South Yorkshire

Multi-Agency Public Protection Arrangements Annual Report 2002–3

Annex A

FOREWORD
As the recently appointed Minister with responsibility for the MAPPA, I am pleased to introduce this, the second, annual MAPPA report. It is clear that in the last year (2002/3) the multi-agency public protection arrangements (the MAPPA) continued to play an important role in what remains one of this government’s highest priorities – the protection of the public from dangerous offenders. As someone with many years experience of working in the field of child protection, I am particularly impressed by the important contribution the MAPPA are making to strengthen collaboration between agencies at a local level where the focus is on the dangerous offender. These improvements must, however, impact on the protection of children. As the tragic death of Victoria Climbie showed, an effective multi-agency partnership is crucial and the MAPPA are an important element. To ensure greater consistency in the MAPPA across the 42 Areas of England and Wales, and to prepare for the implementation of measures contained in the Criminal Justice Bill, we published the MAPPA Guidance in April. Building on good practice, that Guidance clarified the structure of the operational arrangements as well as the importance of formal review and monitoring – of which this annual report is a vital part. The Criminal Justice Bill will strengthen the MAPPA in two ways. First, it will make the involvement of other agencies part of the statutory framework. Second, it will introduce the involvement of lay people – those unconnected with day-to-day operation of the MAPPA – in reviewing and monitoring the MAPPA. Annual reports and this new lay involvement show the Government’s commitment to explaining how the often sensitive and complex work of public protection is undertaken. The Government is also strengthening the protection of the public with other measures in the Criminal Justice Bill. They include new sentences for dangerous offenders to prevent their release if they continue to be dangerous. Additionally, the Sexual Offences Bill will tighten up sex offender registration, introduce a new offence of ‘grooming’, and enable sex offender orders to be imposed on violent offenders who pose a risk of causing serious sexual harm – thereby extending sex offender registration to them. I commend this report to you and congratulate all the agencies and individuals who have contributed to the achievement of the MAPPA locally in your local Area.

Paul Goggins By Paul Goggins, Parliamentary Under-Secretary for Community and Custodial provision in the Home Office

The National Picture
The importance of partnership

This section of the report draws attention to wider context of the operation and development of the MultiAgency Public Protection Arrangements (the MAPPA). The most important work undertaken within the MAPPA is done locally, led by the police and probation – who act jointly as the ‘Responsible Authority’ in your Area – and in each of the 42 Areas of England and Wales. The experience and good practice upon which this work is based began in the 1990s – most significantly as a result of the closer working relationship required by the Sex Offender Act (1997). The Criminal Justice and Courts Services Act (2000) formalised that relationship and built on the existing experience by requiring the police and probation services to establish arrangements (the MAPPA) for assessing and managing the risks posed by sexual and violent offenders. The Act also required the Responsible Authority to publish an annual report on the operation of those arrangements. This report, covering April 2002 to March 2003, is the second annual report.

Key to the development of the MAPPA in the past year has been the closer involvement of other agencies, such as housing, health and social services, working alongside police and probation. The truly multi-agency nature of the MAPPA and the collaboration which underpins it is to be strengthened further by the Criminal Justice Bill. The Bill will place a ‘duty to co-operate’ on a wide range of organisations including local health authorities and trusts; housing authorities and registered social landlords; social services departments; Jobcentres; Youth Offending Teams; and local education authorities. In addition, the Prison Service will join the police and probation services and become part of the MAPPA ‘Responsible Authority’. Supporting and co-ordinating the development of the MAPPA throughout the 42 Areas of England and Wales, is the National Probation Directorate’s Public Protection Unit (PPU). This Unit acts as a central point for advice and, increasingly, involvement in the management of difficult cases. These include, for example, UK citizens who have committed serious offences abroad and return to this country without anywhere to live. The Unit is also able to provide financial support when the risk management plans make exceptional demands upon local resources.

of two ‘lay advisers’ to each Area. The eight Areas of England and Wales which have been piloting these arrangements since January (Cumbria, Greater Manchester, Durham, South Wales, Dorset, Hampshire, Surrey and West Midlands) report that they add real value. Lay advisers will contribute to the review and monitoring of the MAPPA which is undertaken by each Area’s Strategic Management Board – the work of which you can read more in this report. The purpose of appointing ‘lay advisers’ is to ensure that communities understand more of what is done to protect them and that those involved professionally with the MAPPA are aware of the views of the community. The lay advisers will not ‘represent’ the community in the way, for example, that local councillors do, nor will they be involved in operational decision-making. And, given the sensitivity of much of what the MAPPA does, especially with the few offenders who pose a very high risk of serious harm to the public, it is not practicable for the general public to be involved. Lay advisers will, however, ensure an appropriate and a practical level of community involvement.

cumulative. This is why they have increased – by 16 per cent in England and Wales. Only a very small proportion (about six per cent throughout England and Wales) are considered to pose such a high risk or management difficulty that they are referred to the highest level of the MAPPA – the MultiAgency Public Protection Panels (the MAPPP). Figures alone do not, of course, tell the whole story. The anonymised case studies illustrate the practical work of the MAPPA, and demonstrate the preventive action which can be taken. Prior to the MAPPA, action of this kind was mainly taken by one agency alone, with the effect that on occasion offenders’ behaviour which might have triggered preventative action went unnoticed. The multi-agency approach of the MAPPA helps ensure that if an offender does breach the condition of the licence under which they were released from prison or a court order prohibiting certain activities, then action to enforce the condition or order and protect the public can be taken more swiftly.

MAPPA Offenders
This year the annual report provides a more detailed breakdown of the number of sexual and violent offenders who are covered by the MAPPA in your Area. As last year, the figures include the number of registered sex offenders. Because sex offender registration is for a minimum of 5 years (and generally for much longer) the figures are

If you are interested in reading the reports of other Areas, they will be published on the National Probation Service’s website www.probation.homeoffice.gov.uk (under the public protection section) with all of them being available once the last Area has published its annual report in September.

Involving the public
MAPPA developments in the next 18 months will also include the appointment by the Home Secretary

1 Area Summary
1.1 Sections 67 and 68 of the Criminal Justice and Court Services Act 2000 require the responsible authority (the chief of police and probation board acting jointly) to establish multi-agency arrangements for the assessment and management of dangerous offenders. This legislation built upon previous laws designed to manage the risk presented by sexual and violent offenders. These include the Sex Offender Act 1997 for the registration of sex offenders and the Crime and Disorder Act 1998 providing the power to make sex offender orders and extended sentences for sexual or violent offenders.
1.2 The two services in South Yorkshire fully support the creation of these duties and have worked hard to make arrangements which will be effective in protecting the public. The local arrangements developed have built upon existing arrangements already established - the sex offender risk assessment panels and the probation service case-based interagency public protection case conferences. The new arrangements are also designed to complement other existing interagency networks for the protection of children and other vulnerable people. A good level of understanding and co-operation has been achieved through meetings with the community safety partnerships, area child protection committees and lead agency managers from social services, mental health, and housing services. 1.3 In April 2001 the Home Office issued national guidance to all the 42 police and probation areas in the UK outlining minimum requirements for the successful execution of the new duties in Section 67 &68. Every area had to create a system for the assessment and management of dangerous offenders and a multi agency public protection panel a MAPPP, to consider the risks presented by the most dangerous. This applies only to the “critical few” where additional resources may be needed and a multi-agency approach to assessment and management of risk was required. 1.4 Our first major initiative was to establish a joint public protection unit, jointly funded, jointly staffed and jointly managed by the police and the probation service. The aim of the unit is to stop known dangerous offenders from committing serious harm to further victims. It will do this by working together and with and through other agencies in South Yorkshire - local authority social services, the health service, housing services, and other relevant organisations. The process of coordinating the relevant agencies is to ensure that dangerous offenders in South Yorkshire are identified and assessed accurately and those assessed as representing a high risk of serious harm are managed in such a way as to reduce those risks to a minimum. Advice is provided to all referring agencies, and for those who present the highest risk of harm the unit is responsible for arranging a multi agency public protection panel. required in order to protect the public but great care is given to what is disclosed and to make sure disclosure is legal and more likely to reduce the risk to the public than increase the risk of harm. 1.6 Plans are created for all of the highest risk of harm offenders. The plan must be specific, measurable, achievable, realistic, and timely and consider both internal and external controls. Internal controls include a schedule of programmes that have been proven to reduce re-offending provided by the probation service. Structured programmes are available for both offenders who commit sexual crimes, domestic violence offenders, and other violent offenders. The mental health services and other voluntary support organisations provide assessment/treatment and therapeutic counselling. 1.7 All agencies involved in the multi agency management of dangerous offenders provide external controls. Monitoring a person’s behaviour at whatever level is an important mechanism for controlling further offending. This can vary from full scale police surveillance operations to intermittent monitoring by the police, or by the controls provided by a sex offender order. A variety of other organisations provide an effective monitoring role including housing support services, social services and mental health. These services work very successfully with the police in the monitoring and detection of crime, and communication between agencies is often facilitated by the pivotal role of the public

Public protection plans
1.5 Consideration of the benefits of disclosure of confidential information about offenders to potential victims, other organisations or the wider community is always a part of public protection planning. However all agencies within the MAPPA (multi agency public protection arrangements) recognise that serious thought must be given to the delicate balance between respecting a person’s human rights and civil liberties and protecting the public from further harm. Such disclosure is restricted by and facilitated by complex interwoven legislation. The MAPPA in South Yorkshire recognises that disclosure is sometimes

protection unit. The probation service provides its own mechanisms and powers to monitor and manage risk through supervision of offenders and the appropriate use of breach of community sentences and recalling the most dangerous offenders back to prison

As a result, Dr Chris Davis, a clinical psychologist based within the NHS provides psychology clinics across South Yorkshire. Clinics are offered twice a month, for half a day in Barnsley, Doncaster and Rotherham and for a full day in Sheffield. MAPPA cases appropriate for referral include: q those involving violent offending, sexual offending, or other offending resulting in significant risk of harm such as arson. q those identified as high risk or where issues of risk assessment have proven difficult. q offenders with known or suspected mental disorder (i.e. mental illness, personality disorder and learning difficulties) requiring further assessment of psychological issues or specific psychological treatment. Some offenders have presented with symptoms often associated with major mental illness, such as schizophrenia. Perhaps not surprisingly, another prominent feature of those clients referred to the clinic is that of major personality difficulties often of a nature and degree indicative of personality disorder s South Yorkshire Police disclosure policy – the policy has been revised to take account of the new duty for the police and probation service within Section 67 CJ & CS Act 2000.

1.8 New operational initiatives 2002- 2003
s A multi agency public protection protocol for interagency information sharing and joint management of sexual and violent offenders has been agreed by the core partner agencies. The protocol includes principles for information sharing for high risk offenders and procedures for referring very high risk of harm offenders to the MAPPP. s A.I.M.- assessment intervention model provides an effective form of assessment for young people who commit sexual offences. All the South Yorkshire youth offending teams have been trained to use this model, which is based on research and clinical judgement. This has provided us with a consistent and more accurate approach to young offenders in analysing the risks they present to the public s Partnership with psychological health Since October 2003 a new partnership has been developed between the National Probation Service in South Yorkshire, and Psychological Health Sheffield.

s Intelligence sharing information project – This is a local initiative to evaluate the benefits of extending information sharing between the police and probation service. The aim was to identify a group of “volume” offenders on whom a range of information could be shared in order to reduce the risk of harm and re-offending. Many of these offenders fell within the wider MAPPA responsibility under Section 68 of the CJ&CS 2000. A probation officer funded by the local community safety partnerships was placed in the public protection unit to carry out a feasibility study. The work of this project will inform the process of implementation of *Narrowing the Justice Gap proposals. s Regional MAPPA - A forum has been created for police and probation representatives from West Yorkshire, North Yorkshire, South Yorkshire and Humberside. The purpose of this forum will be to ensure that information about a dangerous offender is quickly and easily transferred from one area to another, and to establish a consistent approach to the effective management of the highest risk offenders

approach can ensure that no one becomes a further victim of serious harm from a known offender in South Yorkshire. This report will provide further details of those local arrangements and information on how those arrangements and those offenders will be kept under review

2 Roles and Responsibilities.
2.1 Many organisations have roles and duties that include within them elements of public protection. supervision are subjected to a detailed risk analysis; all those who are assessed as a very high risk of serious harm are referred to the MAPPP. However other offenders within the MAPPA who are assessed as a lower risk will also be managed by a multi-agency liaison in the form of joint work or risk concern meetings or sex offender panels If required by the MAPPP the probation service in South Yorkshire offers voluntary supervision to very high risk of harm offenders, beyond the completion of their compulsory supervision. In some cases this has proved to be a valuable resource and extremely effective in providing support and guidance, to prevent further offending and further victims. are evidence of their commitment to inter-agency working. Their intelligence and detection work, and the information gathered through it, coupled with the probation service’s statutory authority for supervising offenders, make them vital core partners in public protection. The police have been active in their contribution to MAPPPs, recognising that they provide an invaluable forum for the collection of information about offenders for the detection of further crime. As well as monitoring and surveillance work the police have become proactive in seeking sex offender orders and have been successful on every occasion in the courts. For the highest risk sex offenders the police make referrals from the sex offender panels that manage the sex offenders register, providing a valuable inter-agency link for the effective control of these offenders. Prisons The prisons play a vital role in post sentence planning and resettlement of offenders within the MAPPA. Both the police and the probation

MAPPA partnership agencies
The National Probation Service, South Yorkshire The probation service is responsible for supervising all offenders on release licence from prison following a 12 months or more prison sentence. On release from prison the probation service has statutory responsibility for all those that lie within the wider MAPPA responsibility as outlined in section 68 CJ&CS Act 2000. It also supervises adult offenders in the community who are on community orders, of which there are several. Through this work it aims to protect the public from harm, rehabilitate and resettle offenders, administer firm and fair punishment and promote and meet the needs of victims. Much of its work requires an inter-agency approach, to which it is fully committed. All offenders under

Our aspiration
1.9. It is recognised that human behaviour is not easily predicted but effective joint working has taught us that someone, somewhere has the right information. Our aspiration is that an organised multi agency

* Narrowing the Justice Gap is a Home office initiative that aims to support the criminal justice system in more effectively catching , bringing to justice and rehabilitating a core group of particularly prolific offenders who are responsible for a disproportionate amount of crime

South Yorkshire Police The police are responsible for the prevention and detection of crime, and the maintenance of public order and community safety. Their contributions to inter-agency initiatives such as youth offender teams, crime prevention projects and the public protection unit itself

service have effective formal liaison with prison staff and the MAPPA have built upon these existing structures. Every prisoner undergoes a detailed risk assessment whist in custody. This process will identify those offenders who present a serious risk of harm on release. In addition to assessment the prisons provide offending behaviour treatment programmes, including sex offender programmes, alcohol education and anger management. Prison staff contribute to managing an offender’s behaviour within the community by sharing information with the MAPPA partner agencies. The prisons make a valuable contribution to inter-agency initiatives, crime prevention projects and are a vital core partner in public protection.

almost always more dangerous if they feel excluded from the community through homelessness. Housing departments have a vital role to play in protecting the public and are often able to contribute to public protection plans by the provision of accommodation, when this is integrated with supervision, monitoring and treatment that other partners provide. The housing services work closely with other housing providers and probation service approved premises (hostels) in order to provide an effective accommodation package for a gradual reintegration of an offender back into the local community. Youth offending services Multi-agency working with young offenders is already an example of a model that brings together the skills and knowledge of different agencies to tackle youth crime and protect the public. Youth offending teams are responsible for the supervision of 10 to 17 year olds. Though more often prolific than serious, youth offending teams will sometimes deal with offenders who represent high risks of causing serious harm, and their youth can often exacerbate some of the difficulties in providing effective supervision. The YOT have made appropriate and effective referrals to the MAPPA this year to ensure that these cases are managed to reduce the risks to the public to an absolute minimum. Mental health service The police and the probation service and other agencies need the advice of the health professionals on the appropriateness of health provision with high risk of harm offenders. The mental health services are important contributors to public safety through sharing their psychological and psychiatric assessment skills, through the contributions they can make

to the management of dangerous behaviour and through the interface between the Care Programme approach and the MAPPA. The Care Programme approach makes tiered provision for those discharged from hospital care who represent a continuing risk to themselves and others and the MAPPA provides a higher forum for inter-agency planning for those who present the highest risk. The mental health services in South Yorkshire provide consistent support and positive contributions to MAPPPs both in the form of managerial support and clinical advice. Other agencies The above descriptions of the roles of agencies in public protection are far from exclusive. They cover only those agencies that presently constitute the core membership of local South Yorkshire multiagency public protection panels. Many other agencies and individuals have important and valuable contributions to make in protecting the public from the most dangerous offenders. – and DO make them – such as q education services, q employment service q drug and alcohol counselling services q housing associations q domestic abuse support services q NSPCC q Junction Project- Barnados. These agencies are therefore invited to be a part of a multi-agency public protection panel when appropriate, on a case by case basis:

and the probation service. Based in Sheffield West Bar police station, it is staffed by q the public protection manager - a senior probation officer seconded from the probation service q a public protection officer – a police officer with experience of work in the sexual offences unit of South Yorkshire Police q the unit administrator – a police intelligence assistant 2.3 The unit is responsible for the co-ordination of all the other agencies within the MAPPA protocol and the management of MAPPPs. Its primary objective is to ensure that those assessed as representing significant risks of causing serious harm are managed in such a way as to reduce those risks to a minimum. The unit itself is not responsible for the operational management of offenders, but for helping and ensuring that others do so in a consistent, effective and defensible way. The unit now has an agreed multi-agency protocol and has established a strategic advisory group. The arrangements in South Yorkshire operate smoothly, consistently and effectively. 2.4 In co-ordinating the arrangements in South Yorkshire, the public protection unit q receives preliminary assessments from all partner agencies of potentially dangerous offenders s advises upon the appropriate arrangements for multi-agency information sharing, assessment and case management

q convenes multi-agency public protection panels q quality controls action plans for high risk offenders. q Maintains a MAPPP register of the highest risk offenders. q co-ordinates sex offender risk assessment panels q provides limited selected intelligence work q establishes MAPPA regional and national links q provides public protection training to MAPPA partners q identifies further developments and co-ordinates the implementation of changes

The outcome was positive and encouraging. Whilst issues where identified for future development, all the agencies involved were committed to MAPPPs and considered that MAPPA played a vital role in the effective management of dangerous offenders.

Publicity
2.7 The public protection unit has been active in advertising the role of the unit and the legal duty to assess and manage high risk of harm offenders. A leaflet has been published outlining the legal framework, the procedures and the referral process; this has been distributed to all relevant agencies across South Yorkshire. A MAPPA poster has also been designed with the intention of ensuring that all relevant personnel have access to the PPU contact details, thus ensuring that contact will be made with the PPU if a multi-agency response to managing risk is required

Review of multi-agency involvement
2.5 The investment last year to secure multi-agency involvement through consultation with the area community safety partnerships, the area child protection committees and meetings with heads of agencies has been positive and effective. This has resulted in all agencies becoming actively involved in the MAPPA through the coordinating function of the public protection unit. All core agencies have welcomed the opportunity to work together with dangerous offenders and the last year has shown a growing confidence and trust between agencies. 2.6 Every MAPPP in South Yorkshire - Doncaster, Barnsley, Sheffield, and Rotherham - has undergone a review process. The review was conducted to assess if the local MAPPPs were effective in reducing further offending and protecting the public, and if improvements were required to reinforce our practice.

Local authority social services departments These departments provide services to children in need and to their families, older people, disabled people and those with mental health needs. They have a particular role in their work through area child protection committees, where the new public protection procedures complement existing procedures that focus upon the risks faced by particular children. The social services in South Yorkshire are fully committed to active participation in MAPPA, having a particular regard to the welfare of children and other vulnerable adults, particularly for those with learning difficulties Social services staff attend MAPPPs regularly recognising that it is an important forum for obtaining information about a dangerous offender, so that further victims can be protected. Local authority housing services Potentially dangerous offenders are

Seminars and presentations
2.8 The PPU continues to provide presentations and seminars to all relevant staff in South Yorkshire in order to secure the co-operation of managers and other staff members. It is considered essential that other agency workers fully understand the legislative requirements to assess and manage the risks presented by dangerous offenders, the role of the unit in South Yorkshire, and how to access the local procedures.

Public protection unit
2.2 This unit has now been operational for 18 months. It is the MAPPA joint authority as a partnership between the police

2.9 Seminars have been provided for social services team managers, housing services managers, housing providers, police community safety officers, Wathwood High Secure Unit, mental health professionals. 2.10 Multi-agency liaison will continue to be a major function of the public protection unit, training is offered to all partner agencies to improve our practice with risk assessment of domestic abuse offenders, sex offenders and other violent offenders

Multi-agency training
2.11 Training is an important component of South Yorkshire’s approach to public protection. Successful training events and conferences have been organised and delivered this year, including assessing young offenders who commit sexual abuse; ‘To Disclose or Not to Disclose’; internet crime; new developments in working effectively with sex offenders. Local experience of hosting such events has shown that

multi-agency training not only provides the opportunity for increasing knowledge but also provides a very effective forum for networking, improving our approach to communication and ensuring a successful partnership to protecting the public. A training plan has been devised for 2003- 2004. Proposed events are: q risk assessment of adult and younger sex offenders q sex offender orders- successful applications q suspect interview training

3.6 The public protection unit retains and manages a record of all those that have been reviewed by a MAPPP; registers those currently assessed as representing a high risk of serious harm; monitors outcomes and the implementation of public protection plans; and co-ordinates the review of registered cases. 3.7 Cases will be reviewed at a frequency adjudged necessary by the original MAPPP, but not less than four monthly. An offender may only be removed from the register as a result of a decision by the relevant MAPPP. 3.8 This year 72% of referrals to the public protection unit were received from the probation service. As the agency with the primary responsibility for the supervision of offenders in the community, this is not surprising and is wholly appropriate. There has been an increasing use of the PPU and the MAPPPs by the mental health services and the police,

through the sex offender risk assessment panels. This is encouraging early evidence that the initiatives to broaden accessibility to the arrangements are bearing fruit. There are also many other enquiries from all partner agencies to the PPU that are to share information or for risk assessment and advice regarding potentially dangerous offenders. 3.9 The role of the PPU as an informal resource for case discussion and liaison is growing. As the unit becomes more widely known and as knowledge and understanding of the arrangements extends further, it is expected that the profile of referring agencies will broaden. 3.10 The MAPPPs considered 91 new cases from the 1st April 2002 up to 31st March 2003. Of these, 39 were cases of sex offenders already on the sex offender register, 43 were cases of violent offenders and two were sex offenders not on the register. There were

seven other offenders, mostly convicted of arson. 3.11 A consideration of the profile of offenders who have been considered by the MAPPP informs us that q 90% of dangerous offenders are male, q approximately 90% are over 18 q 90% are white. High risk of harm offenders appear to be representative of the larger offender population, in terms of gender and race. However closer analyses of the age of the offenders inform us that the majority are over 30 years of age. Thus whilst risk of re-offending is normally related to youth crime, those responsible for committing serious harm are often more mature. 3.12 Effective MAPPP practice 2002-2003 - the panels MAPPPs can and do make a difference to reducing the potential risk of harm to the public. Below are two examples of harm reduction:

3 The Operation of MAPPA
3.1 Every agency within the MAPPA has it own lower tier risk assessment panels. These include mental health community care planning meetings, social services child protection strategy meetings; police sex offender risk assessment panels and probation service risk concern meetings. A lower tier risk concern meeting can also be facilitated by the PPU for potentially high-risk offenders if required. Cases will be reviewed in these forums before referral to the PPU for a MAPPP for the very high risk of harm offenders. 3.2 Referrals of offenders who have been assessed within individual agencies, as dangerous, are made to the public protection unit for advice and further assessment. A standard format for making such referrals has been implemented. Such referrals will normally arise after the exhaustion of an agency’s internal risk management procedures and will always come through a designated service manager. 3.3 Within the police and probation services, all sex offenders are assessed using a validated assessment instrument (Thornton’s Matrix 2000), for which training has been provided. The assessment of all offenders within the prisons and the probation service will be conducted using the assessment “tool” OASys (Offender Assessment System). Other agencies have their own risk assessment tools in order to undertake detailed risk analysis before referral to the PPU 3.4 Each borough in South Yorkshire now has a core panel of MAPPP members from social services, mental health, housing services, police and probation service. Additional agencies are invited if involved with the case. The district core panels have a schedule of monthly meetings throughout the year and emergency meetings are convened if required. 3.5 Each MAPPP in each district is now convened and conducted using the MAPPP procedural manual. This manual includes standardised letters of invitation, referral forms and a standard MAPPP agenda. A plan must be completed for all offenders assessed as very high risk of serious harm.

good practice effective intervention and monitoring Gary

Gary, aged 48, was convicted of sexual assaults against young children. He had previous similar offences and was sentenced to 30 months in prison with an extended sentence under Section 58 C&D Act 1998, providing three years additional supervision by the probation service and placed on the sex offender register. Just prior to his release from prison he was referred to a MAPPP to consider the risk he presented to the public and how to manage the risk effectively. The MAPPP agreed that Gary presented as a high risk of harm to children, and in order to manage the risk effectively he was accommodated in a probation service hostel where he was required to report to staff every day. He had learning difficulties and was required to attend the special needs group for sex offenders. He has attended as required, he has kept all the hostel rules, and he has started to accept that he is a risk to children and to take responsibility for his behaviour. Accommodation has now been found for him outside the hostel, with appropriate support from the learning disabilities mental health team and social services. He continues to be managed closely by the police through the sex offender register and the MAPPP.

Effective internal controls good practice fast tracking mentally disordered offenders James
James has a long history of violent offences against adults. He was most recently sentenced to four years custody for an offence of kidnapping. It was reported by his probation officer that whilst in prison, he started to exhibit worrying behaviours, including hyperactivity, paranoia, verbally abusing others and self harming. In preparation for his release a MAPPP was called to consider the risks involved and to design a plan to manage him in the community. As a result of the information provided, the MAPPP requested an immediate assessment by two psychiatrists. Within two weeks James was assessed as being mentally ill under the Mental Health Act and was quickly transferred to a secure hospital for treatment. James is still under the care of the mental health services and is receiving the treatment he requires. 3.12 The National Probation Service in South Yorkshire provides a full schedule of offender programmes. Some of these programmes already have been proven to reduce re-offending. Others are based upon principles derived from evidence, implemented rigorously, and continuously researched in order to demonstrate and improve their efficacy. 3.13 Between March 2002 - 2003, 45 sex offenders completed the Intensive Assessment programme, 50 completed the core treatment programme and seven completed the Special Needs programme. 3.13 South Yorkshire has now started to deliver an accredited sex offender programme, the Northumberland Model (N-SOG). The entry point into the community-based treatment takes into account the assessment of risk and deviance, and the level of denial. The programme has two components. Offenders assessed as high risk/ deviancy will attend the core group programme of 144 hours treatment followed by the relapse prevention programme of 36 hours treatment. Offenders released from prison will follow similar routes according to their assessment of risk and deviance.

to increase their understanding of their offending and provide them with strategies for reducing the likelihood of re-offending. The six members at the moment have a variety of learning difficulties and have committed offences against children and adults. The group has proved to be successful in monitoring behaviour and has been instrumental in reducing risk to the public.

3.17 A programme for other violent offenders – called Focus on Violence – was available until April 2003. 29 Offenders completed this from January 2002 to April 2003. CALM (A prison based programme) is subject to accreditation status by the National Accreditation Panel and may be available to South Yorkshire at the end of 2003.

Effectiveness
3.15 A partnership with Psychological Health Sheffield has provided the analysis of psychometric tests to demonstrate the effectiveness of the programme in changing attitudes and behaviour relating to sex offending. National teams of forensic psychologists will complete the evaluation of the accredited programme and this is ongoing. 3.16 A structured group programme is available for domestic violence perpetrators in South Yorkshire. The programme is designed to consider the offender’s attitudes to violence within relationships and to their partners. Running parallel to this is a support service for partner/ex-partners of offenders, which provides information about the programme, makes an assessment about their safety, refers them on to appropriate services if desired. The programme ran seven times between January 2002 and March 2003, and 41 offenders completed it.

Effective external controls
3.18 In order to manage high risk of harm offenders effectively the probation service strictly enforces national standards for prison licence conditions and community sentences. If any offender does not report as required or fails to comply with any of the conditions in his licence or community sentence they will be quickly returned to court for breach proceedings or recalled to prison. 3.19 The police manage the sex offender register and they strictly monitor compliance with registration. Failure to register will result in arrest and prosecution. Compliance in South Yorkshire with registration is excellent. For some high risk of harm offenders the police will seek a sex offender order (under C & D Act 1998). Such an order can prohibit sex offenders from frequenting certain places such as parks and recreational facilities. These orders are becoming increasingly successful in providing additional controls for protecting the public.

Although the MAPPPs manage the most high risk offenders the majority of MAPPA cases within the legislation are managed through normal agency provision and by interagency agency liaison. The cases below highlight this

Effective MAPPA practice normal agency provision

key agency probation supervision David

David is 21 years old, has been convicted of grievous bodily harm and just completed a three-year prison sentence. He is released from prison under the supervision of the probation service, he is assessed as potentially dangerous but the risks are not considered imminent and therefore he is not referred to a MAPPP. He has conditions on his release licence to reside where approved and to undertake suitable treatment and not to contact his previous victim. He is now living in supported accommodation, he is attending the focus on violence group and he is reporting regularly to see his probation officer. His progress is positive and encouraging.

key agency mental health care Sara

Sara has previously been convicted of a number of violent offences. She was released from prison one year ago following a three-year sentence for arson. Her prison licence period is now complete and she is no longer under supervision from the probation service. She has an anti-social personality disorder and is currently receiving treatment from the mental health assertive outreach team. Her behaviour has become increasingly bizarre in recent months; the police have been called out by neighbours on almost a daily basis to assist in controlling her actions. The mental health services consulted the PPU asking for help and advice. Whist Sara does have the potential for causing serious harm she is not considered to be a very high risk offender. The PPU have therefore facilitated “risk concern” meetings for the police and mental health service so they can work together more effectively to manage her in the community.

Special needs group
3.14 A partnership with Community Health Sheffield has provided the resource for treating sex offenders with learning difficulties. The groups seek

3.20 The police are expected to visit each registered offender every 12 months and having located that offender a new registration form is then completed. Where there is cause for concern the offenders will be visited more regularly. Such visits can be helpful in checking the geographical location of the offender’s home, in order to find out whether there are any schools or parks etc in the vicinity.

3.21 A pilot scheme is currently underway in respect of sex offenders who are coming to the end of their custodial sentence. A police officer and a probation officer conduct a joint visit to the offender in prison so that a profile of the offender can be compiled at the earliest possible opportunity. 3.22 Sex offender risk assessment panels are organised by the police and are attended by

managers from police, social services and the probation service. The panels are responsible for reviewing the risk presented by all registered offenders. Any offender considered to be high risk must have an action plan to manage the risks identified and will sometimes be referred to a MAPPP for more detailed consideration. Outlined below is an example of effective police practice.

Example of Disclosure good practice disclosure Mark
Mark is 58 years old. He has a number of previous convictions for both sexual and violent offences. He is subject to sex offender registration but no longer under the supervision of the probation service. The police report that he is living quite close to a local school and there have been complaints from the school children that a man of his description has offered them money and sweets to come into his house. The police request a MAPPP and it is agreed that he will be offered alternative, more suitable accommodation and the police will seek a sex offender order prohibiting him from having unsupervised access to children. Disclosure is made to both the school and the local youth club regarding Mark’s offences and the risk he presents to children.

good practice police Karl

Karl is 19 years old. He has recently served a two-year sentence for indecent assaults on children. On release from prison he is subject to sex offender registration and he returns to live with his family. The local community is aware of his offences and very concerned about him living in their community, where he has access to local children. As a consequence of this, threats of violence and revenge have been made towards him. The local police have a duty to protect the children and Karl from harm. Following a MAPPP, Karl is removed from the community and an application is made to the court for a sex offender order to prohibit him from having any unsupervised access to children. Karl remains offence free and is currently attending the probation service sex offender treatment programme.

3.25 There have been no cases this year in which a MAPPP has concluded that a widespread disclosure to the general public was necessary, or would be effective in order to protect the public.

4 Strategic Advisory Arrangements
Disclosure
3.23 It is recognised by MAPPPs in South Yorkshire that disclosure is sometimes necessary in order to protect the public from harm. It is clear that while disclosure is a necessary part of public protection, it can also sometimes exacerbate the dangers involved. The detail of any proposed disclosure of confidential information by MAPPPs is always accompanied by advice about who should undertake the disclosure and to whom information should be disclosed. q 3.24 Certain principles must be considered in order to achieve the delicate balance between public protection and human rights. The guidelines for the MAPPA in South Yorkshire are q What is the purpose of disclosure? q Is the disclosure necessary in the interests of justice? Is it legal? q To whom is the disclosure to be made and how much further might the information go once disclosed? What is the risk of harm and the nature of that harm that might follow from disclosure? What is the risk of harm and the nature of that harm that might follow from non disclosure? Will the disclosure achieve its purpose and in doing so will it prevent more harm than it causes? Is the public interest so great as to override the presumption of confidentiality? 4.1 This group has now been expanded to include representatives of all the key agencies. A constitution has been drawn up for consultation through community safety partnerships and with core MAPPP members. The first meeting took place early this year. The advisory group will meet at least twice a year, chaired by the independent member from the University of Sheffield. The group is composed of q the assistant chief officer of probation with responsibility for public protection q the director of force q q q q q intelligence for South Yorkshire Police a service manager from social services a service manager from housing services a mental health services manager divisional manager for youth offending teams a manager from a prison that receives a high proportion of offenders form South Yorkshire a manager from the South Yorkshire Victim Support Scheme a community safety officer from one of the South Yorkshire community safety partnerships q an independent member from the University of Sheffield with experience and expertise in the management of risk. 4.2 The role of the group is to oversee the arrangements in South Yorkshire for sharing information and managing risks posed by dangerous offenders. The group will receive reports form the public protection manager, advise on the content and publication of the annual report and the development of the public protection unit and promote the arrangements from the sector from which each member has been appointed.

q

q

q

q

q

5 Work with Victims
5.1 Since the mid-1990s the probation service has had a responsibility to contact the victims of certain serious sexual and violent offences, where the offenders were serving longer periods in custody. The purpose of this contact is to keep victims informed about the progress of the offender through the prison system and about the generality of the arrangements for release. It also provides an avenue through which account can be taken of the victims’ views about release arrangements. 5.2 Section 69 of the Criminal Justice and Court Services Act 2000 extends these provisions and puts them on a statutory footing. They now apply to the victims of all sexual and violent offences where the offender is sentenced to 12 months or more in custody. There is a discretionary power to include other selected cases within the provisions. 5.3 As a result of the extension of the provisions, the probation service in South Yorkshire centralised its victim contact work by forming a dedicated victim unit. This has now been operating for 18 months and has expanded to comprise a part-time manager, 3.2 victim liaison officers and two administration officers. Its administrative and managerial centre is based in the Sheffield Crown Court building while the victim liaison officers work with victims from sites across the county. 5.4 The scale of victim work has almost doubled and over 100 victims are contacted every quarter. Victim details are received from the police and as soon as the details arrive, an introductory letter is sent to all known victims for each relevant case. Victim liaison officers help victims to understand how prison sentences work and information is provided about the process of licence and parole. Victims may choose for an ongoing flow of information throughout the sentence although a few choose to put the trauma behind them and to let the process proceed without further communication. Victims who want to be kept informed are notified when release arrangements are under consideration. Their views cannot affect whether or not an offender is released from a fixed term sentence but they may affect the conditions attached to that release. A licence may, for example, include restrictions on an offender’s mobility to keep them away from the victim’s home area. 5.5 The victim unit is notified of every MAPPP meeting and is invited to those where there is contact with victims. A public protection plan will always consider how to inform and safeguard the victim.

5.6 Timely contact is linked to a funding linked target. (Within eight weeks of sentence) and is determined by the speed with which the police disclose the victim’s details. This has been and continues

to be a major area of liaison work and, since January 2003, has started to operate well with the majority of victims being contacted within the required timescale.

6 Statistical Information
6.1 Appendix A provides statistical information about sexual, violent and other dangerous offenders (Sections 67 & 68 of the Act). MAPPP plans, intensive supervision and police monitoring, there are currently 35 cases that are under MAPPP high risk review. This figure is three per cent of the MAPPA population and it is therefore feasible to provide intensive monitoring and support to reduce the risks identified. 6.4 This year the police have started to use sex offender orders appropriately and effectively. Four successful applications have been made to the court and there are a number of cases pending. The police are now able to apply for interim sex offender orders and this should assist enormously in the speed of processing an application. Further training is planned to improve knowledge across the force. 6.5 Section 66 Restraining Orders CJ & CS Act 2000 can put further restrictions on sex offenders sentenced to imprisonment. The South Yorkshire courts have not used them this year. This is definitely an area for improvement for the coming year. 6.6 There is a very high level of compliance with sex offender registration in South Yorkshire. This year there have only been two breaches of the requirement to register. There is no doubt that the high level of compliance is due to the role of the sex offender panels and the proactive policing methods described above. 6.7 Recalling high risk offenders to prison has been used effectively by the probation service. Recall is usually instigated because of a breach of licence conditions, which will result in an increase and unacceptable risk to future victims. When the prisoners are re-released following recall it is normal practice to reconvene a MAPPP in order to manage the risks presented. 6.8 In the last year, out of the 91 offenders considered by the MAPPP, only one high risk offender has committed a further serious crime. He has now been dealt with by the criminal justice system and is now in prison.

Observations and comments on statistical data
6.2 In total there were 1,183 offenders who fell within the MAPPA in South Yorkshire in 2002- 2003 as outlined in the Criminal Justice and Court Services Act 2000 section 67 & 68. This includes the number of sex offenders on the register – 577 - and the number of violent and other sexual offenders sentenced to over 12 months imprisonment - 606. 6.3 Of the 1,183, 91 offenders have been assessed by the South Yorkshire multi agency public protection panels, approximately seven per cent of the total MAPPA population during 2002-2003. This represents the “critical few” dangerous offenders. However, risk of harm varies from time to time and can be managed to reduce the harm to the public. As a result of inter-agency liaison, strict adherence to

good practice victim liaison Jim

Jim is a high risk of harm offender who threatened that he would make contact with his victim on release from prison. In order to reduce the risk to the victim as much as possible the MAPPP agreed that the offender would be released to live in a hostel some distance away from the area where the victim lived, where he would be closely supervised and a programme of work was agreed. Police surveillance was set up, the licence conditions stated that he must stay away from the area where the victim lived and he was to make no contact with the victim or any member of the family. It was agreed that the victim’s parents would be informed of the licence conditions and advised to contact the police if the offender was seen. The threats were not disclosed for fear of alarming the family and preventing them getting on with their daily lives.

Appendix A Information 7 Conclusion
7.1 This report identifies much genuine and effective interagency co-operation in the task of assessing and managing the risk of dangerous offenders and reducing the fear of crime. The second year of implementing the new arrangements has seen a marked improvement in the management of risk with regard to consistency and quality of the plans to manage risk. The public protection unit is now well established with numerous links across South Yorkshire and with all the relevant agencies. The unit is now confident about its approach to the complex issues relating to disclosure of information and provides advice to all MAPPA agencies on this issue. We have also become increasingly expert in the area of risk assessment. The MAPPPs have a consistent approach to risk analysis and use the research based actuarial tools to good effect. 7.2 Questions about the availability and allocation of resources for the effective management of dangerous offenders will undoubtedly arise. There will be a continuing need to work co-operatively, to fully engage all relevant agencies and to increase the knowledge, understanding and skill of professionals in order to better protect the public of South Yorkshire from the harm that might be inflicted by the most dangerous members of our community. Shelly Scott April 2003 iv. The number of Restraining Orders issued by the courts between 1 April 2002 and 31 March 2003 for offenders currently managed within MAPPA i. The number of registered sex offenders on 31 March 2003

No. of Offenders
577

ii.

The number of sex offenders having a registration requirements who were either cautioned or convicted for breaches of the requirement between 1 April 2002 and 31 March 2003

2

iii.

The number of Sex Offenders Orders applied for and gained between 1 April 2002 and 31 March 2003 a) The total number of Sex Offender Orders applied for 4

b) The total number granted

4

c) The total number not granted

0

0

v.

The number of violent and other sexual offenders considered under MAPPA during the year 1 April 2002 and 31 March 2003 (as defined by section 68 (3), (4) and (5)

606

vi.

The number of ‘other offenders’ dealt with under MAPPA during the year1 April 2002 and 31 March 2003 as being assessed by the Responsible Authority as posing a risk of serious harm to the public (but who did not fall within either of the other two categories, as defined by s. 67 (2b)

7

vii.

For each of the three categories of offenders covered by the MAPPA (‘registered sex offenders’, ‘violent and other sex offenders’ and ‘other offenders’), identify the number of offenders that are or have been dealt with by:

a) MAPPP – registered sex offenders

39

b) MAPPP – violent and other sex offenders

45

c) MAPPP – other offences

7

Public Protection Contacts
viii. Of these cases managed by the MAPPP during the reporting year what was the number of offenders The South Yorkshire Public Protection Unit Max Beatson Public Protection Manager e mail maxbeatson@south-yorkshire.probation.gsx.gov.uk Address Police Headquarters Snig Hill Sheffield S3 8LY Phone 0114 252 3703

a) who were returned to custody for breach of licence

17

b) who were returned to custody for breach of a Restraining Order or Sex Offender Order

0

The South Yorkshire Police Detective Superintendent Nick Kinsella nick.kinsella@southyorks.pnn.police.uk Police Head Quarters Snig Hill Sheffield S3 8LY 0114 220 2020

c) charged with a serious sexual or violent offence

1

Note 1: The number of sex offenders registered on the sex offender register at any one time is the cumulative result of new registrations since 1997. Sex offenders are required to remain on the register for differing periods of time, related to the sentence they received for the offence giving rise to the requirement to register.

The National Probation Service — South Yorkshire Julie Fox Assistant Chief Officer julie.fox@south-yorkshire.probation.gsx.gov.uk Head Office 45 Division Street Sheffield S1 4GE 0114 276 6911