Police chiefs in Suffolk have created a new department in a bid to make the public safer from sex offenders and other dangerous criminals. The Public Protection Directorate is a new division of the force's Crime Management Department. It has been set up to strengthen existing public protection work - much of which is carried out through the Multi Agency Public Protection Arrangements (MAPPA). Public protection work is aimed at reducing the risk of harm and the impact of any harm to the public from registered sex offenders and other potentially dangerous people. It involves proactively identifying, assessing and managing the risk of serious harm and taking action to cut the risk. Much of the work is carried out by the MAPPA partners. When an offender is not involved with any other agency, Suffolk Constabulary will continue to manage the risks using a variety of policing methods. The new directorate is headed by Detective Chief Inspector Debbie Griffiths and Detective Inspector Adrian Randall. They are supported by Detective Sergeant Duncan Sheppard, who is based at Suffolk Probation Area's head office, so that he can liaise closely with the MAPPA manager, Tim Sykes, who is also there. Det Sgt Sheppard is in charge of nine police public protection officers, who keep a close eye on registered sex offenders and other potentially dangerous people. The nine officers cover the whole of the county, from bases in Ipswich, Lowestoft and Bury St Edmunds. Det Sgt Sheppard said: “We moved to
Detective Sergeant Duncan Sheppard Detective Chief Inspector Debbie Griffiths

offices at Suffolk Probation to greatly enhance the flow of information between the two agencies and support the MAPPA process by being more actively involved in it.” He added: "It's a big investment of resources by Suffolk Constabulary. It will ensure better management of registered sex offenders and potentially dangerous persons.”

Ministerial Foreword
These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the Government's continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the way the MAPPA work. I want to highlight two of them here. Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents will be able to register a child-protection interest in a named individual with whom they have a personal relationship and who has regular unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption that the offences will be disclosed to the parent. Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that robust performance management is in place. To achieve this, we intend to introduce new national standards, which will ensure a consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the standards. We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always room for improvement. I commend this annual report to you as an indication of the commitment, skills and achievements of the professionals, and lay advisers, in managing and monitoring this essential, often difficult area of business. Maria Eagle MP Parliamentary Under Secretary of State

Welcome to this year’s new-look MAPPA annual report. We hope it will give you an insight into how well the Multi Agency Public Protection Arrangements are working to protect the public in Suffolk.
It is now six years since MAPPA started and it continues to go from strength to strength. Close partnership working between Suffolk Probation Area, Suffolk Constabulary, the Prison Service, and other statutory agencies is proving highly effective in managing dangerous offenders. Once again we are able to report that there were no serious further offences committed by MAPPA cases. One of this year’s highlights is the creation of the new Suffolk Constabulary Public Protection Directorate, which is described in this report. The new directorate should further strengthen MAPPA’s attempts to reduce the likelihood and impact of harm to the public. The roll-out of offender management in prisons continues, strengthening public protection and close links with other agencies. These developments are described in this report. MAPPA deals with the most high risk offenders in the county - generally offenders with convictions for sexual or violent crimes. Case studies provide a fascinating insight into the close partnership working involved in MAPPA. It has been another good year for MAPPA in Suffolk, but we must never be complacent. We remain committed to fulfilling our legal duty to protect the public through MAPPA. This report gives reassurances that the MAPPA arrangements are working well in Suffolk and that public protection remains the highest priority.

LES, 60

Sexual Offences Prevention Order. In prison, Les did the sex offender treatment programme. However, feedback suggested he was still denying the offences and blaming the girls. He had few coping or prevention strategies. after the maximum length of time he he could be held in prison, four years. He was released on a licence agreed by MAPPA, with conditions including living at a probation hostel under a curfew, completing the sex offender booster programme, zero contact with any child under the age of 18, a ban from the victim’s home town and from contacting them. He was also denied access to the internet and digital cameras. He had to register with the police, who are the custodians of the sex offender register. Police assessed him as at high risk of sex offending and he is visited frequently by police public protection officers. In conjunction with the police and hostel staff, Les’ behaviour and actions are being monitored, using a range of policing methods. He is complying with the conditions of his licence and his case is under constant review.

Les was babysitting for his nieces when he started abusing He was denied parole, but released them.
The girls, aged nine and 11, eventually told their mum and she went to the police. When police arrested Les at his home they seized his computer and found obscene images of children including his nieces and their friends on it. Les was convicted of ten counts of indecent assault and one charge of downloading and distributing indecent images of children. He denied every charge, insisting the girls had made it all up and that he had been sent all of the images unsolicited. Les’ wife believed her husband, causing a rift to develop between her and her sister, the mother of the girls. The girls, traumatised by the abuse, are still receiving counselling. Les was sent to prison for five years, put on the sex offender register for life, and made subject to an indefinite

Simon Ash Chief Constable Suffolk Constabulary

John Budd Chief Officer Suffolk Probation Area

Adrian Smith Area Manager HM Prison Service



Probation and prison officers working together.

A MAPPA approach has been introduced in Suffolk prisons to improve the management of high-risk inmates and make the county's jails safer. Practice and processes for managing high and very high risk of harm prisoners have seen significant developments over the last year. The shake-up has been driven by changes in policy - including the roll-out of Offender Management Phase 2, and lessons learned from serious further offences. At Highpoint Prison, an Inter Departmental Risk Management Team (IRMT) is now at the heart of managing high risk prisoners. The team provides the focus for the identification, assessment and risk management of all prisoners at the prison. The aim is to identify offenders with a previous or current history of domestic violence; sex offenders, and prisoners posing particular risks to themselves, staff or identified groups. This should reduce risks within the prison and enable intervention and resettlement resources to be accurately targeted. The IRMT is chaired by Head of Offender Management and Resettlement Steve Phillips, and is attended by a core group

drawn from senior, main grade and support staff from the Offender Mangement Unit, probation resettlement, Offender Assessment System (OASys), healthcare, security and psychology departments. Other people who may be able to contribute to the assessment could also be invited.

Senior Probation Officer Bob Farrow said: “These lively and at times challenging meetings have served to develop a shared sense of purpose and ownership of the task of offender management and risk assessment.” The unit, which was recently moved to one location, embraces the work of MAPPA, offender supervision, OASys, resettlement, labour allocations and transfers. Mr Farrow said: “Bringing together administrative, uniformed and probation staff carrying out these complementary functions promotes excellent communication and support for the staff involved. “That communication and support is extended to colleagues in the community, and increasingly offender supervisors are able to carry out joint interviews with offender managers and attend MAPPA meetings in the community.” The high turnover of prisoners and significant percentage of MAPPA cases has created logistical problems for the IRMT, which have led to the set-up of filter meetings for new prisoners and those being discharged, which are chaired by Mr Farrow. This enables the team to concentrate on prisoners that give most cause for concern.

Bob Farrow, senior probation officer, Highpoint Prison

The team meets monthly and details of all new prisoners, those released under MAPPA, and prisoners identified as being of concern are considered by the meeting. Prisoners requiring more detailed discussion are identified by an earlier filter meeting. Additional ad hoc meetings may be convened when particular concerns about prisoners arise. The Offender Management Unit was established in late 2006. It has been refined and developed through regular multi-disciplinary and cross-grade steering group meetings chaired by Mr Phillips.


JAKE, 27
Jake committed his first violent offence at the age of 15. From then on his drink and drug problem spiralled out of control and he was constantly in and out of trouble, some of which landed him in prison.
He came under the management of MAPPA following his arrest for three robberies. First he robbed two men, in separate attacks, including a pensioner who was left badly beaten up. Then he held up a convenience store at knifepoint and stole cash and cigarettes. Jake was sent to prison for six-and-a-half years. While inside he made no effort to sort himself out. He was disciplined several times for fighting with other inmates and he tested positive for drugs. He even bragged to his probation officer that

when he got out he would “do heroin everyday”. He was refused parole, but was released after four-and-a-half years, when he could no longer be legally detained. His probation officer warned there was a high risk of him causing harm to the public and reoffending. Factors leading to this assessment included Jake’s failure to keep to orders in the past, evidence of drug and alcohol use in prison and his lack of co-operation with his probation officer and prison staff. MAPPA and Jake’s probation officer came up with a list of stringent conditions for Jake’s release licence. He was told he must live at an approved probation hostel, keep to curfews and have regular alcohol and drugs tests and he was banned from contact with his victims. He had to keep frequent appointments with his probation officer and complete the Offender Substance Abuse Programme. He had to attend a drug treatment programme and the police alerted officers about his release. Things went well for the first year. He stuck to his conditions and his case was regularly

reviewed by MAPPA. But then he moved out to his own accommodation. Jake lied to his probation officer about his address and additional intelligence uncovered he was taking drugs again. He was sent back to jail, using probation’s recall to prison powers, due to his non compliance and increased risk of reoffending. Jake served a further six months in prison, which took him to the end of his licence. He was then released from prison, with the same conditions as before, and remains under the watchful eye of MAPPA until his sentence expiry date.

KIRK, 38
Kirk had a long history of domestic violence, but it came to a head when he threatened to kill his pregnant wife and held his five-year-old son hostage.
He lived with his 30-year-old wife, and their three children, aged five, three and one. His wife was expecting twins when one day he came home drunk and lashed out in a frenzied attack. He knocked his wife to the ground and threatened to kill her with a kitchen knife - in front of his distraught children. The wife managed to escape, taking the two younger children with her. She ran to the neighbour’s and called the police. When she went back for the oldest child, she found her husband holding their son at knifepoint and threatening to kill him.

Police managed to rescue the child and then arrested Kirk after a struggle, during which a police officer was injured and much of the downstairs furniture was destroyed. Kirk was given a three-and-a-half year public protection sentence and a four-year extended licence. While in prison, Kirk reflected about his behaviour and worked on his alcohol problem. He also took part in employment and education schemes. He was refused parole, but when he was released after two-and-a-half years, his case was managed by MAPPA. He was released to an approved probation hostel, with extensive curfews. He was banned from contact with his wife, and given access to his children under the supervision of social services, including the twins who were born while he was in prison. Kirk was banned from his home town. He had to attend appointments and receive treatment from mental health services. He saw his probation officer frequently, notifying him of any developing relationships with women. He undertook the Integrated Domestic Abuse

Programme and an alcohol course. He also became a member of Alcoholics Anonymous. Kirk’s wife was supported by the police victim care centre and was given a security alarm for added protection. Kirk did well, drawing on the work he did in prison and after his release. He has complied well with all the conditions of his licence and has worked hard at recognising the root causes of his violence and trying to change. He remains under the supervision of MAPPA for the duration of his four-year extended licence.


The strategic management Board is chaired by an Assistant Chief Officer of Probation and meets quarterly bringing together senior managers from the Responsible Authority, the Duty to Co-operate agencies (Youth Offending Teams, Jobcentre Plus, local education authorities, local housing authorities, registered social landlords, local authority social care services, local health partnerships and electronic monitoring providers) and Lay Advisors. The SMB undertakes the following tasks: • Evaluate the day to day operation of MAPPA in Suffolk. • Ensure strong links are maintained for information sharing between the relevant agencies within MAPPA and that memorandum of understanding is adhered to. • Monitor the involvement and participation of all agencies in relevant MAPPA meetings. • Commit resources operationally and strategically to ensure the MAPPA can be delivered consistently across Suffolk to an equally high standard. • Approve and publish the MAPPA annual report and develop a supporting media strategy. • Take forward the development of national and local strategies for the improvement of public protection through the MAPPA annual business plan. • Review cases managed at level 2 & 3 of MAPPA, where a serious further offence has taken place in order that learning and action points are identified to ensure the MAPPA are continually improved and reviewed. The SMB has well developed links with other public protection procedures and a number of its members are involved in or contribute to the Safeguarding Children Board, Crime and Disorder Partnerships, Protection of Vulnerable Adults and the Suffolk Criminal Justice Board.

A week in the life of a... Lay Adviser
Sunday…on the train back from Leeds after the national Lay Advisers
Conference. It has been really helpful to compare roles and experiences with other lay advisers from around the country. We all felt that the ‘critical friend’ role is more important than ever, with the increased profile of public protection in recent months. Our training has been excellent and equips us to help ensure that all the agencies are working effectively together to protect the public in Suffolk, under the MAPPA. the Home Office contact for the Child Sex Offenders Review
to make sure he has contact details for a couple of national organisations I know that work with abuse survivors. The presentation on the Review in Leeds was especially interesting and included consideration of how ‘Megan’s Law’ has worked in the USA. As a parent I was reassured to find the evidence confirmed that our public protection arrangements are the most effective way to manage offenders safely.

Tuesday…ask the Stop It Now campaign for some cards to pass on the
SMB. One of the strengths of the SMB is that senior officers in each of the key agencies can work together on key issues that support the work of MAPPA, such as training and supporting frontline staff. Stop It Now provides a helpline for anyone concerned about their own or a friend’s abusive behaviour. Through the SMB and MAPPA meetings we can ensure the cards reach the people who need them most.

Wednesday…chat to the other Lay Adviser about our role. The training
does bring good suggestions from other regions that we can consider here in Suffolk. We seem to have led the way in some areas - for example maintaining a good relationship with housing departments to ensure housing arrangements are appropriate for offenders on release. The SMB monitors such issues as part of its strategic role. We are keen to discuss other ways to sharpen our monitoring arrangements at the next SMB meeting.

Thursday…communications meeting with MAPPA staff. We start to plan
the annual report and I see this as a really important part of the SMB’s role. Public protection is such a serious responsibility that we. The public, need to have complete confidence in the way it is fulfilled. The Annual Report should give clear and accurate information about what is happening in Suffolk, to provide that confidence.

Friday…look up some of the domestic violence statistics on the Internet, for a
Martin Garside, MAPPA SMB Chair

training project I am working on in my own business. This used to be one of the ‘hidden’ crimes and it is good to reflect that under the IDAP programme, MAPPA are improving the protection of a vulnerable group of people.

Saturday…time for the family at last! Being with the children and
grandchildren really brings it home how important the role of the SMB is in making sure the MAPPA are the best they can be. After a particularly busy week of MAPPA business, I feel confident we are keeping our focus on best practice and responsible management. Jane Chevous, June 2007.

The MAPPA SMB business plan for 2007-08 and review of the 2006-07 plan can be accessed on the Suffolk Constabulary website


The number of registered sex offenders in the community rose from 393 in 2006 to 413 in 2007. This increase occurs because of the length of registration on the sex offender reigister. The numbers increase as more offenders join the register on conviction than leave it at the end of registration. Registered sex offenders who pose a high risk of causing serous harm are managed through the Multi-Agency Public Protection Arrangements. Only 34 of the 413 registered sex offenders required “active and co-ordinated” management through MAPPA, and none of them committed a serious further offence. Compliance with sex offender registration remains high with only 3.8% having been dealt with for a breach of registration e.g. failure to notify change of address.

This year 72 offenders were managed at level 2 and three at level 3 of MAPPA. Fifteen were returned to custody following the involvement of MAPPA for being in breach of their licence conditions. Recall to prison is swift and ensures that offenders are clear about the risks they pose and that they must comply with conditions of their release. Of the three “critical few” offenders, two were returned to custody for non compliance.

In the past year, 11 Sexual Offences Prevention Orders were made by the courts or upon application by the police following conviction. These orders allow extra conditions to be imposed on offenders which give greater control over their behaviour. They are particularly useful when a period of supervised licence ends and MAPPA still remains concerned about someone’s behaviour and the risks they pose.

1. MAPPA offenders: Registered Sex Offenders (RSO)
The number of RSOs living in Suffolk on 31st March 2007. Total 413. By BCU West 102, Southern 185, Eastern 126 61 16


The number of RSOs per 100,000 head of population. The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2006 and 31st March 2007. The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in Suffolk between 1st April 2006 and 31st March 2007. The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in Suffolk between 1st April 2006 and 31st March 2007. The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in Suffolk between 1st April 2006 and 31st March 2007.

(a) 2 (b) 0 (c) 11 (a), (b) and (c) = 0

72 3

(a) and (b) = 0

2. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS)
The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in Suffolk between 1st April 2006 and 31st March 2007. 102


3. Category 3 MAPPA offenders: Other Offenders (OthO)
The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1st April 2006 and 31st March 2007. 12


4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management)
Of the cases managed at levels 3 or 2 how many, whilst managed at that level: (a) Were returned to custody for a breach of licence? (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? (c) Were charged with a serious sexual or violent offence? Level 3 =2, Level 2 = 13 Level 2 and 3 = 0 Level 2 and 3 = 0


Registered sex offenders Those posing high risk of harm, managed by MAPPA


For first time ever criminal justice agencies are sharing a database about some of the country’s most dangerous offenders. The violent offender and sex offender register (ViSOR) is a national database developed by National Offender Management Service and the police. It contains information on some of the country’s most dangerous offenders and is able to show coloured photographs of individuals and can record identifying marks such as tattoos.

The aim of ViSOR is to support multi-agency collaboration in risk assessment and management of violent and sex offenders and generally support the MAPPA processes through information and intelligence sharing within a confidential environment. Police have been using ViSOR for two years. The system is being implemented in prisons and the probation service during 2007/08. It is the first time all agencies have shared an IT system. It is to be used chiefly by public protection staff.

How are offenders supervised ?
Most offenders within the MAPPA are not considered a serious risk. For the majority of offenders supervision means attending regular appointments with probation, police and attending groups or a partnership agency. Such supervision is carried out within a framework of strict national standards, supported by licence conditions and swift enforcement and recall to prison if necessary. Supervision does not constitute 24/7 surveillance of offenders. However within the MAPPA, where resources follow risk, increased monitoring of offenders including surveillance when required is applied to the most dangerous offenders or the “critical few”.

Dos & Don’ts of MAPPA
What MAPPA does: Manages specific types of offenders - registered sex offenders, violent offenders following imprisonment and other offenders posing a risk. Identifies relevant offenders who pose a risk Enhances risk management by sharing information and resources Holds agencies to account and ensures they complete agreed actions Identifies risk management plans and reviews delivery Makes deciscions about offender management which can be defended Uses increased resources and monitoring for the most serious offenders Reduces the impact and likelihood of re-offending MAPPA secures the cooperation of agencies and uses their combined resources to manage risk. What MAPPA doesn’t do: Completely eradicate all risks Keep all offenders under 24 hour surveillance Manage every dangerous person in the community. MAPPA is only responsible for convicted offenders. Directly supervise offenders but coordinates their management through others e.g. police public protection officers, probation officers

The MAPPA in Suffolk is strengthened by the colocation of the MAPPA manager and Police Public Protection Unit. The post of MAPPA manager is jointly funded by agencies involved in MAPPA and is supported by a full time administrator. Formal meetings are held regularly in each of the policing divisions which concentrate on risk assessing and managing offenders in the local community, or who are about to be released from Prison. These meetings are called local risk management meetings and operate at level 2 of MAPPA. In practice MAPPA operates at 3 levels which ensure the most dangerous offenders receive the greatest level of monitoring and scrutiny following the principle that “resources follow risk”. The MAPPA levels: LEVEL 1 Offenders who pose a low or medium risk and who can be managed safely by one agency or through information exchange only. LEVEL 2 Managed at local risk managements meetings and offenders require active and coordinated risk management by several agencies because of complexity of risks and the need for intensive supervision. LEVEL 3 Manages the “critical few” very high risk offenders through Multi-Agency Public Protection Panels. This small group of offenders can only be managed through the close cooperation of senior managers who can commit resources to minimise the risks of re-offending.

Victim Support
The needs and concerns of victims are central to the work of MAPPA. Licence restrictions often include bans on contacting victims - they can even be prohibited from visiting their victims’ hometowns. Dedicated victim contact officers within police and probation keep victims informed about plans made to protect them from the person who harmed them. Their views are also taken into consideration when agreeing risk management plans. John Doylend, area manager for Victim Support Suffolk, is a member of the Suffolk MAPPA Strategic Management Board.

Tim Sykes Suffolk MAPPA Manager

Multi-Agency Public Protection Panels (MAPPPs) operate at level 3 of MAPPA and are convened on an occasional basis to manage very high risk offenders. In 2006/07 only 3 offenders were managed at this level. This is in line with Home Office guidance that only the “critical few” offenders are referred to a MAPPP .

Internet Links
National Offender Management Service: Suffolk Probation Area: Suffolk Constabulary: Prison Service: Suffolk Criminal Justice Board: Suffolk Safeguarding Children Board: Ministry of Justice:


Suffolk Constabulary Detective Chief Inspector (Operations) Crime Management Department Force Headquarters Martlesham Heath Ipswich IP5 3QS (01473) 613806 Suffolk Probation Area Assistant Chief Officer (Public Protection) Peninsular House 11-13 Lower Brook Street Ipswich IP4 1AQ (01473) 408130 Suffolk Youth Offending Service Head of Service Endeavour House, Russell Road Ipswich IP1 2BX (01473) 265178 HM Prison Service Governor HMP Highpoint Stradishall Newmarket CB8 9YN (01440) 743011 Suffolk Victim Support Office 1 Wharfside House Prentice Road Stowmarket IP14 1RD 0845 3899548 Suffolk Mental Health Partnerships NHS Trust Service Manager - East Locality St Clements Hospital Foxhall Road Ipswich IP3 8LS (01473) 329216 Suffolk Adult and Community Services Head of Adult Safeguarding Kerrison Conference Centre Thorndon near Eye IP23 7JG (01379) 672718 JobCentre Plus Advisory Services Manager Ipswich, Woodbridge and Felixstowe Jobcentre Plus Ipswich Jobcentre St Felix House Silent Street, Ipswich IP1 1TF (01473) 267805 Suffolk Children and Young People Services Head of Safeguarding Children Children and Families Endeavour House Russell Road Ipswich IP1 2BX (01473) 264731 Serco Assistant Director, Operational Support Austin House Stannard Place St Crispins Road Norwich NR3 1YF (01603) 428300 Suffolk Housing Officers Group Community Safety and Leisure Manager Babergh District Council, Corks Lane, Hadleigh Suffolk IP7 6SJ (01473) 825766

Further information and contacts
National Association of Victim Support website: The national helpline for victims provides a service at local call rates on 0845 30 30 900. This is available Mondays to Fridays, 9.00 am to 9.00pm, weekends, 9.00am to 7.00pm and bank holidays 9.00am to 5.00pm. Police and probation: telephone numbers can be found in the contact section of this report and in local telephone directories. Ministry of Justice: 020 7210 8500

Produced in Partnership by Suffolk Probation Area and The Publications Unit, Suffolk Constabulary