Surrey Mappa Annual Report 2006-07

Multi-Agency Public Protection Arrangements
Annual Report 2006-07

With pull out MAPPA reference guide

Surrey Mappa Annual Report 2006-07

Ministerial Forward

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 £1.2 million 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


Surrey Mappa Annual Report 2006-07

Contents Ministerial Forward – Maria Eagle MP Joint Statement by Chief Officers Chair’s Report – Detective Superintendent Brian Boxall Organisational Chart A Guide to the Multi-Agency Public Protection Arrangements Contacts and Resources Key Achievements A Lay Adviser’s View – Ann Kenney Statistics Business Plan 2007-2009 2 4 5 6 7 10 11 13 14 15


Surrey Mappa Annual Report 2006-07

Joint Statement by Chief Officers

MAPPA – A Beacon of Growth and Development After six years the MAPPA is now a fixed beacon on the criminal justice landscape. It gives us a structure, in which to work together with the most serious offenders. It allows us to combine skills and experience across services and the agencies creating a level of public protection greater than the sum of the parts and it allows us to show, to quote the Chief Inspector of Probation, that we are “doing our job”. But fixed in the landscape as it may be, MAPPA is not static. It is still evolving, as understanding of risk grows, as practices and procedures are tested and as organisations develop. In particular the creation during the year by Surrey Police of a dedicated management structure for MAPPA, within the Public Protection Strategy Unit, to centralise under one roof all its public protection work, has been hailed as a great step forward in cohesion and in co-ordination with other agencies. Similarly the major training exercise by Surrey Probation in training almost all its staff in risk assessment and management during the year enhanced the quality of MAPPA work. The presence of prison staff from the five Surrey prisons was especially welcome. Police and Probation are working together to raise mutual appreciation of their respective assessment systems. Surrey MAPPA now has a robust business plan, which has resulted among other things in the strengthening of the Strategic Management Board including representatives of mental health forensic services, social services and the Safeguarding Children Board – all vital partners – and the Board seeks to strengthen its links with the Surrey Criminal Justice Board. Next year’s work is likely to include the implementation of the Government’s review of procedures for protecting children against sex offenders and new national guidelines for MAPPA, which will no doubt reflect the learning and experience of the last six years in the context of public concern about crime and Government’s determination to respond. Within Surrey we look forward to the publication of the Surrey MAPPA protocol, which outlines as the law requires how the various agencies within the MAPPA will work together and to continue to place the protection of the public at the heart of what we do. Karen Page, Chief Officer, Surrey Probation Area Robert Quick, Chief Constable, Surrey Police Colin McConnell, Area Manager, HM Prison Service


Surrey Mappa Annual Report 2006-07

Chair’s Report

06/07 has been another busy year, with the Surrey MAPPA continuing to grow and strengthen with improved links being established with the new Surrey Safeguarding Children Board and the Safeguarding Adults Board. Surrey Police has enhanced its structure, with an increase in staff, ensuring a better intelligence flow and a more proactive approach to individuals who pose the highest risk. This change has been fully supported by Probation and Prisons, who continue to work together to effectively manage offenders. The increased use by agencies of the Sex Offender Prevention Order (SOPO) has proved to be a very effective tool and has led to better control over, and in some cases the removal of, dangerous offenders from the community; see the Case Studies below. The Strategic Management Board (SMB) has undertaken audits into the operation of MAPPA. Processes are continually reviewed and updated to ensure they remain effective. Surrey is fortunate to have two very effective lay advisors. They have been fully involved with the SMB and ask the difficult questions. The coming year will prove to be equally challenging, with the recent Home Office review of the protection of children from offenders being the major focus. However, the SMB has produced a business plan that will enable Surrey MAPPA to continue to develop and improve the management of dangerous offenders in Surrey. Brian Boxall, Detective Superintendent Chair Surrey SMB Case Study Mr Z, a registered sex offender, had been subject of intensive media attention, inflaming local parents who objected to his tendency to pass a junior school seemingly at times most likely to encounter children. A Sexual Offences Prevention Order (SOPO) was obtained to restrict this behaviour and attempt to control it. Work was done with the school, to reassure parents and residents. A risk management plan led to Mr Z relocating to another borough. Believing Mr Z to remain a risk, Police took a proactive stance and his behaviour was monitored covertly. Evidence was gathered of Mr Z breaching the conditions of his SOPO. He was arrested and charged and the Court imposed a year’s custodial sentence. Mr Z will be closely monitored upon release. Case Study It looked like a classic case of targeting and grooming by a sex offender but work under the MAPPA nipped it in the bud. Mr. A had originally indecently assaulted the two young daughters of his girlfriend at the time. As a result he was under Probation supervision as well as being a Registered Sex Offender. The Probation Officer discovered he was forming a relationship with another woman in another part of the country. The woman was vulnerable. She had children who were all on a child protection register. Information sharing under the MAPPA involved Police, Probation and Social Services and disclosures were made to the woman. Mr. A. broke off the relationship. 5

Surrey Mappa Annual Report 2006-07

Community Public Protection Organisational Chart

Detective Superintendent Public Protection

SMB Chair + Chair and attend Level 3

Director of Offender Management

Detective Chief Inspector Public Protection

Chair and attend Level 3

Area Manager, Offender Management

Area Manager, Interventions

Detective Inspector Public Protection Risk Management Unit

Attend Level 3 and Chair Level 2

Public Protection Manager

2x Detective Sergeants Risk Management Unit 10x PC/DC Risk Management Officers

Attend Level 1, 2, 3

4 x Centre Managers

5x Throughcare Managers

1x Hostel Manager

Attend Level 1, 2, 3

8 x Senior Offender Managers

1 x PC Advisor 1 x Coordinator 1 x Administrator

Attend Level 1, 2, 3

Offender Managers

Duty to Cooperate Agencies, including: Local Authorities, NHS, Youth Justice, Housing, Education, Electronic Monitoring


Surrey Mappa Annual Report 2006-07

A Guide to the Multi-Agency Public Protection Arrangements The Criminal Justice Act 2003, s.224 defines serious harm as “death or serious personal injury, whether physical or psychological” and ‘MAPPA’ is the term to describe the arrangements set up locally to assess and manage offenders who pose a risk of serious harm. The Structure The Criminal Justice and Court Services Act (2000) established the Multi-Agency Public Protection Arrangements and placed them on a statutory basis. The Criminal Justice Act (2003) re-enacted and strengthened those provisions. The legislation requires the Police, Prison and Probation Services (acting jointly as the ‘Responsible Authority’) in each of the 42 areas of England and Wales to:
n establish arrangements for assessing and managing the risks posed by sexual

and violent offenders; n review and monitor the arrangements; n (as part of the reviewing and monitoring arrangements) prepare and publish an annual report on their operation.

A range of other agencies have also been placed under a duty to co-operate with the Responsible Authority. These include:
n n n n n n n n

Local Authority Social Services Primary Care Trusts, other NHS Trusts and Strategic Health Authorities Jobcentres Plus Youth Justice Teams Registered Social Landlords who accommodate MAPPA offenders Local Housing Authorities Local Education Authorities Electronic Monitoring providers

Overseeing the work within Surrey is the Strategic Management Board (SMB). The Surrey SMB is chaired by a senior Police Officer and includes representatives from Responsible Authority Agencies and other ‘Duty to Co-operate’ Agencies. There is also a requirement to appoint two lay advisors to the SMB. The SMB ensures local arrangements are effective and consistent with national guidance.


Surrey Mappa Annual Report 2006-07

Categories and Levels Under MAPPA, there are three categories* of offender: Category 1: Registered Sex Offenders - offenders required to comply with the notification requirements (often referred to as registration) set out in the Sexual Offenders Act 2003. Category 2: Violent or other sex offenders who have committed offences listed in Sch 15 of the Criminal Justice Act 2003 and sentenced to imprisonment fro 12 months or more and offenders detained under Hospital Orders. Category 3: Other Offenders - offenders who do not fall into Categories 1 or 2 but, because of the offences committed by them (wherever they have been committed), are considered to pose a risk of serious harm to the public.

There are three levels* of management: involves single agency management. Offenders are Level 1: dealt with by Police or Probation alone – although practitioners in either Service will liaise individually. Level 1 offenders are usually assessed as having a low or medium probability of committing further serious harm but do not need formal joint agency working. Level 2: referred to as local inter-agency management, where the active involvement of more than one agency is required to manage the offender. Most offenders assessed as high or very high risk of serious harm can be managed at Level 2 where the management plans do not require the attendance and commitment of resources at a senior level. Level 3: Level 3 activity meetings are known in all Areas as MultiAgency Public Protection Panels (or MAPPPs). The few cases referred to MAPPPs are those of offenders whose management is so problematic (including those that attract media attention) that multi-agency co-operation and oversight at a senior level is required, together with the authority to commit exceptional resources to strengthen the risk management plan.

* It is possible for an offender to move between both Categories and Levels over time. However, movement between levels is more frequent than between categories, given that risk is influenced by dynamic factors, such as accommodation, substance misuse, employment, mental health and relationships.


Surrey Mappa Annual Report 2006-07

How it works on the ground… Identification - Any Agency may refer to an offender under one of the Categories listed above. Information Sharing - The referral will include (as applicable) the agency’s own current risk assessment, sentence details, offending history, other agencies involved and the agency’s internal risk management plan. Risk Assessment - It is then the responsibility of the MAPPA agencies to risk assess and assign to a Level. Risk Management - A risk management plan is then formulated to minimise the of further offending and/or the impact of any further offence. That plan is then reviewed on a regular basis – with defensible decisions and actions being made. One of the tools available to manage risk is disclosure. Disclosure may constitute giving information to individuals within organisations (eg. A leader of a faith group or a Head teacher), warning a potential victim or, in extreme cases, wider disclosure to community groups. In all cases, proportionality is considered and the right of the offender is balanced against the risk that he or she poses. Additional Restrictions Separate to any sentences passed by a Court, following conviction for past behaviour, there are three Orders that seek to control future behaviour: Sexual Offences Prevention Orders place prohibitions on behaviour and can be used where an offender with a relevant conviction or caution for an offence is considered to pose a risk of serious sexual harm. It does not matter when the conviction or caution was received. Notification Orders require sexual offenders who have been convicted overseas to register with police, in order to protect the public in the UK from the risks that they pose. Foreign Travel Orders prevent offenders, with convictions for sexual offences against children, from travelling abroad where it is necessary to protect children from the risk of sexual harm. A breach of these Orders, without reasonable excuse, is a criminal offence with a maximum penalty of five years imprisonment.


Surrey Mappa Annual Report 2006-07

CONTACTS AND RESOURCES Members of the Responsible Authority: Surrey Police Mount Browne, Sandy Lane, Guildford, GU3 1HG, T: 01483 571212 Surrey Probation Area Bridge House, Flambard Way, Godalming, GU7 1JB, T: 01483 860191 HM Prison Service 2nd Floor, White Rose Court, White Rose Lane, Woking, GU22 7PJ, T: 02072 172538 Other Agencies represented on the SMB: Youth Justice Service Quadrant Court, 35 Guildford Road, Woking, GU22 7QQ, T: 01483 517000 Children and Family Services (including the Safeguarding Children Board) Fairmount House, Bull Hill, Leatherhead, KT22 7AH, T: 01372 833000 Surrey and Borders NHS Trust Trust HQ, Ronson Way, Leatherhead, Surrey, T: 01483 443659

Other Agencies: Surrey Women’s Aid & Domestic Violence Helpline T: 01483 776822 Stop It Now! T: 0808 1000 900 Lucy Faithful Foundation 46-48 East Street, Epsom, KT17 1HB, T: 0870 774 6354 Victim Support East Surrey: Reigate Police Station, 79 Reigate Road, Reigate, RH2 0RY, T: 01737 766323 Epsom & Ewell: Old Town Hall, The Parade, Epsom, KT18 5AG, T: 01372 743650 Esher & District: The Claygate Centre, Elm Road, Claygate, Esher, KT10 0EH, T: 01372 470690 Guildford: Ash Police Office, 120 Ash Street, Ash, GU12 6LL, T: 01252 326052 North West Surrey: 15a Monument Way East, Woking, GU21 5LY, T: 01483 770457 Runnymede, Elmbridge & Spelthorne: Addlestone Police Station, Garfield Road, Addlestone, KT15 2NW, T: 01932 855 1100 Waverley: Farnham Police Station, Longbridge, Farnham, GU9 7PZ, T: 01252 573351


Surrey Mappa Annual Report 2006-07

Key Achievements Key Achievements 1: the Public Protection Risk Management Unit (PPRMU) at Surrey Police HQ
n During the second half of the 2006-7 year, responsibility for Public Protection

policing for Dangerous, Violent or Sex offenders transferred from the four Divisions to the centralised Public Protection Risk Management Unit based at Surrey Police Headquarters.

Why the new Unit? With the Government Review of the ‘Protection of Children from Sex Offenders’ under way and the recently formed (2006) Child Exploitation and Online Protection Centre (CEOP) taking a national responsibility for collating information on online offending against children, it was recognised that more offenders will be traced and convicted and therefore increase the police responsibility for managing the risk to the public. The Public Protection Risk Management Unit is a dedicated team of officers who police those managed under MAPPA. The team consists of a Detective Inspector, two Detective Sergeants, a Force Advisor, a Co-ordinator and an Administrator who in turn support the ten Risk Management Officers (RMOs); the RMOs are geographically based out in the four Divisions. The RMOs continue to have the day to day contact with, and management of, the offenders but now with additional support of this management structure; at year end, the RMOs managed 426 Category 1, 91 Category 2 and 18 Category 3 offenders (see p8 for category definitions). The PPRMU also provides a co-ordinated response to strategic issues for the Force, and on National debates. It provides the Single Point of Contact for the Force on all issues relating to offenders managed under MAPPA. It co-ordinates and disseminates the ever developing policy and legislation, feeding back to ACPO and Ministers. Key Achievements 2: SMB progress against the 2006-2007 Business Plan
n The 2006-2007 Business Plan was designed to help the Board fulfil its statutory duty

to establish, monitor and evaluate robust processes to ensure effective MAPPA in Surrey. It was structured to mirror and include the National MAPPA Business Plan and objectives. This review compares progress to date with intended progress from the original document.

Achievements have been listed for either specific actions completed or outcomes clearly achieved within the objective. Achievements are listed within their business area and by the objective number:


Surrey Mappa Annual Report 2006-07

Business Area 1: MAPPA Development (progress within 4 of 6 objectives) 1.1 Administration and Co-ordination of MAPPA within independent agencies Police and Probation have been reviewed (including the joint funded position) and restructuring of police support in particular has been carried out. 1.2 Core membership of SMB strengthened with links to other public protection agencies (for example Mental Health and Vulnerable Adults) and reviewed regularly. 1.3 Protocols for Duty to Co-operate Agencies developed, completed and agreed. 1.4 Referral processes and determination of thresholds for appropriate supervision levels are have been reviewed at the two audit meetings held in the year and statistical data on this was reviewed quarterly. Business Area 2: Monitoring and Evaluation (progress within 2 of 4 objectives) 2.1 Statistical Analysis subgroup established to provide quantitative and qualitative risk management information quarterly, SMB reporting formats agreed and instigation of quarterly collection of data required by Home Office. 2.3 Bi-annual Audit meetings held twice a year. In 2006/2007 these were specifically to assess i) consistency of threshold application for appropriate supervision level and ii) improvements made to risk management panel minutes following introduction of new agenda and minute template to assist in process. Business Area 3: Communication and Partnerships (progress within 2 of 3 objectives) 3.2 Links with other public protection bodies have been developed through review of core membership of the SMB and formalised by inclusion of feedback item on SMB agenda. 3.3 Annual Report was developed to contain standing information on MAPPA in Surrey for use more widely in the future and systems in place to assist with collation of future reports. Joint publication of information for the public has been explored. Business Area 4: Training (Progress within 3 of 4 objectives) 4.1 Induction/Training of SMB members has been encouraged as appropriate to individuals’ needs. Outcomes include SMB members attending meetings with operational practitioners and attendance at risk management panels. 4.2 Centralisation of MAPPA guidance circulars instigated to assist with effective dissemination. 4.4 Identified training need for raising awareness of practitioners within MAPPA on the professions and practices of their fellow agencies, to improve the quality of information sharing for development of risk management plans. Progress, defined as a positive outcome of a recorded action, has been achieved within all four of the business areas of the plan. This review does not record progress such as research or discussions held on items that the Board is developing as part of the longer term plan, but it acknowledges that progress in that sense has also been made but is outside the definitions used. 12

Surrey Mappa Annual Report 2006-07

A Lay Adviser’s View… I have been a lay adviser with the Surrey MAPPA SMB for over eighteen months. In that time I have regularly attended SMB meetings and audit meetings, and observed practice of both Level 2 and Level 3 risk assessment and management panels. From this position I would like to make the following statements about the processes and practices within MAPPA in Surrey. My general impression of MAPPA at work is that of dedicated and competent practitioners who strive to monitor and manage sexual, violent and other dangerous offenders in the community using all the available and appropriate resources. I believe that the SMB has made every effort to fulfil its duty to public protection in Surrey and to deliver the business plan that it produced for 2006/2007. My impression from my experience in Surrey and the national training and conference I attended is that the engagement of the responsible authorities, duty to co-operate agencies, SMB and lay advisers in Surrey, is one of the better examples of MAPPA at work in England and Wales. My concerns which have arisen over the last twelve months have been around implementation of SMB recommendations and how best to ensure robust feedback and subsequent improvement of MAPPA practices. I am pleased to report that Lay Adviser feedback is an agenda item and as such all such feedback has been minuted and discussed at the Board meetings. On a national level, I share the concerns of many of my counterpart lay advisers around the country, namely: n increasing MAPPA workload due to government legislation overloading a currently effective system, n under-resourced responsible agencies carrying the existing and ever-increasing workload, n the national shortage of secure, supervised accommodation for offenders returning to the community, n the lack of ring-fenced finance from central government for the administration of MAPPA as a public protection framework over and above the already considerable duties of the agencies involved. These concerns have also been fed back to the relevant government office. Personally, I hope that over the coming year we will see:
n more consistent representation and engagement in Surrey from the prison n work done between the three responsible authorities to ensure that decisions

service with the SMB, now that their restructuring is completed,

and recommendations to support staff and improve practices are better implemented and monitored, n some positive movement from central government regarding funding the administration of MAPPA. Ann Kenney Lay Adviser


Surrey Mappa Annual Report 2006-07

Mappa Statistics
2005-06 Category 1 offenders living in Surrey on 31/03/07: A Division B Division C Division D Division Total Sexual Offenders having a registration requirement who were cautioned or convicted for breaches of the requirement 01/04/06 - 31/03/07 Sexual Offences Prevention Orders (SOPOs) applied for 01/04/06 - 31/03/07 Interim SOPOs granted 01/04/06 - 31/03/07 Full SOPOs imposed 01/04/06 - 31/03/07 Notification Orders (NOs) applied for 01/04/06 - 31/03/07 Interim NOs granted 01/04/06 - 31/03/07 Full NOs imposed 01/04/06 - 31/03/07 Foreign Travel Orders (FTOs) applied for 01/04/06 - 31/03/07 FTOs imposed 01/04/06 - 31/03/07 Category 2 offenders living in Surrey 01/04/06 - 31/03/07 Category 3 offenders living in Surrey 01/04/06 - 31/03/07 Level 2 or 3 ... Category 1 offenders managed at Level 2 Category 2 offenders managed at Level 2 Category 3 offenders managed at Level 2 Category 1 offenders managed at level 3 Category 2 offenders managed at Level 3 Category 3 offenders managed at Level 3 2006-07

79 108 118 85 390

93 109 129 95 426

6 11 0 11 0 0 0 0 0 95 16

19 21 1 14 0 0 0 0 0 91 26

n/a* n/a* 15 2 0 1

220 49 24 4 1 2

Returned to custody/charged ... Level 2 cases returned to custody for breach of licence Level 3 cases returned to custody for breach of licence Level 2 cases returned to custody for breach of a SOPO Level 3 cases returned to custody for breach of a SOPO Level 2 cases charged with a serious sexual or violent offence Level 3 cases charged with a serious sexual or violent offence

19 0 3 0 0 0

27 0 1 0 2 0

* The Surrey Mappa Annual Report did not record these figures in 2005/6. Note: As offenders can move both categories and levels, the above figures may not add up exactly. However, from 2007/8, the Ministry of Justice will be asking for a break down of Level 1 cases. 14

Surrey Mappa Annual Report 2006-07

Surrey MAPPA Strategic Management Board BUSINESS PLAN FOR 2007/09
The purpose of MAPPA is to assess and manage the risks posed by sexual and violent offenders and others who may cause serious harm to the public through offending. The duty of the Surrey SMB is to establish, monitor and evaluate robust processes to ensure that multi-agency arrangements make a positive contribution to protecting the public. The Surrey SMB has identified four business areas that constitute its Business Plan for the following two years: Business Area 1: MAPPA development 1.1 To review the MAPPA Administration and Co-ordination provision with regard to the National Objectives. 1.2 To continue to review the core membership of the SMB against key organisational changes and invite special advisors to board meetings when necessary. 1.3 To agree and complete protocols across all agencies with supporting processes for monitoring and review. 1.4 To continue the refinement of processes for accurately determining thresholds and referring cases within MAPPA. 1.5 To look at implementing a process for Serious Case Reviews within MAPPA. 1.6 To ensure compliance with National Guidance. Business Area 2: Monitoring and Evaluation 2.1 To ensure quality and relevant information is provided to the Board and continually reviewed. 2.2 To monitor actions on from Serious Case Reviews and Serious Further Offences within MAPPA. 2.3 To undertake bi-annual audit and review meetings and develop and review a framework to improve audit practice. 2.3.1 To feed back to staff and agencies audit process conclusions, recommendations and key learning points. 2.4 To monitor and review processes to ensure victim focus of MAPPA activities. Business Area 3: Communication and Partnerships 3.1 To develop a communication strategy to increase public awareness of MAPPA in Surrey, to include identifying and increasing public confidence in joint working. Also to include exploring joint communication plans with other responsible agencies. 3.2 To develop formal reporting links with other public protection bodies. 3.3 To prepare and publish annual report to satisfy statutory requirements and use as more general information document. Business Area 4: Training 4.1 To facilitate induction/awareness training for SMB members as appropriate. 4.2 To ensure dissemination of legislative changes and guidance to SMB and MAPPA staff. 4.3 To implement training previously identified for MAPPA staff by SMB. 4.4 To continue to identify, organise and implement training needs for all MAPPA staff. 15

Surrey Mappa Annual Report 2006-07