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Protecting our Communities

in Staffordshire
(inc. Stoke-on-Trent)


Annual Report 2003–04

MAPPA: Managing Risk for Us All

Protecting our Communities

in Staffordshire
(inc. Stoke-on-Trent)


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 Page 2

Ø Introductory letter - Paul Goggins Home Office Page 3

Ø Staffordshire area summary Page 4

Ø Helping victims of crime Page 8

Ø Key issues Page 10

l Community notification and disclosure Page 10

l Risk assessment Page 11
l Working with sex offenders Page 12

Ø Case studies Page 13

Ø In the world of MAPPA, spend a day with… Page 14

l A police risk assessor Page 14

l A victim liaison officer Page 15

l A probation officer Page 16

Ø Facts and figures Page 17

Ø Contact points Page 18

Staffordshire MAPPA Annual Report 2003-04

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

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.


Chief Constable J.W. Giffard Chief Officer

CBE QPM DL BA(Hons) Staffordshire Probation Area
Mr R Mandley
MSc; MA; BA (Hons), CQSW

Staffordshire MAPPA Annual Report 2003-04



Staffordshire MAPPA Annual Report 2003-04

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.

Staffordshire MAPPA Annual Report 2003-04

How high are the risks to our communities?
The pyramid to the left shows the 'three levels of
Multi- risk' posed by offenders and how they are
Protection managed through MAPPA. The emphasis is on
Management 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
Local Multi-Agency
Management communities of Staffordshire and Stoke-on-Trent.

Local Single Agency


Who is it that participate in MAPPA?


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.


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.


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 H.M. PRISON
from prison. The prison service also assist with the planning and SERVICE
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.

Staffordshire MAPPA Annual Report 2003-04


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.



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).



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.


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 multi-
agency approach to public protection that is MAPPA.


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.

Staffordshire MAPPA Annual Report 2003-04

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 Local Authority Social Services Departments;

ü Primary Care Trusts, other NHS Trusts and Strategic Health Authorities;
ü Jobcentres Plus;
ü Youth Offending Teams;
ü Registered Social Landlords accommodating MAPPA offenders;
ü Local Housing Authorities;
ü 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;

l Bring community opinions to bear on the future development of the

MAPPA system.

Staffordshire MAPPA Annual Report 2003-04

How does the MAPPA and its agencies help victims of

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 To make contact with victims of violent or sexual offences where the

offender was sentenced to 12 months or more in prison;
Ø 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;
Ø Making recommendations about licence conditions or other aspects of the
offender's resettlement;
Ø Advising probation colleagues and the MAPP panel about any victim
concerns relevant to the management of individual offenders;
Ø 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.

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.

Staffordshire MAPPA Annual Report 2003-04

Other agencies involved in assisting victims are listed below, with their
contact numbers:

Domestic Violence Adult Survivors of

Domestic Violence Helpline (24 Hours) - Childhood Sexual Abuse
Tel. No. 01543 676800 Emerge (Cannock) -
Tel. No. 01543 576174
North Staffs Domestic Violence Helpline -
Tel. No. 01782 205500 (daytime) 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

Victim Support
South East Staffs
Victim Support
Victims of Sexual Abuse (Lichfield, Tamworth,
Womens' Rape and Burton)

Sexual Violence Service Tel. No. 01543 30100

Tel. No. 01782 221000
Mid Staffs Victim Support
SARAC (Burton) Helpline Tel. No. 01785 715666
Tel. No. 01283 517185
S.A.I.V.E. North Staffs Victim Support
Tel. No. 01782 683133 Tel. No. 01782 717184

Staffordshire MAPPA Annual Report 2003-04

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 The duty of care towards possible


Ø The risks presented by the individual

Ø The protection that may be achieved

through making the disclosure

Ø The potential for the offender to go

'into hiding' as a result of the
disclosure and resulting loss of

Ø The human rights of the offender

Ø The decision is made by very senior

police officers

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

Staffordshire MAPPA Annual Report 2003-04

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.

Staffordshire MAPPA Annual Report 2003-04

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.


Staffordshire MAPPA Annual Report 2003-04

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.

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.

Staffordshire MAPPA Annual Report 2003-04

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

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.

Staffordshire MAPPA Annual Report 2003-04

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

Staffordshire MAPPA Annual Report 2003-04

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.

Staffordshire MAPPA Annual Report 2003-04

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 10

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: 1
l Total number granted: 1
l Total number not granted: 0

iv. The number of Restraining Orders issued by the courts between

1st April 2003 and 31st March 2004 for offenders currently managed
within MAPPA 1

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]) 181

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]) 13

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 26
l MAPPP - violent and other sex offenders 17
l MAPPP - other offenders 5

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 2
l Who were returned to custody for breach of a Restraining
Order or Sex Offender Order 0
l Charged with a serious sexual or violent offence 0

Staffordshire MAPPA Annual Report 2003-04

Who can I contact for more information?

Staffordshire Police

Adrian Lee M.Phil.,MA Assistant Chief Constable

Police Headquarters
Cannock Road
ST17 0QG
Tel: 01785 232219

Staffordshire Probation Area

Muriel Lawrence
Staffordshire Probation Head Office
University Court
Staffordshire Technology Park
ST18 0GE
Tel: 01785 223416

Prison Service

Lorraine Mosson-Jones
Risk Manager
West Midlands Area Office
PO Box 458
HMP Shrewsbury
The Dana
Mobile: 07976 450508
Area Resettlement Administration Officer: 01743 284560