Protecting our Communities in Staffordshire (inc.

Stoke-on-Trent)

MAPPA

Annual Report 2003–04 MAPPA: Managing Risk for Us All

MAPPA - PROTECTING OUR COMMUNITIES

Protecting our Communities in Staffordshire (inc. Stoke-on-Trent)

Staffordshire

MAPPA

H.M. PRISON SERVICE

MAPPA - PROTECTING OUR COMMUNITIES
So, what is MAPPA?
It stands for 'Multi-Agency Public Protection Arrangements'. These were set up in 2001 across the country to provide a firm statutory basis for the work the police and probation services jointly undertake to protect the public from sexual and violent offenders, with a number of other local agencies involved. From the start of April 2004 the Prison Service became the third 'responsible authority' alongside the Police and Probation services. This recognises the very important role within the MAPPA that is already played by the Prison Service and will provide even greater scope for effective multi-agency public protection. Put simply, MAPPA is a truly multi-agency approach to protecting our communities against dangerous sexual and violent offenders.

What is in this report then?
Ø Foreword Ø Introductory letter - Paul Goggins Home Office Ø Staffordshire area summary Ø Helping victims of crime Ø Key issues l Community notification and disclosure l Risk assessment l Working with sex offenders Ø Case studies Ø In the world of MAPPA, spend a day with… l A police risk assessor l A victim liaison officer l A probation officer Ø Facts and figures Ø Contact points Page 2 Page 3 Page 4 Page 8 Page 10 Page 10 Page 11 Page 12 Page 13 Page 14 Page 14 Page 15 Page 16 Page 17 Page 18

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
Who runs MAPPA in S taffordshire?
We are pleased to present the third annual report about the work of MAPPA in Staffordshire. The publication of this report is a significant event, since it addresses the management of violent, sexual and dangerous offenders - a group of people who understandably cause the public great concern. Over the past year in Staffordshire, we are confident that our achievement of a 98.72% success rate in ensuring registered sex offenders comply with their registration requirements has contributed to making the county a safer place in which to live. In response to the challenge to deliver the very best protection to the public in Staffordshire, there has been a large increase in the volume of resources and staff from the agencies contributing to MAPPA in the past year. This level of commitment has enabled MAPPA to work more closely with victims of sexual and violent crimes to reduce the risk of re-offending, with the re-offending rates in the county being very low. Along with extra resources, new developments such as the 'duty to co-operate' now imposed on partner agencies and the Prison Service becoming a 'responsible authority' alongside Staffordshire Police and the Probation Service will further develop the ability of MAPPA to protect our communities. Throughout this report the commitment of the agencies contributing to MAPPA is in evidence as we continue to work together with victims and offenders to manage risk for us all. We hope that you will find it both interesting and informative.

MAPPA

Chief Constable J.W. Giffard
CBE QPM DL BA(Hons)

Chief Officer Staffordshire Probation Area Mr R Mandley
MSc; MA; BA (Hons), CQSW

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
So what does MAPPA do then?
In Staffordshire and Stoke-on-Trent, it was recognised several years prior to the introduction of the statutory obligation to set up MAPPA in 2000 that a multi-agency approach to protect our communities was required. The Sex Offenders Act in 1997 first provided a formal definition of 'registered sex offenders'. In light of this, Staffordshire Police and other agencies in Staffordshire and Stoke-on-Trent came together and established arrangements for the assessment and management of sex offenders. A robust system of regular visits to registered sex offenders was commenced, with the registration and supervision process being operated by the police. Staffordshire Police continues to maintain its excellent record in enforcing registration, with 98.72% of those who should register fully complying with the requirement and continuing to be at their registered addresses. In the past year, 10 have been pursued and prosecuted for failing to comply. As a result of these figures, we can confidently state that Staffordshire is a very safe place in which to live. A vital part of the work done through MAPPA are the regular risk assessment meetings, where the danger posed to people by each offender is assessed and a course of action is agreed for the various agencies to take to minimise this risk. Each action plan is then reviewed at regular intervals to gauge how effective the interventions have been. In the very few cases where monitoring of sex offenders might indicate a return to offending behaviour, evidence is gathered of activities linked to the risk of re-offending and sex offender orders are secured. In Staffordshire and Stoke-on-Trent, such cases are rare, with only five offenders having current sex offender orders placing restrictions on their behaviour. Offenders who breach these orders normally face custodial sentences and in 2003-04 no breaches have been prosecuted in the county, although two offenders were returned to custody for breaching their licences. These numbers are very small and highlight the fact that, although sex offenders pose a risk to our communities, MAPPA in Staffordshire and Stoke-on-Trent manages that risk effectively.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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How high are the risks to our communities?
MultiAgency Protection Panel Management

Local Multi-Agency Management

The pyramid to the left shows the 'three levels of risk' posed by offenders and how they are managed through MAPPA. The emphasis is on focussing resources and effort towards managing the few offenders deemed to be a 'high risk' to give the best possible levels of protection to the communities of Staffordshire and Stoke-on-Trent.

Local Single Agency Management

Who is it that participate in MAPPA?
STAFFORDSHIRE POLICE
The police take immediate action to deal with people who present a high risk to the public and where appropriate this is followed up with a referral to the Public Protection Unit (PPU) for a multi-agency response. Throughout the county, dedicated officers monitor and manage sex offenders - this includes visiting offenders, gathering intelligence and taking positive action to protect local communities in response to such intelligence.

STAFFORDSHIRE PROBATION AREA
The probation service supervises most of the offenders dealt with through MAPPA. It has a responsibility to reduce the risk of re-offending, thereby reducing the risk of serious harm to the public. Offenders assessed as posing the highest risk will be referred to the PPU.

THE PRISON SERVICE
Now a statutory partner in MAPPA, the prison service has been involved in drawing up protocols concerning the management of potentially dangerous offenders and their release from custody. Whilst in prison, sex and violent offenders have access to programmes that have received national accreditation and are designed to lower the risk of re-offending when they are released from prison. The prison service also assist with the planning and management around the release of persons posing a risk to the public. In specific cases, prison service staff attend MAPPA panel meetings in the area to which persons are to be released.

MAPPA

H.M. PRISON SERVICE

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
STAFFORDSHIRE COUNTY COUNCIL EDUCATION AND LIFE LONG LEARNING DIRECTORATE and STOKE-ON-TRENT CITY COUNCIL LOCAL EDUCATION AUTHORITY
The education departments are heavily involved in the arrangements for identifying and referring those persons considered appropriate to the PPU and participate in relevant case meetings.

STAFFORDSHIRE COUNTY COUNCIL SOCIAL CARE AND HEALTH DIRECTORATE and STOKE-ON-TRENT CITY COUNCIL SOCIAL SERVICES DEPARTMENT
Social services have a duty to provide services for a wide range of people and this makes them an important agency in the operation of MAPPA. Their role is of particular importance in the formal risk assessment process where children are involved, through the Area Child Protection Committees (ACPC).

CITY OF STOKE-ON-TRENT YOUTH OFFENDING SERVICES and STAFFORDSHIRE YOUTH OFFENDING SERVICES
The youth offending services are responsible for assessing the risk of young offenders re-offending and managing the consequent risk of serious harm to the public.

HOUSING PROVISION
Appropriate accommodation can reduce the risk presented by an offender to the public. As a result, two specialist staff in Staffordshire focus on securing such accommodation for offenders for whom this has been identified as an effective means of risk management. Housing authorities and associations are becoming increasingly involved in the multiagency approach to public protection that is MAPPA.

HEALTH PROVIDERS
A variety of health providers are involved in risk assessment meetings and provide key contributions to assist in the protection of the public and rehabilitation of offenders.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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What developments are likely this year?
From the start of April 2004, the Prison Service has become a statutory partner in MAPPA. This will strengthen the MAPPA in Staffordshire and Stoke-on-Trent by further reducing the risk posed by prisoners upon their release by way of a comprehensive risk assessment and action-planning process for each individual, together with regular risk assessment during their prison sentences. In addition to this, the sex offender treatment process in prisons will become an increasingly valuable source for gaining information for the risk assessments and will continue to reduce the risk of re-offending. Whilst the whole range of agencies in Staffordshire already work well together to make a success of MAPPA, from 1st April 2004 the government imposed a 'duty to co-operate' upon all agencies working with the police, probation and prison services. This can only result in even greater focus and impact for MAPPA thereby delivering even more protection to our communities. The agencies included within this 'duty to co-operate' are: ü ü ü ü ü ü ü Local Authority Social Services Departments; Primary Care Trusts, other NHS Trusts and Strategic Health Authorities; Jobcentres Plus; Youth Offending Teams; Registered Social Landlords accommodating MAPPA offenders; Local Housing Authorities; Electronic Monitoring providers.

A third important development, to take place in 2004, is the recruitment of two 'Lay Advisors' to the management board of the MAPPA in Staffordshire. Following a successful trial period in other areas of the country, it is expected that this will: l Create greater openness and transparency in the work of the MAPPA; l Make professional decision-makers more publicly accountable; l Enable community representatives to scrutinise the processes, priorities and working methods of the MAPPA agencies;

MAPPA

l Bring community opinions to bear on the future development of the MAPPA system.

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How does the MAPPA and its agencies help victims of crime?
Staffordshire Probation Area has many years of experience in dealing with victims of serious crime and in 1997 a specialist Victim Liaison Service was established to ensure an effective and consistent service to victims. Victim Service staff have become highly skilled in working with victims, the emphasis always being on sensitivity and care. This work has, since 2000, been placed on a statutory footing by the Criminal Justice and Court Services Act.

The main roles of the service are: Ø Ø Ø Ø Ø To make contact with victims of violent or sexual offences where the offender was sentenced to 12 months or more in prison; Consulting the victim about the release arrangements for the offender and making the victim's views known to the supervising officer, the local MAPP panel, the prison authorities and, where relevant, the parole board; Making recommendations about licence conditions or other aspects of the offender's resettlement; Advising probation colleagues and the MAPP panel about any victim concerns relevant to the management of individual offenders; Keeping victims informed about any significant developments during the sentence or after release, including notification of release dates and any additional measures taken to increase their safety.

MAPPA

It is always up to victims to decide whether or not they want to have contact with the Probation Service, but it is not uncommon for the duration of contact with victims to last for several years.

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Other agencies involved in assisting victims are listed below, with their contact numbers: Domestic Violence Domestic Violence Helpline (24 Hours) Tel. No. 01543 676800 North Staffs Domestic Violence Helpline Tel. No. 01782 205500 (daytime) Adult Survivors of Childhood Sexual Abuse Emerge (Cannock) Tel. No. 01543 576174 Emerge (Stafford) Tel. No. 01785 225991

Racial Equality Council Stafford District Tel. No. 01785 246471 East Staffordshire Tel. No. 01283 510456 North Staffordshire Tel. No. 01782 260822

National Probation Service Staffordshire Probation Area Victim Liaison Unit Tel. No. 01782 719045

Victims of Sexual Abuse Womens' Rape and Sexual Violence Service Tel. No. 01782 221000 SARAC (Burton) Helpline Tel. No. 01283 517185 S.A.I.V.E. Tel. No. 01782 683133

Victim Support South East Staffs Victim Support (Lichfield, Tamworth, Burton) Tel. No. 01543 30100 Mid Staffs Victim Support Tel. No. 01785 715666 North Staffs Victim Support Tel. No. 01782 717184

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
What are the key issues for MAPPA?
l Community notification / disclosure In certain circumstances, to protect victims, families or other members of public, it becomes necessary to disclose information about individual sex offenders. This is a sensitive measure to take and is only done after very careful and thorough risk assessment. It is recognised that a timely disclosure of the risks presented by an individual can be a valuable risk management tactic. This process will always take into account the potentially detrimental impact such disclosure may have on a convicted person trying to lead a normal life. However, in 2003-04, this has been done in Staffordshire and Stoke-on-Trent on 17 occasions and in each case, the following issues were all considered:

Ø Ø Ø Ø

The duty of care towards possible victims The risks presented by the individual The protection that may be achieved through making the disclosure The potential for the offender to go 'into hiding' as a result of the disclosure and resulting loss of contact The human rights of the offender The decision is made by very senior police officers

Ø Ø

MAPPA

The case studies in this report show examples of disclosure being used in Staffordshire and Stoke-on-Trent in the past twelve months.

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Risk Assessments
Comprehensive, reliable and accurate risk assessment is an essential part of the management of sexual and violent offenders. In Staffordshire and Stoke-on-Trent, each offender sent to prison and each one under probation supervision along with those serving community sentences will undergo an initial assessment. In addition, all registered sex offenders will have risk assessments completed and each of these is regularly reviewed. In cases involving young offenders, the Youth Offending Service completes a similar process of risk assessment. This will provide the MAPPA agencies with an indication of which offenders are likely to pose the greatest threat to our communities.

A more detailed assessment is then completed for certain groups of offenders, with sex offenders being assessed by staff from the Public Protection Unit (PPU). This assessment will enable the level and nature of risk posed by each offender to be managed through MAPPA to further safeguard local communities.

Risk assessment is a continuous process in Staffordshire, with all offenders under the MAPPA being subject to regular reviews. In this way, any changes in the level of threat posed by an offender can be rapidly dealt with to ensure continued protection for residents of the county.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
W orking with sex offenders
In Staffordshire and Stoke-on-Trent, the Probation Service works with offenders released on licence from prison and with those serving community sentences. The sex offender programme in use since 2001 has been nationally accredited and is part of the Probation Service's 'What Works' approach. It develops methods for working with offenders that evidence has shown to be effective. Sex offenders can be directed to attend the programme as a condition of their release from prison or as part of a community sentence.

The programme explores internal mechanisms that the offender can develop themselves to control their behaviour and reduce the likelihood of re-offending. A number of other measures and controls are used by the Probation Service to protect the public from re-offending: l Action to enforce orders and licences rigorously and rapidly if the offender does not comply or if there are concerns about their behaviour; l Regular meetings with a probation officer who monitors factors associated with the likelihood of re-offending; l Multi-agency interventions agreed by a MAPP panel; l More intensive techniques for the highest risk offenders.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
Case S tudies - Does MAPPA really make a difference? Case 1
Ricky, aged 41, has received several prison sentences for sexual assaults on women unknown to him. During the current prison sentence Ricky responded well to the demands of the sex offender programme in the prison. In addition Ricky co-operated with the prison medical and psychological services in the treatment of the serious mental illness which he has suffered from for many years. The Public Protection Arrangements in Staffordshire tracked Ricky's progress through his sentence. Six months before he was due to be released MAPP panels began to plan for that release. Representatives from the prison attended the meetings and were able to provide detailed information about his progress in treatment during sentence. From the sex offender programme work they were able to identify the behaviour which would indicate an impending risk of further offending on release. Community mental health services contributed to the planning as did the local housing department, who were able to identify appropriate housing taking account of risks identified through the MAPP panel. The Probation Service Victims Unit was able to support the victim through the release of the offender, including obtaining conditions in Ricky's release licence prohibiting him from attempting any contact. The Victims Unit monitored the impact of Ricky's release on the girl and with the police checked for any signs of Ricky attempting contact with her. The probation service set out a clear plan for supervising Ricky on licence, including follow up work in the community based sex offender programme. Ricky continued to be discussed on a regular basis at MAPP Panels. He has so far responded well to all the agencies involved and continues to be reviewed by MAPPA.

Case 2
Frank received a lengthy sentence for a serious and prolonged sexual abuse of a female child in his family. He denied his offending and refused to engage in the sex offender treatment programme. During his sentence he was tracked by MAPPA and it was identified that he would pose a risk of causing serious harm to female teenagers on release. It was further identified by MAPPA that he would pose a threat of retribution against his original victim. MAPPA concluded that he would be a difficult case to manage and brought together agencies to tackle the risk he posed. These agencies under MAPPA planned for his release on supervision conditions.

MAPPA

Frank was monitored in the community and information came to light to indicate that he was having contact with a young female. This was confirmed, which put him in breach of his release licence and he was arrested and returned to prison.

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What is it like to be…a police risk assessor?
In my role, I have responsibility for supervision and monitoring of the registered sex offenders and dangerous offenders in the Stoke-on-Trent area under MAPPA. This includes participating in the multi-agency meetings to risk assess each offender, but the main part of my role is implementation of the measures to be agreed at these meetings. After checking the police intelligence systems at the start of each day for anything new relating to registered sex offenders and dangerous offenders, my day takes shape as follows:
l As part of the risk management process, because two sex offenders are due for release on licence next week, I have a series of measures to put in place to protect the victims of their offences and the local communities. I visit each of the victims and arrange crime reduction surveys to improve the security of their homes and I install police alarms for them to use in the event of an emergency. At one of these victims' homes, I set up a telephone line to enable them to make calls if they feel at risk at any time. I then contact the local police response officers to make them aware of the measures I have taken and the location of the victims should they need to assist them.

l I next make a joint visit to a registered sex offender who has just come out of prison on licence with a probation officer. We emphasise the conditions of his licence and his obligations under the Sex Offenders Act 1997. I will now be responsible for monitoring his compliance with the conditions and the Act. This offender has conditions not to enter public parks and certain types of premises at any time and to reside at a specified address. l I return to the office and receive authorisation from a senior officer to disclose the photograph of a sex offender who is on licence having served his term of imprisonment but who has been assessed as a risk to the public in shopping centres. I then circulate his photograph to the CCTV operators in the Potteries Shopping Centre and to the city CCTV operators. l My final task for the day is to go to the Magistrates Court and obtain a Sex Offenders Order for a particular offender having received information that he is associating with children at a sports centre. The order obtained contains a specific condition that he is prohibited from going to that, or any other, sports centre in the city at any time. If he breaches this condition, he will be arrested and once again imprisoned.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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What is it like to be…a victim liaison officer?
This is a role in which I have to be very sensitive to the needs of each victim and their family, but it can also be very satisfying to see how I can make a genuinely positive difference to someone's feelings of safety and security. On a weekday, I will arrive at work and check my email inbox for anything urgent. I then deal with my diary appointments:
l First is a visit to a victim of a sexual assault from four years ago, because the offender is due for release from prison soon. I tell the victim this information, together with the month of release and area of the county in which this offender will be living. I then discuss the impact of this upon the victim and her family, and I pay particular attention to any potential risk the release of the offender may pose. During this meeting, I gather the information I need to feed back into the formal risk assessment process for the offender's release. An important part of the discussion with the victim involves finding out what may be suitable conditions to request placing on the offender's licence after release, and on this occasion we agree that a condition of no contact with the victim is appropriate. l When I return to my office, I make a check of the database of offenders that are due for release in the forthcoming three months and then research each case and liaise with the relevant probation officers. I do this to ensure that all the relevant victims and families are contacted well in advance of the offenders' release dates and to enable me to provide the victims with all the necessary information and support. Some of the victims I notify request that I visit them personally, whilst others prefer telephone contact. l My other appointment is to visit a family whose four-year-old child had been sexually assaulted by a man who had been living in their street six years ago. This is a personal visit to let them know the month of his release and the area of the county in which he will be residing. Due to the nature of the offence, the family were very upset that the offender was to be released having completed his sentence. Whilst I was able to gain a lot of information to enable a thorough risk assessment to be done to protect the victim and their family, I also had to be mindful of the need to ensure the safety of the offender too. This can be a challenging part of my role - providing victims with the best possible service and care, but also ensuring that the safety of offenders who are released having completed their sentences is taken into consideration.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
What is it like to be…a probation officer?
My role as a probation officer involves a lot of work with sexual and violent offenders - as such it can be both challenging and demanding. On a normal working day, I will arrive at the office at 8 a.m. and spend the first hour doing administrative work, e.g. email checking, phone calls, and I will plan my working day ahead. A typical day continues:

l I get in contact with a local hostel to arrange suitable accommodation for an offender who has been released from prison - also confirming with the Prince's Trust that he is enrolled on a programme with them.

l I am called by an offender who I had supervised for the six months of his licence having been released from prison. As he is having problems securing safe and suitable housing, I agree to write a reference for him.

l I then go to visit five offenders that I am currently supervising - I intend to assess how each one is progressing since release from prison. I complete risk assessments for all of them, designed both to assist them and to ensure the public are fully protected from any risk they may pose. One of these offenders I found was not at the address we had agreed, but my visit revealed that the address was a house with all the windows either broken or boarded up and was not inhabitable. As a result, I completed a full update report for action to be taken to trace him and review the risk assessment on him. Another visit was carried out as I had information that the offender in question may have been breaching his probation order. During my visit, I put a plan together with this person to help his alcohol addiction problem (involving assistance from other agencies) and arranged a further visit with him. l Back at the office, a sex offender who had been released on licence for six months came for an appointment with me. This offender had failed to engage in any treatment programmes whilst in prison and due to his attitude was viewed as a high-risk potential re-offender. I agreed a detailed plan for supervision of his probation period, designed to address his basic needs to reduce the risk of re-offending and to put in place a range of monitoring measures to prevent him from being danger to the public. l I complete my work for the day by entering full updates for each of my visits and appointments on the offenders' files to inform the risk assessment process.

MAPPA

Staffordshire MAPPA Annual Report 2003-04
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MAPPA - PROTECTING OUR COMMUNITIES
So just how effective is the S taffordshire MAPPA?
i. Number of registered sex offenders on 31st March 2004 458

ii. The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2003 and 31st March 2004 iii. The number of Sex Offenders Orders applied for and gained between 1st April 2003 and 31st March 2004 l Total number of Sex Offender Orders applied for: l Total number granted: l Total number not granted: iv. The number of Restraining Orders issued by the courts between 1st April 2003 and 31st March 2004 for offenders currently managed within MAPPA v. The number of violent and other sexual offenders considered under MAPPA during the year 1st April 2003 and 31st March 2004 (as defined by section 68 [3], [4] and [5]) vi. The number of 'other offenders' dealt with under MAPPA during the year 1st April 2003 and 31st March 2004 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]) 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: l MAPPP - registered sex offenders l MAPPP - violent and other sex offenders l MAPPP - other offenders viii. Of the cases managed by the MAPPP during the reporting year what was the number of offenders: l Who were returned to custody for breach of licence l Who were returned to custody for breach of a Restraining Order or Sex Offender Order l Charged with a serious sexual or violent offence

10

1 1 0

1

181

13

26 17 5

MAPPA

2 0 0

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Who can I contact for more information?
Staffordshire Police Adrian Lee M.Phil.,MA Assistant Chief Constable Police Headquarters Cannock Road Stafford ST17 0QG Tel: 01785 232219 Staffordshire Probation Area Muriel Lawrence Staffordshire Probation Head Office University Court Staffordshire Technology Park Beaconside Stafford ST18 0GE Tel: 01785 223416 Prison Service Lorraine Mosson-Jones Risk Manager West Midlands Area Office PO Box 458 HMP Shrewsbury The Dana Shrewsbury SY1 2WB Mobile: 07976 450508 Area Resettlement Administration Officer: 01743 284560 E-mail: lorraine.mosson-jones@hmps.gsi.gov.uk

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DESIGNED & PRINTED BY STAFFORDSHIRE POLICE PRINTING SERVICES/BOOKLETS MAPPA