Multi-Agency Public Protection Arrangements Annual Report 2002-3



By Paul Goggins, Parliamentary Under-Secretary for Community and Custodial provision in the Home Office. 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 dayto-day operation of the MAPPA – in reviewing and monitoring the MAPPA annual reports and this new lay involvement shows 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.


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

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

Involving the public
MAPPA developments in the next 18 months will also include the appointment by the Home Secretary of two ‘lay advisers’ to each Area. The eight Areas of England and Wales which have been piloting these arrangements since January (Cumbria, Greater Manchester, Durham, South


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

MAPPA Offenders
This year the annual report provides a more detailed breakdown of the number of sexual and violent offenders who are covered by the MAPPA in your Area. As last year, the figures include the number of registered sex offenders. Because sex offender registration is for a minimum of five years (and generally for much longer) the figures are cumulative. This is why they have increased – by 16 per cent in England and Wales. Only a very small proportion (about six per cent throughout England and Wales) are considered to pose such a high risk or management difficulty that they are referred to the highest level of the MAPPA – the Multi-Agency Public Protection Panels (the MAPPP). Figures alone do not, of course, tell the whole story. The anonymised case studies illustrate the practical work of the MAPPA, and demonstrate the preventive action which can be taken. Prior to the MAPPA, action of this kind was mainly taken by one agency alone, with the effect that on occasion offenders’ behaviour which might have triggered preventative action went unnoticed. The multi-agency approach of the MAPPA helps ensure that if an offender does breach the condition of the licence under which they were released from prison or a court order prohibiting certain activities, then action to enforce the condition or order and protect the public can be taken more swiftly. If you are interested in reading the reports of other Areas, they will be published on the National Probation Service’s website (under the public protection section) with all of them being available once the last Area has published its annual report in September.


3. Suffolk Area Summary
The protection of the public from offenders who potentially pose a high risk of sexual or violent offending is a high priority for the Probation Service, Police and the organisations that work in partnership to deliver an effective framework for risk assessment and management. Arrangements in Suffolk to manage high-risk offenders have existed since 1997 when in response to the Sex Offenders Act the Police and Probation began to make joint arrangements for the assessment and management of registered sex offenders. Acknowledging that ‘robust’ public protection procedures are underpinned by collaboration and information sharing, effective partnerships have been developed with Social Care Services, Housing, Youth Offending Service, Prison Service, Mental Health Services and Victim Support. They contribute to both the strategic management of the multi-agency public protection arrangements (MAPPA) and the operation of the multi-agency public protection panels (MAPPPs). Having been introduced in 2000 in response to the Criminal Justice and Court Services Act, the MAPPA arrangements are now well established in Suffolk and have built upon historical developments around public protection so as to fulfil the statutory duty placed upon Probation and Police and demonstrate a consistent, defensible and accountable risk management process. The identification and subsequent management of offenders in the community is a complex task and is underpinned by the use of tested risk assessments, the skill, experience and expertise of staff and the willingness of agencies to share information, resources and work collaboratively. Rigorous risk assessment depends upon the collation and sharing of all relevant information. The MAPPP allows the timely exchange of clear, accurate and reliable information and the speedy identification of offenders who pose the most serious risk of harm to the public. Having identified the risks posed by an offender, shared plans are drawn up by agencies attending the MAPPP to manage those risks. These risk management plans are reviewed on a regular basis to ensure implementation and are revised as necessary to reflect any change in circumstances. Central to the delivery of risk management plans is the effective supervision of the offender, which comprises two key elements: imposing the right conditions and enforcing them. Through the supervision process ‘internal’ controls can be developed to enable the offender to develop greater insight and control in relation to their


offending behaviour and therefore manage or reduce the risks posed. The Probation Service has developed a number of accredited groupwork programmes, based on research into ‘What Works’ in reducing risks of reoffending. These interventions include: • • • • Sex offender groupwork programmes Aggression replacement training Relapse prevention General offending behaviour groups

To ensure that offenders comply with the requirements of supervision aimed at addressing their offending behaviour and the risks they pose, it is necessary to impose ‘external’ controls upon them, which both monitor their behaviour and maintain engagement in the supervisory process. These external controls include: • • • • • Use of intelligence to monitor behaviour Regular visits to the offender at home Imposition of conditions in a post release prison licence Sex offender registration/Sex offender orders Enforcement of any court order, prison licence or registration requirement in the event of non-compliance

It is important that in any case where an offender fails to comply with any condition imposed to reduce re-offending and manage the risk they pose, enforcement action is taken quickly. The National Probation Service has rigorous standards that apply to the enforcement of all offenders, which can result in the offender going to prison. Those offenders released from prison on licence whose behaviour suggests an increased risk to the public can be re-called to custody immediately. The management of risk must be balanced and the imposition of restrictions placed upon offenders must be appropriate, being mindful of human rights legislation and civil liberties issues. This balance requires careful management to ensure that the over-riding aim to protect the public is achieved, whilst preserving the offender’s rights to privacy, employment and family life. For this reason the dissemination of confidential information or the disclosure of information to those who may be at risk is measured and incremental to achieve the objective of public safety, whilst not misusing confidential personal information.


4. Summary of Roles and Responsibilities National Probation Service – Suffolk Probation Area
Suffolk Probation Area is responsible for the preparation of pre-sentence reports to magistrates and judges, upon which sentencing decisions are made and the supervision of offenders subject to community penalties and post custodial licence. Within the context of the National Probation Service, Suffolk contributes to the achievement of five statutory aims that support the public protection arrangements. These aims are: • • • • • The protection of the public The reduction of re-offending The proper punishment of offenders Ensuring offenders’ awareness of the effects of crime on the victims of crime and the public The rehabilitation of offenders

In sharing the statutory responsibility for MAPPA with the Police, Suffolk Probation Area has drawn upon established public protection procedures and partnerships with other agencies to implement the multi-agency public protection arrangements. This has included the appointment of a Senior Probation Officer (half-time) to develop and co-ordinate the MAPPPs, the introduction of a new assessment framework, the Offender Assessment System (OASys), training for all staff and the revision of public protection policy to reflect the legislative framework of MAPPA and our role as a responsible authority. All offenders who are having court reports prepared or who are under the supervision of Suffolk Probation Area will have a thorough risk assessment completed, upon which all subsequent work with the offender is based. These assessments are regularly reviewed and updated and form an integral part of the public protection arrangements.

Suffolk Constabulary
Suffolk Constabulary is the other responsible authority for MAPPA having been given the statutory duty with the Probation Service under the Criminal Justice and Court Services Act 2000. The Police work on the principle that the prevention and detection of crime and the reduction of fear of crime is central to its purpose. Partnership


working to support the aim of protecting the public has been a long-term commitment by Suffolk Constabulary. The partnerships developed by Suffolk Constabulary have been central to the identification of local crime problems and responsible for the development of action plans to tackle those problems which have been formalised through the local crime and disorder partnerships that bring together the Police, local authorities and a range of other people and agencies from local communities. In order to target these resources and fight crime effectively, Suffolk Constabulary focuses upon the most active and serious offenders in the community. In order to do this better criminal intelligence systems have been developed in line with the Police National Intelligence Model. In response to Sex Offender Legislation and MAPPA responsibilities Suffolk Constabulary have appointed six public protection officers across the county, two in each policing area, who monitor the offenders subject to registration and other potentially dangerous offenders, carry out risk assessments, liaise with other agencies so that risk management plans can be successfully co-ordinated and when appropriate apply for Sex Offender Orders or Restraining Orders.

Suffolk County Council – Social Care Services
The duties and responsibilities of Social Care Services include services to vulnerable groups, both adults and children. This includes children in need and their families, older people, disabled people and those with mental health needs. The services promote safety and welfare, which balances the needs of the individual with the safety of the wider community. In conjunction with Social Care Services role in working with other agencies through the Area Child Protection Committee, there is a commitment to work together with other agencies in the assessment and management of risk for the protection of the public.

Suffolk Local Health Partnerships NHS Trust − Mental Health Services and Norfolk Mental Health Care Trust
The assessment of health professionals is required to define the kind of health intervention an individual may need. They can also contribute to the assessment and management of risk. The Department of Health will be issuing guidance to ensure that all Mental Health Trusts are appropriately represented in the arrangements.


Roles and Responsibilities of Mental Health Representative (Suffolk) • • Prior to each monthly meeting check Mental Health Services involvement with the individuals to be discussed. If an individual is involved with Mental Health Services, to discuss the issues with the relevant professionals, reason for involvement, treatment and relationship between mental health and offending, this also informs them of the MAPPP process and the reason for referral. Making recommendations regarding appropriate invitation to the meeting etc. Attendance at monthly meetings offering advice, information and education on areas of Mental Health specifically in relation to Care Programme Approach services available locally, referral procedures, the Mental Health Act and Mental Health systems. Sharing of relevant clinical information. Feeding back to health professionals relevant information from the meeting. Acting as a ‘two-way’ bridge between Mental Health and the other agencies regarding high-risk offenders. Ensuring Local Health Partnerships NHS Trust have a referral process into MAPPP via risk assessment and/or the Suffolk Mental Health High Risk Scheme. Educating Mental Health staff about MAPPPs and the referral process. Co-ordinating reviews under the Suffolk Mental Health High Risk Scheme which include discussions regarding referral to MAPPP.

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Suffolk Borough and District Councils Housing (Suffolk Housing Officers Group)
Offenders may be owner-occupiers, may rent privately or may be in lodgings, but a number will often rent from a local authority or Housing Association. Wherever they live, it is vital that the Police and the Probation Service know exactly where they are, in order to monitor and support them. This can be impossible if the offender is homeless. Making sure offenders have somewhere to live is an essential element of public protection and the


District and Borough Council authorities in Suffolk, all of which have housing duties, have a key role to play in this respect. The Strategic Forum, which oversees how the new structure works, has a representative on it from the Suffolk Housing Officers Group which represents all District and Borough Housing Authorities, as well as Housing Associations operating in the County. In this way, any housing issues that may arise can be considered by all key housing agencies in the County. The local housing authorities in Suffolk have also helped by paying towards the staffing the Strategic Forum needs to ensure that the MAPPPs are run effectively. It is clear that Housing will often be an essential part of the solution to the problems of monitoring and supporting offenders.

Suffolk Youth Offending Service
The Suffolk Youth Offending Service provides a range of services for young people aged 10-17 years old, including the provision of preventative programmes targeting young people ‘in need’ and community based programmes designed to prevent further offending. Suffolk Youth Offending Service is committed to the delivery of partnership services effectively, and by adopting a holistic approach that promotes accountability, responsibility and social inclusion, seeks to reduce re-offending by young people. The Suffolk Youth Offending Service is in a key position to contribute to the assessment and management of risk posed by young people in the community.

Prison Service (HMP Highpoint, HMP Hollesley Bay, HMP Blundeston)
Closer links have been established with prisons in Suffolk to enhance the identification and management of offenders who may pose a risk of serious harm upon release. The Prison Service is introducing the Offender Assessment System (OASys) in common with the Probation Service, which will achieve a consistency of assessment and involvement in the multiagency public protection arrangements. In addition to assessing the risk each prisoner poses, prisons run accredited groupwork programmes designed to help reduce risks before the prisoner is released. Prisons are involved in the planning of the controlled release of offenders into the community, sharing information with Police, Probation and other relevant agencies who will be involved in managing any risk posed.


5. The Operation of MAPPA in Suffolk
For all those offenders who fall within the MAPPA (sex offenders, violent offenders and others identified as posing a risk of serious harm), a thorough risk assessment is undertaken by Probation and Police to establish who is potentially at risk, the likelihood of re-offending and whether this is an imminent risk. For those offenders who are identified as posing a high or very high risk of serious harm, referral is made to the Multi-Agency Public Protection Panel where information is shared amongst relevant agencies and a risk management plan is agreed. All adult registered sex offenders are initially assessed by Police Public Protection Officers using an appropriate assessment tool, which indicates the likely risk an offender poses of re-offending. Juvenile offenders are assessed by the Youth Offending Service using the ASSET assessment tool. The outcome of the assessment informs the level of contact or surveillance required to manage the offender and the requirement to refer to the MAPPP for those offenders presenting the highest risk and for whom multi-agency management is necessary. Offenders under the supervision of Suffolk Probation Area are all assessed using OASys (Offender Assessment System) which indicates both the level of risk posed and to whom those risks are greatest. Referral to the MAPPP is made where offenders are identified as posing a high or very high risk. Risk management and supervision plans are completed to ensure that actions required to manage risk are reviewed and clear objectives set, which identify the work to be undertaken by the offender to reduce the risk they pose. For the small number of mentally disordered offenders who may pose a risk to others and who are not under the supervision of the Police, Probation, Youth Offending Service or Social Care Services, the Care Programme Approach (CPA) is used to provide a risk assessment framework and facilitate referral to the Suffolk High Risk Mental Health Scheme. The high-risk mental health review, attended by psychiatrists, community psychiatric nurses and social workers, consider the imminence of any potential event and refer to the MAPPP where other agencies need to be involved. The MAPPP meetings take place at a predetermined time every month in the Southern, Eastern and Western policing divisions and have a representative from Probation, Police, Social Care Services and Specialist Mental Health Services. Representatives from other agencies who may be working with the offender are invited as is necessary, eg Prison Service, Housing, Youth Offending Service. Should it prove necessary, an emergency MAPPP will be convened to share information and implement a management plan in order to manage an offender


who moves to Suffolk, is not subject to statutory supervision but is assessed as posing an imminent risk to the public. Whilst an offender is assessed as posing a high or very high risk to the public they will be reviewed regularly by the MAPPP, who will ensure the risk management plan remains appropriate in the circumstance and check that decisions and actions designed to minimise risks have been implemented. As the statistics at Section 7 indicate, the majority of offenders who either fall under the MAPPA or who are subject to Probation supervision, are assessed as being suitable to be dealt with using conventional standards and case management interventions. All offenders are subject to ongoing review and assessment, which reflects the dynamic nature of risk assessment and management. The proportion of offenders who represent the highest risk or the ‘critical few’ is small in relation to those offenders under Probation supervision, or registered sex offenders being monitored by the Police. For those offenders who are identified as posing a high risk of serious harm, it is necessary to ensure that any risk management or supervision plan contains elements of those ‘internal’ and ‘external’ controls outlined in Section 3 of this report. In order to effectively manage the risks posed by an offender it is usual that interventions undertaken to develop the ‘internal’ controls such as the use of Accredited Groupwork Programmes, Relapse Prevention and Victim Awareness Work are complimented by ‘external controls’ which ensure offender compliance. This can include the imposition of additional conditions to a licence or community order, the requirement to reside at the Approved Premises (Hostel), enforcement action or increased surveillance. CASE STUDY
Mr X was released from custody having served a five-year sentence for a serious sexual offence. Before release his Probation Officer completed a risk assessment which highlighted issues relating to contact with victims and the need for a structured living environment which provided close monitoring of his behaviour and the ability to enforce licence conditions in order to manage potential risks. A MAPPP meeting was held to discuss how to manage the risk Mr X posed. Upon release, licence conditions were imposed requiring Mr X to reside at a hostel, be subject to curfew, not to contact victims of his offending and not to enter his hometown without the prior permission of his Probation Officer. For several months Mr X’s behaviour gave no cause for concern to either Probation or Police. However, he failed to return to the hostel by the required curfew time and having received a warning previously for a minor breach of curfew he was in breach of his licence conditions. This failure to abide by his licence conditions and the fact that he was unable to account for his whereabouts, was considered sufficient reason to re-call Mr X to custody as his ability to comply was called into question and the potential risks were unacceptable at that time.


All offenders under the supervision of the Probation Service are subject to minimum national standards in relation to compliance and frequency of contact. These minimum standards can be increased in the case of the potential to cause serious harm and will be strictly enforced through warnings and either re-call to prison or court summons where it is evident the offender is unwilling to comply or poses an imminent risk that is assessed as requiring such action. In relation to registered sex offenders, the Police complete their risk assessment and prioritise those offenders who require the most frequent visiting and levels of surveillance. The requirement of sex offenders to register with the Police is made clear at the point of sentence and therefore offenders can be targeted and visited upon release from prison so that sex offender registration can be re-enforced. Where an offender is being supervised by Suffolk Probation Area, this visit is often undertaken jointly to ensure the offender is fully aware of the risks they pose and how these will be managed by the Police and Probation. It is the job of the Police Public Protection Officers to contribute to the prevention of further offending and detect breaches of orders or re-offending. Intelligence gathering through Police officers, contact with victims, surveillance and liaison with other professionals, eg the Child Protection Unit, allows the behaviour of offenders who pose a high risk to be monitored, their behaviour challenged and where appropriate or necessary other methods of managing risk explored, such as application for a sex offender order or disclosure of information to minimise risk. The use of disclosure forms part of the wider risk management process and is one of the strategies that can be adopted to reduce risk. Notifications to individuals, groups or sections of the community are made where it is believed that the risk posed cannot be managed through external controls only, or in relation to a known victim or person at risk. The use of disclosure has to be proportional and justifiable and consider the human rights and civil liberties of the offender. Community notifications are only made where there is a pressing need and each decision on whether or not to disclose has to be justified on the basis of the likelihood of harm which non-disclosure might otherwise cause. Whilst it is the role of the MAPPP to consider the need for and to recommend disclosure based on a careful and rigorous examination of the information available, the final decision regarding whether or not disclosure will be made rests with the Assistant Chief Constable who will consider the recommendation of the MAPPP, relevant case law and the individual’s rights before giving approval for disclosure.


CASE STUDY Mr Y is a registered sex offender who is also subject to a restraining order preventing him from frequenting places where children may be present, for example, amusement arcades. He has a history of indecent assault against children and strongly denies his offending history, minimising his behaviour and personal responsibility. Mr Y is not subject to supervision by the Probation Service. Mr Y chose to move address when his whereabouts became known to the public. At short notice he moved into alternative accommodation and was not obliged to inform the landlord of his accommodation of his previous offending. Having registered his new address with the Police they referred his case to the MAPPP as he was assessed as posing an imminent risk to children, especially as the school holidays were approaching. In order to enhance the risk management plan of visits and surveillance by the Police, it was felt necessary to make limited disclosures to the landlord and CCTV operators. This decision, sanctioned by the Assistant Chief Constable, allowed increased monitoring and surveillance of Mr Y and provided information to the landlord which would assist staff in managing Mr Y, protect other residents and be mindful of any community concerns that might arise should his whereabouts become known.

Where a sex offender’s behaviour, registered or otherwise, gives continued cause for concern, consideration can be given to the application for a Sex Offender Order through the Magistrates Courts. Sex Offender Orders are civil measures with criminal sanctions. Breaches of an order are punishable with up to five years’ imprisonment at the Crown Court, making them arrestable offences. Sex Offender Orders enable magistrates to prohibit sex offenders from any actions or behaviour to protect the public from harm. Orders last a minimum of five years and require the offender to register with the Police under the Sex Offenders Act.


CASE STUDY Mr Z was placed on the sex offender register having been convicted of having unlawful sexual intercourse with a child under the age of 16. Following registration he was closely monitored by the Police who liaised with the victim’s parents, local schools and Social Care Services. Following continued concerns that Mr Z was inviting children to his house during school hours, he was referred to the MAPPP where he was assessed as posing a high risk of further sexual assault. The MAPPP agreed that because Mr Z displayed little internal control over his behaviour that an application should be made to the court for a Sex Offender Order. The order was granted and Mr Z was ordered not to speak to, or associate with, children under the age of 16. Shortly after the Sex Offender Order was imposed, the police remained concerned that young people were visiting Mr Z’s home. They conducted a spot check and a child was discovered in the home. Mr Z was charged with a breach of his Sex Offender Order, appeared in court and received a period of imprisonment.

6. The Strategic Management of MAPPA
It is a requirement of the MAPPA that each Area develops a strategic management structure to enable the Responsible Authorities (Police & Probation) to discharge those duties outlined on section 67 of the Criminal Justice and Court Services Act (2000), which requires that the Responsible Authority in each Area must: ‘keep the arrangements (ie the MAPPA) established by it under review, with a view to monitoring their effectiveness and making any changes to them that appear necessary or expedient’ The Strategic Management Forum in Suffolk comprises representatives from the following agencies, whose seniority and responsibilities enable them to contribute to developing and maintaining strong and effective inter-agency public protection procedures and protocols on behalf of their agency and to address the practical implications of MAPPA.


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Suffolk Probation Area - Assistant Chief Officer Suffolk Constabulary - Detective Chief Inspector Suffolk Social Care Services - Head of Child Protection Suffolk Youth Offending Service - Locality Manager Suffolk Housing Officers Group - Head of Housing, Babergh District Council Local Health Partnerships/NHS Trust - Director of Mental Health Services (West) Prison Service - Governor grade (Highpoint Prison) Victim Support Suffolk - Area Manager

The Strategic Management Forum in Suffolk meets every three months and during the developmental phase of MAPPA has sought to monitor performance, identify and disseminate good practice, develop and review protocols in relation to information exchange and operational issues and prepare the annual report regarding the work of the MAPPPs. During the first phase of MAPPA development, the emphasis was placed upon establishing minimum criteria and requirements that would provide effective multi-agency assessment and management of risk. The work of the Strategic Management Forum has been informed by new MAPPA guidance published in March 2003 and to be implemented in 2003-2004. This guidance seeks to build upon what has already been achieved by formalising the practical arrangements across all areas in order to introduce greater consistency. The following features will be common to the strategic management of MAPPA in all Areas:


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Monitoring (on at least a quarterly basis) and evaluating the operation of MAPPA, particularly that of the MAPPPs. Establishing connections which support effective operational work with other public protection arrangements, such as Area Child Protection Committees, local Crime and Disorder Partnerships and local Criminal Justice Boards. Preparing and publishing the Annual Report and promoting the work of MAPPA in the Area. Planning the longer-term development of the MAPPA in light of regular (at least annual) reviews of the arrangements and with respect to legislative and wider criminal justice changes. Identifying and planning how to meet common training and development needs of those working in MAPPA.

Since the publication of last year’s Annual Report, a review of the MAPPA has highlighted the need for a dedicated MAPPP manager and administrative support in order to ensure a continuity of approach and to meet the challenge of implementing the new guidance in relation to MAPPA. Those agencies involved in the Strategic Management Forum have pledged joint funding to pay for these posts in a demonstration of their commitment to the work of MAPPA and public protection issues generally. In 2003-2004 The Criminal Justice Bill will permit the Secretary of State to appoint two lay advisers to the Strategic Management Forum in each Area. The purpose of the lay advisers is twofold. Firstly, they enable the involvement of non-professionals, which will provide greater public accountability. Secondly, their role is to contribute views to the monitoring and evaluation of MAPPA.

7. Victim Work in Suffolk
Section 69 of the Criminal Justice and Court Services 2000 places a statutory duty upon the Probation Service to offer the victims of violent and sexual offences, where the offender has been imprisoned for a period of over 12 months, the opportunity to be consulted and notified about the release arrangements for the offender. The statutory duty is supported by the requirements of National Standards and guidance on the Victim Contact Scheme. All ‘eligible’ victims should be contacted within two months of sentence being passed and offered:


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Face-to-face contact with Suffolk Probation Area. The opportunity to be kept informed about developments throughout the offender’s sentence, if they wish. An opportunity to contribute to the eventual release plans, to have their views taken into account by the Parole Board or other decision maker, and to receive information about licence conditions which are directly relevant to them or members of their families.

Through this process Suffolk Probation Area is in a position to obtain information from victims and develop risk management plans informed by the views of the victim. This allows Probation Officers to carefully consider release arrangements and ensure conditions are imposed, which can protect victims, eg a condition of residence at an approved premises (hostel), or a condition not to contact or approach the victim. Information gathered from victims can also make a practical contribution to the assessment and management of risk, as the victim may be the person who best knows the true nature of the risk posed by the offender. This is likely to be particularly relevant in cases in which the offender has been involved in an abusive relationship within the family or in other forms of domestic violence. So that victim issues are given the consideration they deserve, the MAPPP fulfils the following functions:

To ensure that victim issues are taken into account when developing risk management plans. • To ensure that there is provision for victims to pass on information about their concerns through the victim contact scheme. • To ensure that where an offender is identified as posing a high risk of serious harm, there is a procedure for victims to be informed that ‘their offender’ is being dealt with within the system.

The statutory work of Suffolk Probation Area with victims is not exclusive, and victim issues and work with direct victims has been undertaken by Victim Support, the national charity for people affected by crime, for many years. Victim Support Suffolk has been represented on the Strategic Management Forum from March 2003, which will further strengthen the


victim focus of MAPPA and complement the statutory victim work of Suffolk Probation Area. Victim Support Suffolk is an independent organisation, offering a free and confidential service, whether or not a crime has been reported. Trained staff and volunteers at local branches offer information and support for victims, witnesses, their families and friends. (See Section 8 for Local & National contacts). Victim Support also provides the Witness Service based in every criminal court in England and Wales, to offer assistance before, during and after trial. Victim Support Suffolk is committed to: • • • Giving advice, support and information to those who suffer from the effects of crime. Providing advice and support to witnesses in court proceedings. Working in partnership with others to raise public awareness and give recognition to the effects of crime, and to promote the rights of victims and witnesses.


7. Statistical Information
i. The number of registered sex offenders on 31 March 2003

No of Offenders


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



The number of Sex Offenders Orders applied for and gained between 1 April 2002 and 31 March 2003


The total number of Sex Offenders Orders applied for



The total number granted



The total number not granted



The number of Restraining Orders issued by the courts between 1 April 2002 and 31 March 2003 for offenders currently managed within MAPPA



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



The number of "other offenders" dealt with under MAPPA during the year 1 April 2002 and 31 March 2003 as being assessed by the Responsible Authority as posing a risk of serious harm to the public (but who did not fall within either of the other two categories, as defined by s.67 [2b])



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:


MAPPP - registered sex offenders



MAPPP - violent and other sex offenders



MAPPP - other offenders




Of the cases managed by the MAPPP during the reporting year what was the number of offenders:


who were returned to custody for breach of licence



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



charged with a serious sexual or violent offence




Address Force Headquarters Martlesham Heath Ipswich IP5 3QS Address Foundation House 34 Foundation Street Ipswich IP4 1SP Address 127 Ipswich Street Stowmarket Suffolk, IP14 1BB Address Corks Lane Hadleigh, Suffolk Phone (01473) 613806

Suffolk Constabulary Detective Chief Inspector (Support) Crime Management Department Suffolk Probation Area Assistant Chief Officer (Public Protection)

Phone (01473) 408130

Suffolk Social Care Services County Manager, Immediate Needs

Phone (01449) 626190

Suffolk Housing Officers Group SHOG c/o Barbergh District Council

Phone (01473) 822801

Local Health Partnerships/NHS Trust Director of Mental Health (West)

Address G Block Hospital Road Bury St Edmunds, IP33 3NR Address West Suffolk Youth Offending Service St Margarets, 7 The Churchyard Bury St Edmunds Address HM Highpoint South, Stradishall Newmarket, Suffolk

Phone (01284) 713000

Suffolk Youth Offending Service Locality Manager

Phone (01284) 352378

HM Prison Service Assistant Governor Area Co-ordinator

Phone (01440) 823044


Contact details continued
Suffolk Victim Support Area Manager 29 Elm Street, Ipswich Suffolk, IP1 2AB Phone (01473) 231964

Further Information Further information is available on the National Association of Victim Support website: National Helpline The national helpline for victims provides a service at local call rates on: This is available: Mondays to Fridays Weekends Bank Holidays 0845 30 30 900 9.00am to 9.00pm 9.00am to 7.00pm 9.00am to 5.00pm

For further information contact: Police and Probation Telephone numbers can be found in the Contact section of this report and in local telephone directories Home Office Customer Services 0870 000 1585




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