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South Yorkshire

Multi-Agency Public Protection Arrangements

Annual Report 2002–3
Annex A
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 of two ‘lay advisers’ to each Area. cumulative. This is why they have
The eight Areas of England and increased – by 16 per cent in
This section of the report draws attention to wider Key to the development of the Wales which have been piloting England and Wales. Only a very
context of the operation and development of the Multi- MAPPA in the past year has been these arrangements since January small proportion (about six per cent
Agency Public Protection Arrangements (the MAPPA). the closer involvement of other (Cumbria, Greater Manchester, throughout England and Wales)
agencies, such as housing, health Durham, South Wales, Dorset, are considered to pose such a high
and social services, working Hampshire, Surrey and West risk or management difficulty that
The most important work undertaken within the alongside police and probation. Midlands) report that they add real they are referred to the highest
MAPPA is done locally, led by the police and probation – The truly multi-agency nature of the value. Lay advisers will contribute level of the MAPPA – the Multi-
MAPPA and the collaboration which to the review and monitoring of the Agency Public Protection Panels
who act jointly as the ‘Responsible Authority’ in your underpins it is to be strengthened MAPPA which is undertaken by (the MAPPP).
Area – and in each of the 42 Areas of England and further by the Criminal Justice Bill. each Area’s Strategic Management
Wales. The experience and good practice upon which The Bill will place a ‘duty to Board – the work of which you can Figures alone do not, of course,
co-operate’ on a wide range of read more in this report. tell the whole story. The anonymised
this work is based began in the 1990s – most organisations including local health case studies illustrate the practical
significantly as a result of the closer working relationship authorities and trusts; housing The purpose of appointing ‘lay work of the MAPPA, and
required by the Sex Offender Act (1997). The Criminal authorities and registered social advisers’ is to ensure that demonstrate the preventive action
landlords; social services communities understand more of which can be taken. Prior to the
Justice and Courts Services Act (2000) formalised departments; Jobcentres; Youth what is done to protect them and MAPPA, action of this kind was
that relationship and built on the existing experience Offending Teams; and local that those involved professionally mainly taken by one agency alone,
by requiring the police and probation services to education authorities. In addition, with the MAPPA are aware of the with the effect that on occasion
the Prison Service will join the views of the community. The lay offenders’ behaviour which might
establish arrangements (the MAPPA) for assessing police and probation services advisers will not ‘represent’ the have triggered preventative action
and managing the risks posed by sexual and violent and become part of the MAPPA community in the way, for example, went unnoticed. The multi-agency
offenders. The Act also required the Responsible ‘Responsible Authority’. that local councillors do, nor will approach of the MAPPA helps
they be involved in operational ensure that if an offender does
Authority to publish an annual report on the operation Supporting and co-ordinating the decision-making. And, given the breach the condition of the licence
of those arrangements. This report, covering April 2002 development of the MAPPA sensitivity of much of what the under which they were released
to March 2003, is the second annual report. throughout the 42 Areas of England MAPPA does, especially with the from prison or a court order
and Wales, is the National Probation few offenders who pose a very high prohibiting certain activities,
Directorate’s Public Protection Unit risk of serious harm to the public, then action to enforce the condition
(PPU). This Unit acts as a central it is not practicable for the general or order and protect the public can
point for advice and, increasingly, public to be involved. Lay advisers be taken more swiftly.
involvement in the management will, however, ensure an appropriate
of difficult cases. These include, and a practical level of community
for example, UK citizens who have involvement. If you are interested in reading the
committed serious offences abroad reports of other Areas, they will be
and return to this country without MAPPA Offenders published on the National Probation
anywhere to live. The Unit is also Service’s website
able to provide financial support This year the annual report provides
when the risk management plans a more detailed breakdown of the (under the public protection section)
make exceptional demands upon number of sexual and violent with all of them being available once
local resources. offenders who are covered by the the last Area has published its
MAPPA in your Area. As last year, annual report in September.
Involving the public the figures include the number of
registered sex offenders. Because
MAPPA developments in the next sex offender registration is for a
18 months will also include the minimum of 5 years (and generally
appointment by the Home Secretary for much longer) the figures are
1 Area Summary
1.2 The two services in South managed by the police required in order to protect the
Yorkshire fully support the and the probation service. public but great care is given
1.1 Sections 67 and 68 of the Criminal Justice creation of these duties and The aim of the unit is to stop to what is disclosed and to
and Court Services Act 2000 require the responsible have worked hard to make known dangerous offenders make sure disclosure is legal
authority (the chief of police and probation board arrangements which will be from committing serious harm and more likely to reduce the
effective in protecting the to further victims. It will do this risk to the public than increase
acting jointly) to establish multi-agency arrangements public. The local arrangements by working together and with the risk of harm.
for the assessment and management of dangerous developed have built upon and through other agencies
offenders. This legislation built upon previous laws existing arrangements already in South Yorkshire - local 1.6 Plans are created for all of the
established - the sex offender authority social services, highest risk of harm offenders.
designed to manage the risk presented by sexual risk assessment panels and the the health service, housing The plan must be specific,
and violent offenders. These include the Sex Offender probation service case-based services, and other relevant measurable, achievable,
Act 1997 for the registration of sex offenders and the interagency public protection organisations. The process realistic, and timely and
case conferences. The new of coordinating the relevant consider both internal and
Crime and Disorder Act 1998 providing the power arrangements are also agencies is to ensure that external controls. Internal
to make sex offender orders and extended sentences designed to complement other dangerous offenders in South controls include a schedule
for sexual or violent offenders. existing interagency networks Yorkshire are identified and of programmes that have been
for the protection of children assessed accurately and those proven to reduce re-offending
and other vulnerable people. assessed as representing provided by the probation
A good level of understanding a high risk of serious harm service. Structured
and co-operation has been are managed in such a way programmes are available for
achieved through meetings as to reduce those risks both offenders who commit
with the community safety to a minimum. Advice is sexual crimes, domestic
partnerships, area child provided to all referring violence offenders, and other
protection committees and agencies, and for those who violent offenders. The mental
lead agency managers from present the highest risk of health services and other
social services, mental health, harm the unit is responsible voluntary support organisations
and housing services. for arranging a multi agency provide assessment/treatment
public protection panel. and therapeutic counselling.
1.3 In April 2001 the Home Office
issued national guidance to all 1.7 All agencies involved in the
the 42 police and probation Public protection plans multi agency management of
areas in the UK outlining dangerous offenders provide
minimum requirements for the 1.5 Consideration of the benefits external controls. Monitoring
successful execution of the of disclosure of confidential a person’s behaviour at
new duties in Section 67 &68. information about offenders whatever level is an important
Every area had to create to potential victims, other mechanism for controlling
a system for the assessment organisations or the wider further offending. This can
and management of dangerous community is always a part vary from full scale police
offenders and a multi agency of public protection planning. surveillance operations to
public protection panel - However all agencies within intermittent monitoring
a MAPPP, to consider the the MAPPA (multi agency by the police, or by the
risks presented by the most public protection controls provided by a sex
dangerous. This applies only arrangements) recognise that offender order. A variety
to the “critical few” where serious thought must be given of other organisations provide
additional resources may to the delicate balance an effective monitoring role
be needed and a multi-agency between respecting a person’s including housing support
approach to assessment human rights and civil liberties services, social services and
and management of risk and protecting the public from mental health. These services
was required. further harm. Such disclosure work very successfully with
is restricted by and facilitated the police in the monitoring
1.4 Our first major initiative was by complex interwoven and detection of crime, and
to establish a joint public legislation. The MAPPA in communication between
protection unit, jointly funded, South Yorkshire recognises agencies is often facilitated
jointly staffed and jointly that disclosure is sometimes by the pivotal role of the public
protection unit. The probation As a result, Dr Chris Davis, ■ Intelligence sharing approach can ensure that no
service provides its own a clinical psychologist based information project – This is one becomes a further victim
mechanisms and powers within the NHS provides a local initiative to evaluate the of serious harm from a known
to monitor and manage psychology clinics across benefits of extending offender in South Yorkshire.
risk through supervision of South Yorkshire. Clinics are information sharing between
offenders and the appropriate offered twice a month, for half the police and probation This report will provide
use of breach of community a day in Barnsley, Doncaster service. The aim was to further details of those local
sentences and recalling the and Rotherham and for a full identify a group of “volume” arrangements and information
most dangerous offenders day in Sheffield. offenders on whom a range on how those arrangements
back to prison of information could be shared and those offenders will be
MAPPA cases appropriate for in order to reduce the risk of kept under review
1.8 New operational initiatives referral include: harm and re-offending. Many
2002- 2003 ● those involving violent of these offenders fell within
offending, sexual offending, the wider MAPPA responsibility
■ A multi agency public or other offending resulting under Section 68 of the CJ&CS
protection protocol for inter- in significant risk of harm 2000. A probation officer
agency information sharing such as arson. funded by the local community
and joint management of ● those identified as high risk safety partnerships was placed
sexual and violent offenders or where issues of risk in the public protection unit
has been agreed by the core assessment have proven to carry out a feasibility study.
partner agencies. The protocol difficult. The work of this project will 2 Roles and Responsibilities.
includes principles for ● offenders with known or inform the process of
information sharing for high suspected mental disorder implementation of *Narrowing 2.1 Many organisations have roles supervision are subjected to a are evidence of their commitment
risk offenders and procedures (i.e. mental illness, personality the Justice Gap proposals. and duties that include within detailed risk analysis; all those who to inter-agency working. Their
for referring very high risk of disorder and learning them elements of public are assessed as a very high risk intelligence and detection work, and
harm offenders to the MAPPP. difficulties) requiring further ■ Regional MAPPA - A forum protection. of serious harm are referred to the the information gathered through it,
assessment of psychological has been created for police MAPPP. However other offenders coupled with the probation service’s
■ A.I.M.- assessment issues or specific and probation representatives within the MAPPA who are assessed statutory authority for supervising
psychological treatment. from West Yorkshire, North
MAPPA partnership agencies
intervention model provides as a lower risk will also be managed offenders, make them vital core
an effective form of Yorkshire, South Yorkshire by a multi-agency liaison in the form partners in public protection. The
The National Probation Service,
assessment for young people Some offenders have and Humberside. The purpose of joint work or risk concern police have been active in their
South Yorkshire
who commit sexual offences. presented with symptoms of this forum will be to ensure meetings or sex offender panels contribution to MAPPPs,
The probation service is responsible
All the South Yorkshire youth often associated with major that information about a recognising that they provide an
for supervising all offenders on
offending teams have been mental illness, such as dangerous offender is quickly If required by the MAPPP the invaluable forum for the collection of
release licence from prison following
trained to use this model, schizophrenia. Perhaps not and easily transferred from probation service in South Yorkshire information about offenders for the
a 12 months or more prison
which is based on research surprisingly, another prominent one area to another, offers voluntary supervision to very detection of further crime. As well
sentence. On release from prison
and clinical judgement. feature of those clients referred and to establish a consistent high risk of harm offenders, beyond as monitoring and surveillance work
the probation service has statutory
This has provided us with to the clinic is that of major approach to the effective the completion of their compulsory the police have become proactive in
responsibility for all those that
a consistent and more personality difficulties often of management of the highest supervision. In some cases this has seeking sex offender orders and
lie within the wider MAPPA
accurate approach to young a nature and degree indicative risk offenders proved to be a valuable resource have been successful on every
responsibility as outlined in section
offenders in analysing the risks of personality disorder Our aspiration and extremely effective in providing occasion in the courts.
68 CJ&CS Act 2000.
they present to the public support and guidance, to prevent
■ Partnership with ■ South Yorkshire Police 1.9. It is recognised that human further offending and further victims. For the highest risk sex offenders
It also supervises adult offenders
psychological health disclosure policy – the policy behaviour is not easily the police make referrals from the
in the community who are on
Since October 2003 a new has been revised to take predicted but effective joint sex offender panels that manage
community orders, of which there
partnership has been account of the new duty for working has taught us that South Yorkshire Police the sex offenders register, providing
are several. Through this work it
developed between the the police and probation someone, somewhere has The police are responsible for the a valuable inter-agency link for the
aims to protect the public from
National Probation Service service within Section 67 the right information. prevention and detection of crime, effective control of these offenders.
harm, rehabilitate and resettle
in South Yorkshire, and CJ & CS Act 2000. Our aspiration is that an and the maintenance of public order
offenders, administer firm and fair
Psychological Health Sheffield. organised multi agency punishment and promote and meet and community safety. Prisons
the needs of victims. Much of its Their contributions to inter-agency The prisons play a vital role in post
work requires an inter-agency initiatives such as youth offender sentence planning and resettlement
approach, to which it is fully teams, crime prevention projects of offenders within the MAPPA.
committed. All offenders under and the public protection unit itself Both the police and the probation
* 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
service have effective formal liaison almost always more dangerous to the management of dangerous and the probation service. ● convenes multi-agency public The outcome was positive
with prison staff and the MAPPA if they feel excluded from the behaviour and through the interface Based in Sheffield West Bar protection panels and encouraging. Whilst issues
have built upon these existing community through homelessness. between the Care Programme police station, it is staffed by ● quality controls action plans for where identified for future
structures. Every prisoner Housing departments have a vital approach and the MAPPA. The Care ● the public protection manager high risk offenders. development, all the agencies
undergoes a detailed risk role to play in protecting the public Programme approach makes tiered - a senior probation officer ● Maintains a MAPPP register involved were committed
assessment whist in custody. and are often able to contribute to provision for those discharged from seconded from the probation of the highest risk offenders. to MAPPPs and considered
This process will identify those public protection plans by the hospital care who represent a service ● co-ordinates sex offender risk that MAPPA played a vital role
offenders who present a serious provision of accommodation, when continuing risk to themselves and ● a public protection officer – assessment panels in the effective management
risk of harm on release. In addition this is integrated with supervision, others and the MAPPA provides a a police officer with experience ● provides limited selected of dangerous offenders.
to assessment the prisons provide monitoring and treatment that other higher forum for inter-agency of work in the sexual offences intelligence work
offending behaviour treatment partners provide. The housing planning for those who present the unit of South Yorkshire Police ● establishes MAPPA regional
programmes, including sex offender services work closely with other highest risk. The mental health ● the unit administrator – and national links Publicity
programmes, alcohol education housing providers and probation services in South Yorkshire provide a police intelligence assistant ● provides public protection
and anger management. service approved premises (hostels) consistent support and positive training to MAPPA partners 2.7 The public protection unit has
Prison staff contribute to managing in order to provide an effective contributions to MAPPPs both 2.3 The unit is responsible for the ● identifies further developments been active in advertising the
an offender’s behaviour within accommodation package for a in the form of managerial support co-ordination of all the other and co-ordinates the role of the unit and the legal
the community by sharing gradual reintegration of an offender and clinical advice. agencies within the MAPPA implementation of changes duty to assess and manage
information with the MAPPA back into the local community. protocol and the management high risk of harm offenders.
partner agencies. The prisons Other agencies of MAPPPs. Its primary Review of multi-agency A leaflet has been published
make a valuable contribution Youth offending services The above descriptions of the roles objective is to ensure that involvement outlining the legal framework,
to inter-agency initiatives, crime Multi-agency working with young of agencies in public protection are those assessed as the procedures and the referral
prevention projects and are a vital offenders is already an example of a far from exclusive. They cover only representing significant risks of 2.5 The investment last year process; this has been
core partner in public protection. model that brings together the skills those agencies that presently causing serious harm are to secure multi-agency distributed to all relevant
and knowledge of different agencies constitute the core membership managed in such a way as to involvement through agencies across South
to tackle youth crime and protect of local South Yorkshire multi- reduce those risks to a consultation with the area Yorkshire. A MAPPA poster has
Local authority social services the public. Youth offending teams agency public protection panels. minimum. The unit itself is not community safety partnerships, also been designed with the
departments are responsible for the supervision Many other agencies and individuals responsible for the operational the area child protection intention of ensuring that all
These departments provide services of 10 to 17 year olds. Though more have important and valuable management of offenders, but committees and meetings with relevant personnel have access
to children in need and to their often prolific than serious, youth contributions to make in protecting for helping and ensuring that heads of agencies has been to the PPU contact details,
families, older people, disabled offending teams will sometimes deal the public from the most dangerous others do so in a consistent, positive and effective. This has thus ensuring that contact will
people and those with mental health with offenders who represent high offenders. – and DO make them – effective and defensible way. resulted in all agencies be made with the PPU if a
needs. They have a particular role risks of causing serious harm, and such as The unit now has an agreed becoming actively involved multi-agency response to
in their work through area child their youth can often exacerbate ● education services, multi-agency protocol and has in the MAPPA through the managing risk is required
protection committees, where the some of the difficulties in providing ● employment service established a strategic coordinating function of the
new public protection procedures effective supervision. The YOT have ● drug and alcohol counselling advisory group. The public protection unit. All core Seminars and presentations
complement existing procedures made appropriate and effective services arrangements in South agencies have welcomed the
that focus upon the risks faced referrals to the MAPPA this year ● housing associations Yorkshire operate smoothly, opportunity to work together 2.8 The PPU continues to provide
by particular children. The social to ensure that these cases are ● domestic abuse support consistently and effectively. with dangerous offenders presentations and seminars
services in South Yorkshire are fully managed to reduce the risks to the services and the last year has shown to all relevant staff in South
committed to active participation in public to an absolute minimum. ● NSPCC 2.4 In co-ordinating the a growing confidence Yorkshire in order to secure
MAPPA, having a particular regard ● Junction Project- Barnados. arrangements in South and trust between agencies. the co-operation of managers
to the welfare of children and other Mental health service Yorkshire, the public protection and other staff members.
vulnerable adults, particularly for The police and the probation service These agencies are therefore invited unit 2.6 Every MAPPP in South It is considered essential that
those with learning difficulties and other agencies need the advice to be a part of a multi-agency public ● receives preliminary Yorkshire - Doncaster, other agency workers fully
Social services staff attend MAPPPs of the health professionals on the protection panel when appropriate, assessments from all partner Barnsley, Sheffield, and understand the legislative
regularly recognising that it is an appropriateness of health provision on a case by case basis: agencies of potentially Rotherham - has undergone requirements to assess and
important forum for obtaining with high risk of harm offenders. dangerous offenders a review process. The review manage the risks presented
information about a dangerous The mental health services are Public protection unit was conducted to assess if the by dangerous offenders, the
offender, so that further victims important contributors to public ■ advises upon the appropriate local MAPPPs were effective role of the unit in South
can be protected. safety through sharing their 2.2 This unit has now been arrangements for multi-agency in reducing further offending Yorkshire, and how to access
psychological and psychiatric operational for 18 months. It is information sharing, and protecting the public, and the local procedures.
Local authority housing services assessment skills, through the the MAPPA joint authority as a assessment and case if improvements were required
Potentially dangerous offenders are contributions they can make partnership between the police management to reinforce our practice.
2.9 Seminars have been provided Multi-agency training multi-agency training not only 3.6 The public protection unit through the sex offender risk seven other offenders, mostly
for social services team provides the opportunity for retains and manages a record assessment panels. This is convicted of arson.
managers, housing services 2.11 Training is an important increasing knowledge but also of all those that have been encouraging early evidence
managers, housing providers, component of South provides a very effective forum reviewed by a MAPPP; that the initiatives to broaden 3.11 A consideration of the profile
police community safety Yorkshire’s approach to public for networking, improving our registers those currently accessibility to the of offenders who have been
officers, Wathwood High protection. Successful training approach to communication assessed as representing arrangements are bearing fruit. considered by the MAPPP
Secure Unit, mental health events and conferences have and ensuring a successful a high risk of serious harm; There are also many other informs us that
professionals. been organised and delivered partnership to protecting the monitors outcomes and the enquiries from all partner ● 90% of dangerous offenders
this year, including assessing public. implementation of public agencies to the PPU that are are male,
2.10 Multi-agency liaison will young offenders who commit protection plans; and to share information or for risk ● approximately 90% are over 18
continue to be a major function sexual abuse; ‘To Disclose or A training plan has been devised for co-ordinates the review of assessment and advice ● 90% are white.
of the public protection unit, Not to Disclose’; internet 2003- 2004. Proposed events are: registered cases. regarding potentially dangerous High risk of harm offenders
training is offered to all partner crime; new developments in ● risk assessment of adult and offenders. appear to be representative of
agencies to improve our working effectively with sex younger sex offenders 3.7 Cases will be reviewed at a the larger offender population,
practice with risk assessment offenders. ● sex offender orders- successful frequency adjudged necessary 3.9 The role of the PPU as an in terms of gender and race.
of domestic abuse offenders, Local experience of hosting applications by the original MAPPP, informal resource for case However closer analyses of the
sex offenders and other violent such events has shown that ● suspect interview training but not less than four monthly. discussion and liaison is age of the offenders inform us
offenders An offender may only be growing. As the unit becomes that the majority are over 30
removed from the register more widely known and as years of age. Thus whilst risk
as a result of a decision knowledge and understanding of re-offending is normally
by the relevant MAPPP. of the arrangements extends related to youth crime, those
further, it is expected that responsible for committing
3.8 This year 72% of referrals to the profile of referring agencies serious harm are often more
the public protection unit were will broaden. mature.
3 The Operation of MAPPA received from the probation
service. As the agency with 3.10 The MAPPPs considered 91 3.12 Effective MAPPP practice
3.1 Every agency within the such referrals has been 3.4 Each borough in South the primary responsibility for new cases from the 1st April 2002-2003 - the panels
MAPPA has it own lower implemented. Such referrals Yorkshire now has a core panel the supervision of offenders in 2002 up to 31st March 2003.
tier risk assessment panels. will normally arise after the of MAPPP members from the community, this is not Of these, 39 were cases MAPPPs can and do make
These include mental health exhaustion of an agency’s social services, mental health, surprising and is wholly of sex offenders already on the a difference to reducing the
community care planning internal risk management housing services, police and appropriate. There has been sex offender register, 43 were potential risk of harm to the
meetings, social services child procedures and will always probation service. Additional an increasing use of the PPU cases of violent offenders public. Below are two
protection strategy meetings; come through a designated agencies are invited if involved and the MAPPPs by the mental and two were sex offenders examples of harm reduction:
police sex offender risk service manager. with the case. The district core health services and the police, not on the register. There were
assessment panels and panels have a schedule of
probation service risk concern 3.3 Within the police and probation monthly meetings throughout
meetings. A lower tier risk services, all sex offenders are the year and emergency good practice Gary, aged 48, was convicted of sexual assaults against young children.
concern meeting can also assessed using a validated meetings are convened if effective intervention and He had previous similar offences and was sentenced to 30 months in prison
be facilitated by the PPU assessment instrument required. with an extended sentence under Section 58 C&D Act 1998, providing three
for potentially high-risk (Thornton’s Matrix 2000),
Gary years additional supervision by the probation service and placed on the sex
offenders if required. Cases will for which training has been 3.5 Each MAPPP in each district is offender register. Just prior to his release from prison he was referred to a
be reviewed in these forums provided. The assessment now convened and conducted
MAPPP to consider the risk he presented to the public and how to manage
before referral to the PPU for of all offenders within the using the MAPPP procedural
the risk effectively. The MAPPP agreed that Gary presented as a high risk
a MAPPP for the very high prisons and the probation manual. This manual includes
risk of harm offenders. service will be conducted using standardised letters of of harm to children, and in order to manage the risk effectively he was
the assessment “tool” OASys invitation, referral forms and accommodated in a probation service hostel where he was required
3.2 Referrals of offenders who (Offender Assessment System). a standard MAPPP agenda. to report to staff every day. He had learning difficulties and was required
have been assessed within Other agencies have their A plan must be completed for to attend the special needs group for sex offenders. He has attended
individual agencies, as own risk assessment tools all offenders assessed as very as required, he has kept all the hostel rules, and he has started to accept
dangerous, are made to the in order to undertake detailed high risk of serious harm. that he is a risk to children and to take responsibility for his behaviour.
public protection unit for risk analysis before referral Accommodation has now been found for him outside the hostel, with
advice and further assessment. to the PPU appropriate support from the learning disabilities mental health team
A standard format for making and social services. He continues to be managed closely by the police
through the sex offender register and the MAPPP.
Effective internal controls to increase their understanding 3.17 A programme for other violent
of their offending and provide offenders – called Focus on
good practice James has a long history of violent offences against adults. He was most
3.12 The National Probation Service them with strategies for Violence – was available until
fast tracking mentally recently sentenced to four years custody for an offence of kidnapping. It was reducing the likelihood of April 2003. 29 Offenders
in South Yorkshire provides
disordered offenders reported by his probation officer that whilst in prison, he started to exhibit re-offending. The six members completed this from January
a full schedule of offender
James worrying behaviours, including hyperactivity, paranoia, verbally abusing programmes. Some of these at the moment have a variety 2002 to April 2003. CALM
others and self harming. In preparation for his release a MAPPP was called programmes already have of learning difficulties and have (A prison based programme)
to consider the risks involved and to design a plan to manage him in the been proven to reduce committed offences against is subject to accreditation
community. As a result of the information provided, the MAPPP requested re-offending. Others are based children and adults. The group status by the National
an immediate assessment by two psychiatrists. Within two weeks James upon principles derived from has proved to be successful in Accreditation Panel and may
was assessed as being mentally ill under the Mental Health Act and was evidence, implemented monitoring behaviour and has be available to South Yorkshire
quickly transferred to a secure hospital for treatment. James is still under the rigorously, and continuously been instrumental in reducing at the end of 2003.
care of the mental health services and is receiving the treatment he requires. researched in order to risk to the public.
demonstrate and improve
their efficacy. Effectiveness Effective external controls
Although the MAPPPs manage
the most high risk offenders the 3.13 Between March 2002 - 2003, 3.15 A partnership with 3.18 In order to manage high risk
majority of MAPPA cases within 45 sex offenders completed Psychological Health Sheffield of harm offenders effectively
the legislation are managed through the Intensive Assessment has provided the analysis the probation service strictly
normal agency provision programme, 50 completed of psychometric tests to enforces national standards
and by interagency agency liaison. the core treatment programme demonstrate the effectiveness for prison licence conditions
The cases below highlight this and seven completed the of the programme in changing and community sentences.
Special Needs programme. attitudes and behaviour If any offender does not report
Effective MAPPA practice - relating to sex offending. as required or fails to comply
normal agency provision 3.13 South Yorkshire has now National teams of forensic with any of the conditions in
started to deliver an accredited psychologists will complete his licence or community
sex offender programme, the evaluation of the sentence they will be quickly
the Northumberland Model accredited programme returned to court for breach
key agency David is 21 years old, has been convicted of grievous bodily harm and just (N-SOG). The entry point and this is ongoing. proceedings or recalled
probation supervision completed a three-year prison sentence. He is released from prison under into the community-based to prison.
the supervision of the probation service, he is assessed as potentially treatment takes into account 3.16 A structured group programme
David the assessment of risk and is available for domestic 3.19 The police manage the sex
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 deviance, and the level of violence perpetrators in South offender register and they
denial. The programme has Yorkshire. The programme is strictly monitor compliance
where approved and to undertake suitable treatment and not to contact his
two components. Offenders designed to consider the with registration. Failure to
previous victim. He is now living in supported accommodation, he is
assessed as high risk/ offender’s attitudes to violence register will result in arrest
attending the focus on violence group and he is reporting regularly to see deviancy will attend the core within relationships and to their and prosecution. Compliance
his probation officer. His progress is positive and encouraging. group programme of 144 hours partners. Running parallel to in South Yorkshire with
treatment followed by the this is a support service for registration is excellent.
relapse prevention programme partner/ex-partners of For some high risk of harm
of 36 hours treatment. offenders, which provides offenders the police will seek
key agency Sara has previously been convicted of a number of violent offences. Offenders released from information about the a sex offender order (under
mental health care She was released from prison one year ago following a three-year sentence prison will follow similar routes programme, makes an C & D Act 1998). Such
for arson. Her prison licence period is now complete and she is no longer according to their assessment assessment about their safety, an order can prohibit sex
Sara of risk and deviance. refers them on to appropriate offenders from frequenting
under supervision from the probation service. She has an anti-social
personality disorder and is currently receiving treatment from the mental services if desired. The certain places such as parks
health assertive outreach team. Her behaviour has become increasingly Special needs group programme ran seven times and recreational facilities.
between January 2002 and These orders are becoming
bizarre in recent months; the police have been called out by neighbours
3.14 A partnership with Community March 2003, and 41 offenders increasingly successful in
on almost a daily basis to assist in controlling her actions. The mental completed it. providing additional controls
Health Sheffield has provided
health services consulted the PPU asking for help and advice. Whist Sara the resource for treating sex for protecting the public.
does have the potential for causing serious harm she is not considered offenders with learning
to be a very high risk offender. The PPU have therefore facilitated difficulties. The groups seek
“risk concern” meetings for the police and mental health service so they
can work together more effectively to manage her in the community.
3.20 The police are expected to visit 3.21 A pilot scheme is currently managers from police, social Example of Disclosure
each registered offender every underway in respect of sex services and the probation
12 months and having located offenders who are coming to service. The panels are
that offender a new registration the end of their custodial responsible for reviewing the good practice Mark is 58 years old. He has a number of previous convictions for both
form is then completed. Where sentence. A police officer and risk presented by all registered disclosure sexual and violent offences. He is subject to sex offender registration but
there is cause for concern the a probation officer conduct a offenders. Any offender no longer under the supervision of the probation service. The police report
offenders will be visited more joint visit to the offender in considered to be high risk
that he is living quite close to a local school and there have been
regularly. Such visits can be prison so that a profile of the must have an action plan to
complaints from the school children that a man of his description has
helpful in checking the offender can be compiled at manage the risks identified
offered them money and sweets to come into his house. The police
geographical location of the the earliest possible and will sometimes be referred
offender’s home, in order to opportunity. to a MAPPP for more detailed request a MAPPP and it is agreed that he will be offered alternative,
find out whether there are any consideration. Outlined below more suitable accommodation and the police will seek a sex offender
schools or parks etc in the 3.22 Sex offender risk assessment is an example of effective order prohibiting him from having unsupervised access to children.
vicinity. panels are organised by the police practice. Disclosure is made to both the school and the local youth club regarding
police and are attended by Mark’s offences and the risk he presents to children.

3.25 There have been no cases

good practice Karl is 19 years old. He has recently served a two-year sentence for
this year in which a MAPPP
police indecent assaults on children. On release from prison he is subject to sex
has concluded that a
Karl offender registration and he returns to live with his family. The local widespread disclosure to the
community is aware of his offences and very concerned about him living in general public was necessary,
their community, where he has access to local children. As a consequence or would be effective in order
of this, threats of violence and revenge have been made towards him. The to protect the public.
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.
4 Strategic Advisory Arrangements
4.1 This group has now been intelligence for South Yorkshire ● an independent member from
expanded to include Police the University of Sheffield
Disclosure representatives of all the key ● a service manager from social with experience and expertise
agencies. A constitution has services in the management of risk.
3.23 It is recognised by MAPPPs information should be further might the information
been drawn up for consultation ● a service manager from
in South Yorkshire that disclosed. go once disclosed?
through community safety housing services 4.2 The role of the group is to
disclosure is sometimes ● What is the risk of harm and
partnerships and with core ● a mental health services oversee the arrangements in
necessary in order to protect 3.24 Certain principles must be the nature of that harm that
MAPPP members. The first manager South Yorkshire for sharing
the public from harm. It is clear considered in order to achieve might follow from disclosure?
meeting took place early this ● divisional manager for youth information and managing risks
that while disclosure is a the delicate balance between ● What is the risk of harm and
year. The advisory group will offending teams posed by dangerous offenders.
necessary part of public public protection and human the nature of that harm that
meet at least twice a year, ● a manager from a prison that The group will receive reports
protection, it can also rights. The guidelines for the might follow from non
chaired by the independent receives a high proportion of form the public protection
sometimes exacerbate MAPPA in South Yorkshire are disclosure?
member from the University offenders form South Yorkshire manager, advise on the content
the dangers involved. ● What is the purpose of ● Will the disclosure achieve
of Sheffield. ● a manager from the South and publication of the annual
The detail of any proposed disclosure? its purpose and in doing
Yorkshire Victim Support report and the development
disclosure of confidential ● Is the disclosure necessary so will it prevent more harm
The group is composed of Scheme of the public protection unit
information by MAPPPs is in the interests of justice? than it causes?
● the assistant chief officer ● a community safety officer and promote the arrangements
always accompanied by advice Is it legal? ● Is the public interest so great
of probation with responsibility from one of the South from the sector from which
about who should undertake ● To whom is the disclosure to as to override the presumption
for public protection Yorkshire community safety each member has been
the disclosure and to whom be made and how much of confidentiality?
● the director of force partnerships appointed.
5 Work with Victims 5.6 Timely contact is linked to
a funding linked target. (Within
to be a major area of liaison
work and, since January 2003,
eight weeks of sentence) has started to operate well
5.1 Since the mid-1990s the 5.3 As a result of the extension the process of licence and and is determined by the with the majority of victims
probation service has had a of the provisions, the probation parole. Victims may choose speed with which the police being contacted within the
responsibility to contact the service in South Yorkshire for an ongoing flow disclose the victim’s details. required timescale.
victims of certain serious centralised its victim contact of information throughout This has been and continues
sexual and violent offences, work by forming a dedicated the sentence although
where the offenders were victim unit. This has now been a few choose to put the
serving longer periods in operating for 18 months and trauma behind them and to let
custody. The purpose of this has expanded to comprise a the process proceed without
contact is to keep victims part-time manager, 3.2 victim further communication.
informed about the progress liaison officers and two Victims who want to be kept
of the offender through the administration officers. informed are notified when 6 Statistical Information
prison system and about the Its administrative and release arrangements are
generality of the arrangements managerial centre is based under consideration. Their 6.1 Appendix A provides statistical MAPPP plans, intensive the coming year.
for release. It also provides an in the Sheffield Crown Court views cannot affect whether information about sexual, supervision and police 6.6 There is a very high level of
avenue through which account building while the victim liaison or not an offender is released violent and other dangerous monitoring, there are currently compliance with sex offender
can be taken of the victims’ officers work with victims from from a fixed term sentence offenders (Sections 67 & 68 35 cases that are under registration in South Yorkshire.
views about release sites across the county. but they may affect the of the Act). MAPPP high risk review. This This year there have only been
arrangements. conditions attached to that figure is three per cent two breaches of the
5.4 The scale of victim work has release. A licence may, for of the MAPPA population requirement to register. There
5.2 Section 69 of the Criminal almost doubled and over 100 example, include restrictions
Observations and comments
on statistical data and it is therefore feasible is no doubt that the high level
Justice and Court Services Act victims are contacted every on an offender’s mobility to provide intensive monitoring of compliance is due to the
2000 extends these provisions quarter. Victim details are to keep them away from the and support to reduce the role of the sex offender panels
and puts them on a statutory received from the police and victim’s home area. 6.2 In total there were 1,183
offenders who fell within the risks identified. and the proactive policing
footing. They now apply to the as soon as the details arrive, methods described above.
victims of all sexual and violent an introductory letter is sent 5.5 The victim unit is notified MAPPA in South Yorkshire in
2002- 2003 as outlined in the 6.4 This year the police have
offences where the offender is to all known victims for each of every MAPPP meeting started to use sex offender 6.7 Recalling high risk offenders
sentenced to 12 months or relevant case. Victim liaison and is invited to those where Criminal Justice and Court
Services Act 2000 section 67 & orders appropriately and to prison has been used
more in custody. There is a officers help victims to there is contact with victims. effectively. Four successful effectively by the probation
discretionary power to include understand how prison A public protection plan will 68. This includes the number
of sex offenders on the register applications have been made service. Recall is usually
other selected cases within sentences work and always consider how to inform to the court and there are instigated because of a breach
the provisions. information is provided about and safeguard the victim. – 577 - and the number of
violent and other sexual a number of cases pending. of licence conditions, which
offenders sentenced to over 12 The police are now able to will result in an increase and
months imprisonment - 606. apply for interim sex offender unacceptable risk to future
orders and this should assist victims. When the prisoners are
good practice Jim is a high risk of harm offender who threatened that he would make
6.3 Of the 1,183, 91 offenders enormously in the speed re-released following recall it is
victim liaison contact with his victim on release from prison. In order to reduce the risk to of processing an application. normal practice to reconvene a
have been assessed by the
Jim the victim as much as possible the MAPPP agreed that the offender would Further training is planned MAPPP in order to manage the
South Yorkshire multi agency
be released to live in a hostel some distance away from the area where the public protection panels, to improve knowledge across risks presented.
victim lived, where he would be closely supervised and a programme of approximately seven per cent the force.
work was agreed. Police surveillance was set up, the licence conditions of the total MAPPA population 6.8 In the last year, out of the 91
stated that he must stay away from the area where the victim lived and he during 2002-2003. This 6.5 Section 66 Restraining Orders offenders considered by the
was to make no contact with the victim or any member of the family. It was represents the “critical few” CJ & CS Act 2000 can put MAPPP, only one high risk
agreed that the victim’s parents would be informed of the licence conditions dangerous offenders. However, further restrictions on sex offender has committed a
risk of harm varies from time to offenders sentenced to further serious crime. He has
and advised to contact the police if the offender was seen. The threats were
time and can be managed to imprisonment. The South now been dealt with by the
not disclosed for fear of alarming the family and preventing them getting on
reduce the harm to the public. Yorkshire courts have not used criminal justice system and is
with their daily lives. them this year. This is definitely now in prison.
As a result of inter-agency
liaison, strict adherence to an area for improvement for
Appendix A Information No. of Offenders

7 Conclusion i. The number of registered sex offenders on 31 March 2003 577

7.1 This report identifies much 7.2 Questions about the availability
genuine and effective inter- and allocation of resources for ii. The number of sex offenders having a registration requirements who 2
agency co-operation in the the effective management of were either cautioned or convicted for breaches of the requirement
task of assessing and dangerous offenders will between 1 April 2002 and 31 March 2003
managing the risk of undoubtedly arise. There will
dangerous offenders and be a continuing need to work
reducing the fear of crime. co-operatively, to fully engage iii. The number of Sex Offenders Orders applied for and gained between
The second year of all relevant agencies and to 1 April 2002 and 31 March 2003
implementing the new increase the knowledge,
arrangements has seen a understanding and skill of a) The total number of Sex Offender Orders applied for 4
marked improvement in the professionals in order to better
management of risk with protect the public of South
regard to consistency and Yorkshire from the harm that b) The total number granted 4
quality of the plans to manage might be inflicted by the most
risk. The public protection unit dangerous members of our
is now well established with community. c) The total number not granted 0
numerous links across South
Yorkshire and with all the Shelly Scott April 2003
relevant agencies. The unit is iv. The number of Restraining Orders issued by the courts between 0
now confident about its 1 April 2002 and 31 March 2003 for offenders currently managed
approach to the complex within MAPPA
issues relating to disclosure
of information and provides
advice to all MAPPA agencies v. The number of violent and other sexual offenders considered under 606
on this issue. We have also MAPPA during the year 1 April 2002 and 31 March 2003
become increasingly expert in (as defined by section 68 (3), (4) and (5)
the area of risk assessment.
The MAPPPs have a consistent
approach to risk analysis and vi. The number of ‘other offenders’ dealt with under MAPPA during the 7
use the research based year1 April 2002 and 31 March 2003 as being assessed by the
actuarial tools to good effect. 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)

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 The South Yorkshire Public Protection Unit Address Phone
what was the number of offenders
Max Beatson Police Headquarters 0114 252 3703
Public Protection Manager Snig Hill
a) who were returned to custody for breach of licence 17 e mail Sheffield
S3 8LY

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

or Sex Offender Order 0
The South Yorkshire Police

c) charged with a serious sexual or violent offence 1 Detective Superintendent Nick Kinsella Police Head Quarters 0114 220 2020 Snig Hill
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. S3 8LY
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 Head Office 0114 276 6911

Assistant Chief Officer 45 Division Street Sheffield
S1 4GE