Annual Report 2006/07

Sussex Multi Agency Public Protection Arrangements

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 £1.2million 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

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Ministerial Foreword 1



Key Achievements


How MAPPA Operates In Sussex


So Who Is Managed Under MAPPA?


How Are Offenders Managed?


Case Example


What MAPPA Can Do


Case Example


MAPPA Annual Report Statistical INFORMATION - 2006/07


What Do The Statistics Tell Us?


The Strategic Management Board


Contact Details


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We are pleased to introduce the 2006-2007 Annual Report on the Multi-Agency Public Protection Arrangements (MAPPA) in Sussex.This is the sixth Annual Report produced since MAPPA began operation across England and Wales in 2001.The report details how MAPPA in Sussex continues to develop.The risk of serious harm being inflicted on others by a small number of dangerous individuals can never be totally eliminated.We do believe however, that the ongoing development of MAPPA will result in increasingly effective work to reduce this risk to a minimum. In achieving this, it is vital that those within the Criminal Justice system who pose the most significant risk are accurately and promptly identified, and that resources are appropriately targeted at these individuals.The evidence within the report suggests that this targeting continues to be refined and improved. Sussex MAPPA has continued to build links to other local bodies concerned with Public Protection. The relationship with the Local Criminal Justice Board has been reinforced and the launch of Sussex wide Procedures for Safeguarding Children has resulted in more explicit linkage between MAPPA and Child Protection structures including more detailed procedural advice for front line staff. The “Responsible Authority” for MAPPA, Sussex Police, Sussex Probation and HM Prison Service, continues to work closely with a range of other key agencies.These include Children and Young People’s Services, Housing Authorities, the Health Service,Victim Support, Job Centre Plus and Youth Offending Teams. Effective management of risk depends on close partnership working between these agencies.We support the way in which areas across the South-East Region have developed their mechanisms to share best practice and will encourage further co-operation. We are keen to encourage the future development of MAPPA.To this end we will support regional quality audits.We will seek to align multi-agency management of risk in domestic violence cases with MAPPA and we will review our infrastructure to ensure that knowledge and responsibility for MAPPA and public protection is broadened and increased. The Multi-Agency Public Protection Arrangements in Sussex continue to improve.This is an effective method of assessing and managing the small number of dangerous offenders in our community.The protection of the public and the needs of victims remain our highest priorities.

Adrian Smith Area Manager Sussex and Kent HMP

Martin Richards Chief Constable Sussex Police

Brian Clark Chief Officer National Probation Service

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Key Achievements
During 2006 – 2007, the following achievements have strengthened the strategic and operational functions of MAPPA in Sussex.

An updated and comprehensive set of local MAPPA procedures has been launched and deployed within all agencies. Clear procedural guidance linking MAPPA and child protection work has been included in the Sussex Safeguarding Children Procedures. Work has begun to join the management of risk within MAPPA to multi-agency work to counter domestic violence. The Lay Advisor Role has increased in influence and importance. A national Lay Advisor Conference was held which has further encouraged this development. Sussex MAPPA have procedures in place to review any cases where those managed within MAPPA commit a serious further offence.These are in advance of a national procedure expected later this year. Training and Communication groups have been established and are working to broaden knowledge and understanding of MAPPA. Sussex MAPPA have taken the lead in promoting the sharing of best practice and regional co-operation including the organisation of a South-East Regional MAPPA Seminar.







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How MAPPA Operates In Sussex
There are many aspects to protecting the public and managing the risks from sexual, violent and other dangerous offenders.The fundamental purpose of MAPPA is public safety, the protection of victims and the reduction of serious harm. In Sussex, the day to day work of all the agencies involved in public protection provides the backbone to effective risk assessment and management. MAPPA provides a strong framework in which the skills of relevant agencies can be combined to assess and manage the risks posed by offenders living within the community.

So Who Is Managed Under MAPPA?
MAPPA works on a clear categorisation process:-

Registered Sex Offenders1

Violent Offenders2 or other Sex Offenders1 who are on licence to the Probation Service

Other Offenders who have a previous conviction for an offence and who pose a risk of serious harm to the public

How Are Offenders Managed?
The MAPPA process also has a series of levels under which all MAPPA offenders, depending on their risk levels, are managed.This structure of risk management is intended to enable resources to be deployed to manage the identified risks in the most efficient and effective manner.The three risk management levels are as follows:-

An offender who poses a low to medium risk Level 1 - risk management is used when the risks posed by the offender can be managed by one agency without significantly involving other agencies

An offender who poses a medium to high risk

One of the ‘critical few’

Level 2 – risk management is used where the active involvement of more than one agency is required but where either the level of risk or the complexity is not so great as to require a referral to Level 3

Level 3 – risk management is for those offenders who pose the highest risk of causing serious harm to the public and whose management is complex

Footnote 1 Sexual Offenders are deemed as those people registered with the police under the Sex Offenders Act 1997 or someone who has been given a sentence related to a sexual offence for 12 months or more since April 2001. 2 Violent Offenders are those who have committed a violent offence and have been given a sentence of 12 months or more.

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Case Example – Category 1: Registered Sex Offender
Steve was released at the end of a four year Prison sentence for indecently assaulting pre-pubescent girls. Steve is on licence for 2 years after release. He has been managed at Level 3 in MAPPA. He has a history of “grooming” young girls who he has met through involvement with community groups. Steve cannot return to his home area partly because of the exclusion zone on his licence and partly because his family have moved away. His mother moved to Sussex and he wanted to live with her on release. Steve completed part of a Sex Offender Treatment Programme in Prison but the programme staff believed further treatment was required in the community. Steve was not allowed to go to his mother’s on release because there were concerns that he would pressure her into lying on his behalf should he begin to groom children again. He went initially to a Hostel where his behaviour could be observed more closely. He was also required to attend a Sex Offender Treatment Programme in the community. Steve complied with these requirements but informed his Probation Officer that he was attending a local church.This did not breach his licence conditions but raised concerns that he may use church activity groups to resume his grooming activities. As a result the MAPPA meeting made the decision to make a limited disclosure to the pastor and church elders. Steve was very angry about this but was offered the opportunity to accompany a Police Officer and his Probation Officer to the meeting and disclose his pattern of offending himself. Steve took this opportunity and the church have agreed to prevent any access to groups where children may be present. Steve continues to comply with his licence and remains in treatment.

Case Example - Category 2: Violent Offender
Brian was sentenced to 7 years imprisonment for serious assaults. His victims included his then partner and strangers. He was released without gaining early release on Parole but with an extended period of licence supervision of 2 years imposed by the Court at the point of sentence. A range of risk factors were identified in relation to Brian’s behaviour, particularly drug and alcohol misuse and psychological problems related to his own physical abuse as a child. Brian’s licence included conditions to comply with treatment for substance misuse. Regular appointments with a Forensic Psychologist were set up in addition to twice weekly visits to Probation and joint home visits by Probation and Police. Brian has been out of prison for a year. He has attended all appointments and complied fully with his management plan so far. He has provided clean drug tests. Unlike previous periods of supervision, Brian has also used contact with his Probation Officer to seek advice on dealing with problems as they arise. He is now at the point where he may be able to obtain and sustain regular employment.The close monitoring arrangements will continue.

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Case Example - Category 3 : Other Offenders
Peter was sentenced to 12 years imprisonment for offences involving drug dealing and firearms. Towards the end of his sentence Peter’s mental health deteriorated and he was eventually transferred to a secure psychiatric unit and was detained beyond the end of his sentence under the Mental Health Act.When he reached the point at which his doctors considered he was well enough for discharge to be considered, the Forensic Mental Health Service referred Peter to MAPPA and he has been managed at Level 3. A graduated programme of day release was agreed. Peter was to be discharged to his parents’ home and his parents were involved in the planning to ensure that Peter continued to take his medication when discharged. Peter was also made aware that monitoring arrangements by local Police would be in place in relation to any resumption of his criminal activities and the local psychiatric services were made aware of the behaviours that may indicate deterioration in Peter’s condition and a raised risk of re-offending. Peter remains compliant with his medication and is currently stable.

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What MAPPA Can Do
Most offenders come into MAPPA having received a Prison sentence and will be on licence and therefore under the supervision of the Probation Service for a set period determined by the Parole Board. Standard conditions of a post-release licence are that an offender must comply with reporting instructions and be of good behaviour.The good behaviour condition is breached in the event not only of further offending but also if reliable information about serious deterioration of behaviour is reported. Additional conditions on licences may include:q Non-contact conditions with the victim. q Exclusion zones from the immediate area where the victim lives/works. q Condition to reside as directed. q Condition to receive treatment for substance misuse/psychiatric treatment/sex offender treatment programme. q Condition not to have contact with children. q Condition not to contact certain individuals. The conditions on each licence will be discussed within MAPPA and agreed by all agencies. Breach of licence can, and in the case of offenders managed at MAPPA Levels 2 and 3 will almost certainly, result in recall to Prison.This can be achieved within a matter of hours. Other mechanisms are available in addition to licence conditions.These can run in tandem with a licence period but are also applicable in cases where offenders are not under Probation supervision. Sex Offender Registration periods are very lengthy (sometimes lifelong) and often exceed licence periods. Offenders can also be released after recall at the end of their sentence with no period of licence supervision.The 4 civil orders introduced by the 2003 Sex Offender Act may be applicable in such cases.These orders are:-

1. Sexual Offences Prevention Orders
Sexual Offences Prevention Orders (SOPOs) are intended to protect the public from the risks posed by convicted sex offenders by placing restrictions on their behaviour.The order seeks to restrict an offender’s ability and opportunity to engage in grooming or preparatory behaviour for the purposes of sexually abusing children. For example, the SOPO may:® Prohibit an offender from associating and/or working with children under the age of 16 years. ® Restrict an offender from entering children’s’ playgrounds, visiting local swimming pools or frequenting any other area that is used by children. ® Place a curfew to restrict an offenders movements at certain times of the day or on certain days of the week. ® Prohibit the ownership of computers or any other multi-media storage device. ® Prohibit an offender from engaging in certain activities such as visiting chat rooms on the internet. The minimum duration for a full order is 5 years; however, there is no upper time limit.

2. Risk Of Sexual Harm Orders
This order is similar in content to the Sexual Offences Prevention Order in that it aims to restrict and deter the activities of those individuals involved in grooming children for sexual activity.The main difference is that this order can be used on individuals who have no previous convictions or cautions for sexual offences.The minimum duration of a Risk of Sexual Harm Order is 2 years.

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3. Notification Orders
This order can be applied to any individual who has been convicted or cautioned for a sexual offence that was committed whilst the offender was abroad. In effect, on their return to the UK, the order makes any such offender subject to the full requirements of the Sex Offender Register.This in turn, would make the offender subject to MAPPA.

4. Foreign Travel Orders
In certain circumstances, this order can be used to prohibit those offenders convicted of sexual offences against children under 16 years of age from travelling overseas.This order would be used when there is evidence to indicate that the offender intends to cause serious sexual harm to children in a foreign country. Other civil orders may be applicable in cases where the threat may relate to domestic violence or stalking. Disclosure to particular individuals or groups who may be at risk from an offender or who may be able to assist in the management of that risk is a further tool available to MAPPA. An example is given in one of the case studies above. Finally it is important to bear in mind what MAPPA cannot do. Offenders cannot be detained in custody beyond their sentence end date however high the risk is assessed to be.Whilst Police monitoring and surveillance is certainly part of the MAPPA toolkit in cases where an immediate risk of serious harm is assessed, this applies in a very small number of cases. It is not realistic for Police or Probation to monitor MAPPA offenders 24 hours a day. It must also be appreciated that MAPPA deals only with those offenders already convicted of sexual or serious violent offences.

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Case Example Category 1 – Registered Sex Offender
Martin is a Registered Sex Offender who was released after a lengthy Prison sentence for the abduction of a child. He has been managed by MAPPA at Level 3. Prior to his release information was shared concerning his conduct in Prison including his negative response to treatment referrals and his associates. Martin was considered to pose a high risk of harm to children. Prior to his release on licence the Probation Service had discussed his release plan with other agencies and consulted the victim and his family.These consultations resulted in a number of conditions being placed on Martin’s licence including: an exclusion zone from the area directly adjacent to the victim’s home; not to contact anyone under 18; a condition to reside as directed by his Probation Officer. On these conditions he was released on licence for 18 months. In the first instance Martin was directed to live at a Hostel outside Sussex. Hostel staff and other local agencies were fully involved in the Risk Management Plan and the Police arranged to monitor his movements and ensure that rapid action was taken if Martin breached his conditions. For the first few weeks Martin settled well at the Hostel. Hostel staff became concerned when he began to drink heavily, a sign that his risk of re-offending may be increasing.This information was passed on to the Police. A few days later Police observed Martin in a nearby park talking to young boys. His licence was revoked and he was arrested and returned to custody the same day. Martin was re-released at the end of his licence period and returned to live with family members in Sussex. He is subject to a Sexual Offence Prevention Order which prohibits contact with children for life. He also remains on the Sex Offenders Register for life. As well as visiting Martin and his family, efforts have been made to secure suitable long-term accommodation for Martin as well as alcohol counselling and employment which have been stabilising factors in the past.When Martin chose to move out of the family home without informing Police he was arrested for breaching his registration requirement. He was resentenced to a brief custodial sentence and will once again be supervised on licence on release. Martin is likely to continue to pose a risk to children but the close co-operation of a range of agencies under MAPPA has monitored this risk closely.We will continue to do so whilst also seeking to provide some structure and stability that may assist Martin in reducing the risk he poses.

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Case Example : Category 2Violent Offender
Geoff was released on licence for 12 months, having been sentenced to 4 years imprisonment for offences of wounding against his partner. He has been managed at MAPPA Level 2. A condition was included on Geoff ’s licence that required him to attend a 6 month programme run by the Probation Service for men who are convicted of domestic violence.The victim had left Sussex but she took up the offer of contact with a Women’s Support Worker. Geoff complied with his condition of attendance on the programme. However through the Support Worker, his Probation Officer learned that he had re-established contact with his ex-partner and was pressuring her to resume the relationship. As a result of this information Sussex MAPPA was able to liaise with MAPPA in the area where Geoff ’s ex-partner lived and put safeguards in place in the event of Geoff moving to that area. Programme staff were also able to make use of the information in their work with Geoff even though his ex-partner’s confidence was maintained. As a result Geoff has been able to consider more realistically whether his former partner would consider resuming the relationship. More recently his ex-partner has reported to the Women’s Support Worker that Geoff has contacted her to apologise and acknowledge that the relationship is over. Geoff has now completed the programme but remains on licence.

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MAPPA Annual Report Statistical INFORMATION - 2006/07
CATEGORY 1 MAPPA OFFENDERS - RSOS i) The number of Registered Sex Offenders (RSOs) living in Sussex on 31st March 2007 The number of RSOs living in Sussex on 31st March 2007 BRIGHTON & HOVE 145 NORTH DOWNS 138 WEST DOWNS 233 EAST SUSSEX 273 AREA TOTAL 789

ia) ii)

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 - 31st March 2007 The number of (between 1st April 2006 - 31st March 2007):Sexual Offences Prevention Orders (SOPOs) applied for Interim SOPOs granted Full SOPOs imposed by the courts The number of (between 1st April 2006 - 31st March 2007):Notification Orders applied for Interim Notification Orders granted Full Notification Orders imposed by the court The number of Foreign Travel Orders (between 1st April 2006 31st March 2007):Applied for Imposed by the courts

52 38


22 3 19


0 0 0


0 0

CATEGORY 2 MAPPA OFFENDERS – VIOLENT & OTHER SEX OFFENDERS vi) The number of violent and other offenders living in Sussex between 1st April 2006 and 31st March 2007 AREA TOTAL 410

CATEGORY 3 MAPPA OFFENDERS – OTHER OFFENDERS vii) The number of other offenders living in Sussex between 1st April 2006 and 31st March 2007 AREA TOTAL 7

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viii) The number of MAPPA offenders in each of the 3 categories that have been managed at Level 2 and Level 3 (between 1st April 2006 - 31st March 2007):CAT 1 61 9 CAT 2 51 9 CAT 3 4 3


Of the cases managed at Level 2 & 3 (between 1st April 2006 - 31st March 2007) how many were:LEVEL 2 24 3 1 LEVEL 3 9 0 0

a) returned to custody for breach of licence? b) returned to custody for breach of a SOPO? c) charged with a serious sexual or violent offence?

What Do The Statistics Tell Us?
Registered Sex Offenders
For the first year since MAPPA statistics were collated, there has been a very small drop in the number of Registered Sex Offenders in Sussex.The long-term trend is likely to be one of a gradual increase in numbers because registration periods are often lengthy so that more offenders are usually added to the register each year than drop off. There has been a rise in cautions and convictions for breach of registration requirements.This reflects the additional resource that Sussex Police have applied to the monitoring of registration and the growing impact of the tighter registration criteria that came into effect in April 2005.

Civil Orders
The SOPO is the order with the widest application; the other civil orders apply only in very particular circumstances.The increased use of SOPOs this year reflects a greater awareness within MAPPA and in particular Sussex Police of the usefulness of such orders in managing offenders. It may also reflect more willingness by Courts to use SOPOs.

Violent Offenders
There is a small increase in the number of violent offenders managed within MAPPA this year.This figure will continue to rise if Courts continue to increase the length and severity of sentencing for such offences.

Considerable effort has gone into developing consistent procedures across Sussex MAPPA so that the offenders who pose the greatest risk are identified and targeted with the most effective and intrusive interventions.The reduction in the numbers of offenders managed at Levels 2 and 3 reflects this work.

Preventing Re-offending
Any serious further offence committed by an offender managed within MAPPA is one too many. As noted above Sussex MAPPA have introduced processes to review and learn lessons from such incidents. During the year 2006-2007, there was one serious further offence committed by an offender managed at Level 2 or 3. Whilst no system can ever eliminate risk entirely, the figure suggests that there is effective management of such cases in Sussex.

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The Strategic Management Board
A Strategic Management Board and Lay Advisers oversees the operation of MAPPA in Sussex.The Board includes representatives of the key agencies who work together across Sussex to protect the public. The Board is jointly chaired by a Detective Superintendent from Sussex Police and an Assistant Chief Probation Officer from the National Probation Service, Sussex Area.The Board has established sub-groups for:-

MAPPA Development
This sub-group ensures that national guidance is incorporated into local practice and oversees the maintenance and development of local protocols and practice guidance

Monitoring and Evaluation
This sub-group monitors the quality of MAPPA work within Sussex

Communication and Partnership
This sub-group aims to develop partnerships with relevant agencies and stakeholders and to extend knowledge and understanding of MAPPA within these agencies and the wider community

This sub-group is developing training for staff involved in MAPPA at all levels Some of the Board’s strategic priorities for the coming year have been set out above.These include linkage to risk management of domestic violence, continuing to develop Sussex MAPPA’s infrastructure and training and developing our quality control and monitoring capacity.

“As one of the Lay Advisors for Sussex I am privileged to attend and actively participate in the Strategic Management Board and to see how it is changing and developing. My role in the SMB is to act as a critical friend – in short I try to ask questions of the professionals on behalf of the public. I have been in post for two years now and I am beginning to feel more confident about the role and able to ask more informed questions. I have attended two Conferences; the National Lay Advisors Conference and a Regional MAPPA Conference. I was also invited to attend a Home Office led discussion with other Lay Advisors on the proposals for greater public disclosure being considered by the goverment. I have been very impressed at the work that goes in to keep the public protected in Sussex and feel that the development of the Sub-Groups will further that work.” Lynette Benton, Lay Advisor and SMB member comments.

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Russell Whitfield Detective Superintendent

Sussex House Crowhurst Road Brighton East Sussex BN1 8AF

0845 6070 999

Nick Smart Assistant Chief Officer

Sussex Probation Service 185 Dyke Road Hove East Sussex BN3 1TL

01273 227979

MAPPA Co-ordinator Recruitment to replace the previous post holder is currently underway

Sussex Probation Service 185 Dyke Road Hove East Sussex BN3 1TL

01273 227979

Martha Blom-Cooper Head of Reducing Re-Offending

Sussex & Kent Area Office 80 Sir Evelyn Street Rochester Kent ME1 3NF

01634 673040

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Sussex Multi Agency Public Protection Arrangements
Annual Report 2006/07