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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


Ministerial Forward – Maria Eagle MP 2

Joint Statement by Chief Officers 4

Chair’s Report – Detective Superintendent Brian Boxall 5

Organisational Chart 6

A Guide to the Multi-Agency Public Protection Arrangements 7

Contacts and Resources 10

Key Achievements 11

A Lay Adviser’s View – Ann Kenney 13

Statistics 14

Business Plan 2007-2009 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

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.

Surrey Mappa Annual Report 2006-07

Community Public Protection Organisational Chart

Detective + Director of
Superintendent Chair Offender
Public Protection and
attend Management

Detective Chief Chair Area Manager,

and Area Manager,
Inspector Offender
attend Interventions
Public Protection Level Management

Attend Public
Detective Inspector Level Protection
Public Protection 3 Manager
Risk Management and
Unit Chair

5x 1x
4 x Centre
2x Throughcare Hostel
Attend Managers
Detective Sergeants Level Managers Manager
Risk Management 1, 2, 3

10x PC/DC Attend 8 x Senior

Risk Management Level
1, 2, 3
Officers Managers

1 x PC Advisor Attend Offender

1 x Coordinator Level Managers
1 x Administrator 1, 2, 3

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

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

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:

Level 1: involves single agency management. Offenders are

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 Multi-

Agency 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

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


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
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.

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
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

service with the SMB, now that their restructuring is completed,
n work done between the three responsible authorities to ensure that decisions
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 2006-07

Category 1 offenders living in Surrey on 31/03/07:

A Division 79 93
B Division 108 109
C Division 118 129
D Division 85 95
Total 390 426

Sexual Offenders having a registration requirement who were

cautioned or convicted for breaches of the requirement
01/04/06 - 31/03/07 6 19
Sexual Offences Prevention Orders (SOPOs) applied for
01/04/06 - 31/03/07 11 21
Interim SOPOs granted 01/04/06 - 31/03/07 0 1
Full SOPOs imposed 01/04/06 - 31/03/07 11 14
Notification Orders (NOs) applied for 01/04/06 - 31/03/07 0 0
Interim NOs granted 01/04/06 - 31/03/07 0 0
Full NOs imposed 01/04/06 - 31/03/07 0 0
Foreign Travel Orders (FTOs) applied for 01/04/06 - 31/03/07 0 0
FTOs imposed 01/04/06 - 31/03/07 0 0

Category 2 offenders living in Surrey 01/04/06 - 31/03/07 95 91

Category 3 offenders living in Surrey 01/04/06 - 31/03/07 16 26

Level 2 or 3 ...
Category 1 offenders managed at Level 2 n/a* 220
Category 2 offenders managed at Level 2 n/a* 49
Category 3 offenders managed at Level 2 15 24
Category 1 offenders managed at level 3 2 4
Category 2 offenders managed at Level 3 0 1
Category 3 offenders managed at Level 3 1 2

Returned to custody/charged ...

Level 2 cases returned to custody for breach of licence 19 27
Level 3 cases returned to custody for breach of licence 0 0
Level 2 cases returned to custody for breach of a SOPO 3 1
Level 3 cases returned to custody for breach of a SOPO 0 0
Level 2 cases charged with a serious sexual or violent offence 0 2
Level 3 cases charged with a serious sexual or violent offence 0 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.
Surrey Mappa Annual Report 2006-07

Surrey MAPPA Strategic Management Board


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
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
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.

Surrey Mappa Annual Report 2006-07