disseminate information across the country. It also offers a vehicle for close links with the Welsh Assembly Government and, in the future, an opportunity for Lay Advisers to have a support network. South Wales MAPPA representatives were invited to attend the Essex Area’s conference entitled Innovations in MAPPA during the year. The conference was focusing on new developments and areas of good practice nationally. South Wales were invited to contribute because of the work that had been piloted on the introduction of Domestic Violence Multi-Agency Risk Assessment Conferences (MARACs). This

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


work has attracted national attention and was highlighted as an example of good practice in the study, commissioned by the National Probation Directorate and undertaken by De Montfort University, into MAPPA practice. Ian Barrow, Area Manager for South Wales Probation and Detective Inspector Steve Bartley attended the conference and made a joint presentation on the reasons why the Domestic Violence MARACs had been introduced, how the Area engaged with the relevant groups and the benefits of such an approach for Probation, Police and in particular the victims of Domestic Violence. The feedback from attendees at the conference was very positive with much interest generated about the approach. Detective Superintendent Simon Clarke chairs the All Wales Public Protection Group made up of senior officers from the four Welsh Police forces to ensure consistency of procedures throughout Wales, to assist in information sharing and to develop best practice. It is with sadness that we note the death of one of our Lay Advisers, Mike Thomas, and record our thanks for the work he did while he held the position. A real challenge during the year has been the recruitment of a second Lay Adviser following Mike’s death, and it is pleasing to report that Sharon Dixon has now been appointed to take on these responsibilities. The role of the Lay Adviser is one of a “critical friend”. Lay Advisers sit on the South Wales MAPPA Strategic Management Board (SMB) which undertakes the formal review of the arrangements in place which are used to assess and manage the risks of these offenders.

John Dale
Lay Adviser for South Wales MAPPA This has been a sad year with the death of Mike Thomas the other Lay Adviser, leaving me alone to watch the growth and development of the work of the Strategic Management Board. It has been good to see its membership finalised and the growth in knowledge of each others work along with the development of ground level work that has continued at a high level ensuring the safe management of dangerous offenders.

Simon also sits on a National Association of Chief Police Officers (ACPO) group representing Wales. This group deals with MAPPA and the management of sex and dangerous offenders within the Police Service nationally. In addition he is part of a national working group across the Police, Prison and Probation Services to review and develop MAPPA Guidance. In particular this is around the roles of MAPPA Co-ordinators and the Strategic Management Boards across England and Wales. He has also recently joined a national working group to develop National Guidance for Public Protection Officers for the management of sex and dangerous offenders within the community. One of the members of the Public Protection team within South Wales Police, Detective Constable Jim Hurn, is part of the national ViSOR User Group. ViSOR is the register for the management of sex and dangerous offenders throughout the South Wales Police Area. The role of the Lay Adviser, having been piloted successfully in South Wales, was extended across England and Wales during the year. The introduction of members of the community to the process of managing these groups of offenders came about in response to the murder of Sarah Payne and the calls for ‘Sarah’s Law’.

Sharon Dixon
Lay Adviser for South Wales MAPPA

I have recently been appointed as a Lay Advisor and I am looking forward to the challenges that lay ahead. I have had the opportunity to meet professionals from the Probation Sevice as part of my induction. I have also been invited to MAPPA tier 2 and 3 meetings over the coming weeks It is my intention to meet with the Prison and Police professionals in a bid to gain a greater understanding of the links currently being forged by all relevant agencies. I am keen to help develop the work already started here in South Wales and look forward to questioning and challenging the current processes that are in place so that I gain a valuable insight. The next few months will be interesting and very worthwhile.


Multi-Agency Public Protection Arrangements Annual Report 2004-2005

How MAPPA operates locally
The MARAC and the MAPPP
MARACs and MAPPPs are the two forms of interagency contact used to manage the risks posed by an individual offender • Multi-Agency Risk Assessment Conference (MARAC) • Multi-Agency Public Protection Panel (MAPPP). The aims of both forums are the same: • To share information • To assess levels of risk and their implications • To consider implications for victims • To devise the individual management plan • To agree the implementation of management plan • To agree the monitoring and review process of the management plan The MAPPP has two additional aims: • To consider or review the need to register the subject as a Potentially Dangerous Offender • To consider any issues relating to disclosure in the public domain There are two definitions in terms of the risk management and MAPPA processes which are essential to understand. They are: The critical few - those offenders who are managed under the MAPPP process. They are defined as those who: • Following a full risk assessment are considered to be at high or very high risk of causing immediate serious harm • Present risks that can only be managed by a plan which requires close co-operation at a senior level because of its complexity or unusual resource requirements • May not be considered to be a very high risk but who, because of exceptional circumstances, are likely to be subject to a high level of media interest or public scrutiny and there is a need to ensure that public confidence is sustained. Violent and sexual offenders - defined as those offenders who are defined under section 68 of the Criminal Justice and Court Services Act 2000, particularly those in subsections (3) (4) (5), who are not required to register as sex offenders under the terms of the Sexual Offences Act 2003.

What is a MARAC?
A MARAC is a formal multi-agency conference that is used to manage the risk assessment process of known Sex or Potentially Dangerous Offenders and consider any implications for victims. Minutes and agreed management action plans are detailed at each meeting and distributed to all attendees to ensure that those involved understand the contribution they are expected to make. MARAC meetings are held each month, or more often if required, and in addition to Police and Probation the following agencies are invited to attend: • • • • • Social Services Local Authority Housing Victim Liaison Officer Prison Service Youth Offending Team – if the offender is under 18.

Other agencies or individuals such as Health, HM Customs and Excise, Housing Associations, Psychiatric Nurses may also be invited to the meeting, depending on the circumstances of the offender. MARACs are usually the first step in the risk management process and can, in the case of the “critical few” lead to a MAPPP .

What is a MAPPP?
The MAPPP deals with the “critical few” – those offenders who need the highest level of multiagency collaboration. A MAPPP is usually held following a referral from the MARAC but, in a very small number of cases, where the offender represents an exceptionally high risk to the public, a request for a MAPPP can be made by the senior Probation and Police Officers. As with the MARAC certain agencies will always be invited to attend a MAPPP These include: . • • • • • • • Social Services Local Authority Housing Victim Liaison Officer Supervising Probation Officer Police Public Protection Officer Prison Service Youth Offending Team – if the offender is under 18.

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


How MAPPA operates locally
In addition it may be appropriate, depending on the case, to invite other agencies or individuals, all of whom will have relevant information that will assist the MAPPA process.

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

The role of Probation hostels
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 between them. 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 a community order. The hostel runs to strict rules and offers 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 residents to improve their personal circumstances through, for example, better money management. Activities concentrate on developing the self-esteem and victim understanding of offenders and ensuring that they are safely reintegrated into the community.

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Multi-Agency Public Protection Arrangements Annual Report 2004-2005

Partners with a view
Sheelagh Keyse
Director, Jobcentre Plus Wales

Dave Thomas
Consultant to the South Wales Adult Protection Forum

Jobcentre Plus Wales has for sometime worked in close partnership with the Probation and Prison Services in supporting our shared customers. I welcome the opportunity to develop this relationship further through representation on the MAPPA Strategic Management Board. We will make every effort to support public protection by helping to prevent dangerous offenders accessing inappropriate job and training opportunities.

Albert Heaney
NSPCC & Chair of the South Wales Child Protection Forum

Through effective partnership working, the collective aim of the South Wales Adult Protection (SWAP) Forum and its associated Area Adult Protection Committees is to prevent and eradicate abuse against vunerable adults across South Wales. It is reassuring to note that the Multi-Agency Public Protection Arrangements developed in South Wales have made significant strides towards preventing the re-occurrence of serious physical and sexual abuse against those members of our society that are most vunerable. Only through continued collaborative working between agencies involved in the care, support and protection of vunerable people will we be able to eliminate the potential risk posed by predatory and serial offenders.

As a society we have to face up to the fact that there are dangerous offenders in all our communities and manage the risks they pose. The Multi-Agency Public Protection Arrangements play a vital role by enabling agencies to exchange information and ensure that appropriate risk management arrangements are in place for dangerous offenders. Agencies are now working much more closely together than ever before. Whilst we cannot always eliminate the risks posed, we can do a huge amount to manage risk and protect our children and communities. As a representative on the South Wales MAPPA Strategic Management Board, I welcome the coordinated and considered approach by all agencies involved to manage risk and provide protection to the general public.

Jane Griffiths
Community Safety Manager Neath Port Talbot Community Safety Partnerships rely heavily on information sharing and awareness raising among agencies and the public in their efforts to address issues of crime and disorder and reassure local residents. The work of the MAPPA is very much a part of that partnership process to protect and reassure agencies and the public that dangerous offenders are being dealt with appropriately.

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

Andrea Chichester and Chris Lewis
Service Delivery Officers, Premier Monitoring Services Ltd As specialists in electronic monitoring we have always worked in close cooperation with our partner agencies, offering assistance in the field of monitoring high risk and persistent offenders. We look forward to a continuing close relationship with the Board, by giving immediate input of new innovations in electronic monitoring, such as the current trials and implementation of tracking by Global Positioning Satellite and exclusion areas.

Since the implementation of the Strategic Framework there has been real progress through partnership working. The robust MARAC and MAPPP processes that are now in place have encouraged staff engagement which has impacted positively on patient care and public safety.

These robust procedures have helped to develop best practices through the establishment of a Public Protection team in Cardiff. The intention is that all partner agencies will be co-located to ensure good team communication, effective team working and a cohesive plan for each client.

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


MAPPA case studies
Domestic abuse case study
Mr M was released on licence following a four year prison sentence for an offence of Affray and Grievous Bodily harm. He had several previous convictions for offences of violence generally following periods of heavy drinking. At the point of Mr M’s imprisonment there was anecdotal evidence of domestic abuse but there had been no formal charges. Mr M was the subject of a Multi-Agency Risk Assessment Conference (MARAC) which, prior to his release, assessed his level of Risk of Harm as being high – this was based on his pattern of offending and alcohol misuse. The Risk Management plan included monthly MARAC Reviews. At the first MARAC Review, Probation reported that Mr M was complying fully with the conditions of his licence. However, the Police again made reference to anecdotal information concerning domestic abuse. On that occasion it was determined that the Police Domestic Abuse Coordinator and Women’s Support Unit would be asked to monitor the situation and report back to next Review or earlier if necessary. This resulted in a MARAC being convened ten days later – the Police having had a call-out to a domestic incident. The Health Representative advised of the partner’s attendance at hospital to treat facial injuries. Having been referred to the Women’s Safety Unit the partner was supported in her decision to press charges against Mr M. Following the charge of assault the Probation Service took action to request immediate revocation of his licence. He was arrested four hours later and returned to prison. His licence has since been revoked. Following multi-agency investigation his licence was revoked and he was returned to prison. Following his subsequent release he was managed again through the MAPPA process and a Sexual Offences Prevention Order was successfully secured to help manage the risk presented by Mr S. This was granted for life in 2005 by the Magistrates’ Court. In March information was received by the Police that a man by the same name was plying children with cannabis and alcohol. An investigation was conducted and subsequently Mr S appeared at the Crown Court and received a 30 month prison sentence. Mr D was subject to a Risk of Sexual Harm Order, containing a number of prohibitions designed to protect children and young people from harm. This information was shared with a number of agencies to help manage the risk posed by Mr D. A member of the public called the Police with concerns, after witnessing Mr D approaching a young woman and also being close to a primary school. Police Officers were immediately sent to the area and Mr D was arrested. He admitted breaching one of his prohibitions and was remanded in custody before appearing before Magistrates. While Mr D was not a registered sex offenders before this offence he now has an indefinite requirement to register and in this way his actions can be monitored. The Home Office has confirmed that this is the first conviction of this kind.

MAPPA case studies
Mr S has a history of sex offences which included a seven year Prison sentence for rape. Before he was released in 2004 he was subject to a MAPPP meeting. He was assessed as posing a very high risk of harm to children and young people. He was registered as a dangerous offender. Mr S was released from Prison under Probation supervision and was required to reside at an Approved Premises. He was witnessed by members of the public acting in a suspicious manner towards three teenage females. Mr R is a convicted paedophile resident at one of the Approved Premises in South Wales. While checking mail at the hostel a member of staff noted a letter from a female prisoner to Mr R that was covered in amourous graffiti. The staff member alerted the Deputy Manager who took a photocopy of the envelope and passed it to a member of the Police Public Protection team. Police officers traced the woman to a prison in Bristol and discovered that she had two young children. This was a particular concern as the offender had been previously convicted after befriending women with young children, offering


Multi-Agency Public Protection Arrangements Annual Report 2004-2005

MAPPA case studies
to babysit and abusing the children in their mother’s absence. At the request of the Police the hostel continued to monitor Mr R’s mail and warned him not to continue contact with the woman. On the day of her release from prison Mr R left the hostel and did not return as indicated. The Police were alerted and, on investigation, discovered that he had travelled to Bristol to pick the woman up and take her shopping. Mr R was interviewed the following day and admitted that he had maintained contact. This was in breach of his licence and led to his recall to prison. appropriate. He will be required to report to his case manager upon arrival. Should he not do so his licence will be revoked immediately. Mr L will be subject to monthly MAPPP progress reviews for the foreseeable future and, as well as maintaining regular and frequent contact with his case manager, he will receive regular visits from the Police. The MAPPP will continue to assess and manage the level of risk that Mr L poses on his return to South Wales and if, at any time, this risk increases the multi-agency approach will ensure that he is managed to minimise the risk to the public. In cases such as these the Probation Service has a statutory responsibility to contact the victim, or their family within eight weeks of sentence to provide information about the offender at key points during the sentence. This is, by its very nature, a very difficult and sensitive area of work and staff working with victims receive specialist training to ensure that they have the necessary skills. Victim Liaison Officers do not supervise offenders, or have contact in any other way, their role is to provide information and ensure, prior to the offender’s release, that the victim’s voice can be heard. Probation was particularly pleased to receive the following letter from the family of one of Mr L’s victims. “We are writing to express our deepest gratitude and appreciation for the quality of service we have received in relation to the release from prison of an offender who committed a crime against our daughter. “Clearly, this is an emotive and difficult subject for us to face as a family and, in these circumstances, we could not have asked for a more impressive, sensitive and professional handling of the situation. The Victim Liaison Officer has been in touch whenever necessary, visited our home, explained things simply and thoroughly, following up with telephone calls and offering helpful advice at all times. “In a day and age when people are so quick to find fault, we felt we would like to take a moment to congratulate you on a department that is simply outstanding.”

Victim case study
Mr L committed serious sexual offences against young girls, offences which also involved threats of violence and abduction. Sentenced to a lengthy prison sentence, Mr L was assessed through a MAPPP meeting as being highly dangerous to young children. Mr L had many previous convictions for sexual offending and denied his behaviour entirely. Because of victim issues and his considerable notoriety within the Area, it was inappropriate for him to return to his home area upon release. Arrangements were made, through the Public Protection Arrangements, with another Probation Area to house him in an Approved Premise on his release from prison. Post-release and while living away from South Wales, work was underaken with a local authority housing provider to identify suitable accommodation within South Wales. This was a difficult and time consuming task because of the need for appropriate accommodation which presented a manageable level of risk. Discussions included Social Services Child Protection managers and a number of Housing Associations. Various potential addresses were identified and visited by Police to assess them for risk. Eventually one was agreed as appropriate and plans are now underway to resettle Mr L at this address. His transport from the hostel to South Wales will be carefully managed with a number of Police forces alerted and surveillance undertaken as

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


Frequently asked questions
These people should be locked up for life, why are they released from prison?
Few people, however terrible their crime, can be imprisoned indefinitely. Prison sentences are laid down in law and, at the end of the sentence most offenders will be released back into the community. reducing risk. Public knowledge of the location of these offenders would drive them underground. It is safer for everyone concerned if their location is known only to the responsible agencies.

Why have they got to live near me?
Re-integration into communities is known to be the most effective way of managing offenders. With careful monitoring most offenders present little risk.

Why aren’t they tagged?
They are. But only for as long as there is a legal power to do so, for example the length of a prison licence. Once this has expired agencies continue to work together to monitor offenders by conventional methods.

Are my children at risk?
All parents should make their children aware of “stranger danger” to ensure that they have the information they need to stay safe. High risk offenders are monitored frequently and can have conditions imposed on them which prevent them from having contact with children or frequenting areas where children play as appropriate. However, the statistics indicate that a very large percentage of offences against children are committed by family members or known friends.

Why aren’t the public told where they live?
Police and Probation have a great influence on where offenders may or may not live. They are aware of the particular dangers posed by each individual and will not allow them to reside in a location that increases their risk of re-offending. For instance, close proximity to schools, childrens' playgrounds or their previous victims. Extensive research will go into the housing of an offender and will include consultation with other agencies such as housing and education authorities, always with the aim of assessing and

Where can I go to look at the Sex Offender Register?
The Sex Offender Register is a confidential document that is used by partner agencies to assist with the management of offenders and is not available to the public.


Multi-Agency Public Protection Arrangements Annual Report 2004-2005

Statistical information
Glossary of terms
• MAPPA Multi Agency Public Protection Arrangements MAPPP Multi Agency Public Protecton 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 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 All statistics cover the period 1 April 2004 – 31 March 2005 unless stated otherwise.

Category 1 MAPPA offenders: Registered Sex Offenders (RSO)
Number of RSOs living in South Wales on 31.3.05 Number of RSOs per 100,000 of population Number of RSOs either cautioned or convicted for breaches of requirement between 1.4.04 and 31.3.05 Number of: • Sexual Offences Prevention Orders (SOPOs) applied for • Interim SOPOs granted • Full SOPOs imposed by Courts Number of: • Notification Orders applied for • Interim Notification Orders granted • Full Notification Orders imposed by Courts Number of Foreign Travel Orders: • Applied for • Imposed by Courts 765 61


6 0 6

1 0 1

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 1.4.04 and 31.3.05 414

Category 3 MAPPA offenders: Other offenders
Number of other offenders (defined by Section 325 (2)(b) of CJA 2003) between 1.4.04 and 31.3.05 0

Offenders managed through Level 3 and Level 2
Number of RSOs managed at: Level 3 - 28 Level 2 - 125 Level 3 - 20 Level 2 - 307 Level 3 - 3 Level 2 - 143

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

Level 3 – 11 Level 2 - 48 Level 3 – 0 Level 2 – 0 Level 3 – 2 Level 2 – 0

• Returned to custody for breach of restraining order or SOPO

• Charged with serious sexual or violent offence

Multi-Agency Public Protection Arrangements Annual Report 2004-2005


Statistical commentary
Comparison with 2003-4 figures
The increase in the number of registered sex offenders is a positive indication that the sex offender registration process is working in South Wales. Similarly, the increase in the number of sex offender orders applied for and granted from 3 in 2003-4 to 6 in 2004-5 - is evidence that the police, supported by other agencies, use the legislation available to enhance public protection. The slight decrease in category 2 & 3 - from 448 in 2003-4 to 414 in 2004-5 - is not significant. This year for the first time, in addition to information relating to the highest level of risk of harm cases (MAPPA Level 3) the report includes cases managed at the lower level (MAPPA Level 2). The large numbers involved do not indicate an increase in the number of sexual or violent offenders in South Wales. Rather, they offer the public the reassurance that all offenders who are assessed as posing a possible risk of harm are managed through a very robust and regularly reviewed inter-agency approach. immediately to all such instances South Wales agencies ensure offenders understand that compliance to all conditions is mandatory. Knowing that risk assessment on all offenders is the highest priority for all staff should also serve to increase public confidence.

Serious Further Offences
Only 2 of the 626 offenders managed through the MAPPA process committed a serious further offence. In the first of these cases a detailed Risk Management Plan had been devised and followed. This included relapse prevention work from the time of the offender’s release from prison. Alcohol prevention sessions were also provided together with very close supervision. His address was monitored by the police and he was the subject of an electronic night-time curfew. The enquiry which followed the further offences indicated that the risk of harm action plan had been followed, inter-agency supervision had been good and nothing more could have been done to prevent a further offence. The second incident concerned a young offender transferred from the Youth Offending Team to the Probation Service. The original allegation which related to a serious further offence was subsequently reduced to a lesser offence. However, the service did undertake an enquiry which assisted in developing some learning points for all organisations. In neither of the above cases was there any serious and/or long term harm to the victim.

South Wales Police Police Headquarters Bridgend CF31 3SU

Geoff Cooper
Head of CID

Breach of Licences
The large number of offenders returned to prison following a breach of their licence evidences the way in which South Wales responds to any infringement of licence conditions. In most cases the breach related to offenders failing to comply with conditions of their licences such as entering an exclusion zone, or failing to notify change of address. By responding

Simon Clarke
Head of Public Protection Bureau

for England and Wales
National Probation Service South Wales Probation Area Tremains House Tremains Road CF31 1TZ

Phil Jones
Director of Operations

Janet Chaplin
Assistant Chief Officer
Designed and Printed by South Wales Police Print Department Telephone: 01656 869264


Multi-Agency Public Protection Arrangements Annual Report 2004-2005