Multi-Agency Public Protection Arrangements Annual Report 2006-2007

1. Ministerial Forward 2. Introduction to Teesside MAPPA Annual Report 2006/07 3. How MAPPA Operates Locally 4. Other Agencies Contributing to MAPPA 5. Interventions with Offenders - Sex Offender Programmes 6. Victims 7. Interventions with Offenders - Approved Premises 8. Managing Risk 9. National Probation Service Teesside and Cleveland Police Public Protection Unit 10. Prison Service Involvement in MAPPA 11 Statistical Analysis 12. MAPPA Annual Reports Statistical Information 13. Teesside Strategic Management Board Business Plan 2005 - 2008 14. Contact Details 15. Glossary

1. 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

2. Introduction
Teesside MAPPA Annual Report 2006/7
The protection of the public from offenders in the community has continued to be high profile over the past 12 months and it is correct that this is the case. The three 'responsible' agencies involved in this work (Prison Service, Probation Service and Police) know that the protection of the public is their primary and most important role while for other agencies involved it is an important part of their daily business. All agencies have a part to play in effectively supervising and supporting people living in the community to ensure they do not commit serious offences. This partnership working between agencies has been essential to the effective management and supervision of offenders who are registered under Multi-Agency Public Protection Arrangements. The joint Police/Probation Public Protection Unit continues to provide a good example of how close partnership working and good systems can reduce the risk from the MAPPA offenders. The Prison Service as the third 'responsible authority' also has good systems in place for identifying potential MAPPA offenders. They also work with the Police and Probation to plan for an offender’s release from prison, working to ensure a co-ordinated risk management plan. Other agencies as 'duty to cooperate' agencies also have an increasingly important role to play in the MAPPA process whether they be Health, Housing, Education, Children or Family Services. Everyone needs to play their part in this essential work of keeping the public as safe as is possible and it is this partnership working which gives the MAPPA framework its strength. The Strategic Management Board is comprised of senior representatives of the three 'responsible agencies' and the 'duty to cooperate' agencies as well as Lay advisers. The board manages the MAPPA system and ensures the MAPPA business plan is completed within the required timescales. The agencies involved with MAPPA are in no way complacent about the task and its importance to the local community. Risk can never be eradicated but it can be minimised if everyone plays their part. Partnership working and the sharing of information are vital to making our communities a safer place to live.

Elaine Lumley, National Probation Service Teesside Chief Officer

Sean Price, Cleveland Constabulary Chief Constable

Matt Spencer HMP Holme House Governor

3. How MAPPA Operates locally
The Criminal Justice and Court Services Act 2000, re-enacted by the Criminal Justice Act 2003 imposed duties upon the Police, Probation and Prison Services (known as the Responsible Authority) to establish MAPPA - Multi Agency Public Protection Arrangements. This places a statutory duty on Police, Probation and the Prison Service to provide joint arrangements for the assessment and management of the risks posed by sexual, violent offenders and other offenders who may cause serious harm. MAPPA also imposes on a number of other agencies the "duty to co-operate" with the Responsible Authority in discharging its duties. Such "duty to co-operate" agencies includes: Children and Family Services Youth Offending Teams Primary Care Trusts, other NHS Trusts and Strategic Health Authorities Local Education Authorities Jobcentre plus Local Housing Authorities Electronic Monitoring Providers Registered social landlords. Since MAPPA on Teesside began in 1997 and the joint Police and Probation Public Protection Unit was established in 2004, there continues to be an increasing number of agencies that are becoming aware of MAPPA procedures and are making appropriate referrals into MAPPA. Using MAPPA procedures we can more effectively assess and manage the risks posed by sexual, violent and often dangerous offenders. Whenever a multi-agency or joint approach can improve the protection of the public, the police, probation and prison services, alongside other key agencies will share relevant information and where necessary convene a Multi-Agency Public Protection Panel. This allows agencies to share information and agree the appropriate and necessary strategies to manage the risks in the community. In line with National guidance, our local protocol outlines arrangements for convening meetings at two levels.

Multi Agency Risk Management Meeting (RMM) Level II
These meetings are convened and information shared between agencies to manage individual offenders who are considered as having potential to cause a high risk of harm and whose management within the community will benefit from a multi-agency management approach, rather than a single agency approach. Meetings for high risk of harm offenders are chaired by a Senior Probation Officer or Detective Sergeant from the Joint Police/ Probation Public Protection Unit, depending on which service has primary responsibility for the high risk offender.

Multi Agency Public Protection Panel (MAPPP) Level III
This panel is convened to manage the critical few that are considered to pose a risk of very serious harm to the public. These meetings are chaired by either an Assistant Director of Probation or a Detective Inspector from the Joint Police/ Probation Public Protection Unit, depending on which service has primary responsibility for the very high risk offender.

The purpose of a MAPPA meeting is to:Share Information: The bringing together of key professionals from all the relevant agencies enables a full exchange and sharing of information to occur. Information can be scrutinised and verified and a clear focus given to the examination of the information which has led to the concerns about the individual. Additional information which may not be directly linked to the harm that the individual may pose but may be relevant in identifying methods of interventions which can be used to help reduce the risks, can also be disclosed. Assess Risk: Once all of the relevant and appropriate information has been shared, the panel is able to assess the level of risk that the offender poses as well as identifying who may be at risk and in what way. Agree risk management strategies: The panel has responsibility to ensure that strategies are agreed and put into place to manage the risks identified. There is also a clear expectation that each agency has responsibility for ensuring any strategies pertinent to their own organisation or role are carried out and these are reviewed at a future review meeting. Review all protective measures: The potential to apply for a Sexual Offenders Prevention Order (SOPO), Disqualification Order (DO), or a Risk Of Serious Harm Order (ROSHO) is considered at all meetings. Where necessary the police may also consider increased surveillance according to risk and the appropriate allocation of resources.

Once an individual is considered to be very high or high risk, their name is placed on the registers held by Cleveland Police and National Probation Service Teesside. At both Level II and Level III, a review panel will continue to meet at least every three months to review each case and maintain their monitoring of interventions by ensuring strategies to manage risk are implemented and are working.

4. Other Agencies Contributing to MAPPA
A range of partner agencies work with MAPPA. Here are some examples of the work that they do.
a. Children's Services throughout Teesside work closely with MAPPA in adult protection and with children through child protection procedures. Representatives attend meetings to ensure that all relevant information is shared and where necessary joint work is agreed, such as conducting home visits. All these procedures work in close liaison and alongside each other thereby ensuring that those individuals who are the most vulnerable members of society are protected. The Cleveland Diversion Team (CDT) is a multi agency team (Health, Children and Family Services & Probation) working with mentally disordered offenders. CDT staff are placed in Probation teams across the area to further facilitate proactive interventions with offenders at the earliest opportunity. They contribute to MAPPA meetings by identifying those offenders who may have a mental illness or mental health related difficulties and can be key in assisting MAPPA by referring offenders to the relevant services, providing an assessment of the offender's needs and by working alongside probation staff in the community to manage difficulties presented by people with mental health problems. Accommodation is an essential element in effectively managing and monitoring the risk of offenders within the community. The provision of appropriate housing must include a full and proper risk assessment and the sharing of information so that the public and staff are not placed at risk. A significant amount of time has been taken to ensure that housing providers continue to develop a greater and more comprehensive understanding of MAPPA and representatives from a number of different organisations now attend the meetings. The HARP protocol has gone some way to enhancing this understanding of housing need and is currently being reviewed to improve the service to offenders. Teesside Probation also has two Housing Officers who concentrate on providing information, advice and support to both offenders and Offender Managers, often facilitating the negotiation and liaison with housing providers locally. They have developed good relationships with local B & B landlords which frequently assists the accommodating of offenders in an emergency.



5. Interventions with Offenders
Sex Offender Programmes.
By a Probation Officer from the PPU. "Why can't you have a nice job for a change?" This is what one of my closest friends asked when I told her I had left the field of substance dependency and was now running groupwork for men who have committed sexual offences. “But how can you work with these people?" she replied. It's a common question alongside "Does it actually work?" and "How can you really tell?" Having been asked to write about my experience of running accredited sex offender treatment programmes over the past four years, I am tasked to explain why I see this element of my role at the Public Protection Unit as one of the most interesting and rewarding pieces of work I have ever been involved in. Nice, it might not be but there's never a dull moment in group work. The programmes are varied, we run three accredited programmes from the unit, Northumbria Sex Offender Group work Programme (N-SOGP); Relapse Prevention Programme (RP); and Internet Sex Offender Treatment Programme (I-SOTP). Group members are varied as well, we can have up to 10 men on each group who can be a mixture of those on Licence or Community Orders, who may or may not have completed previous treatment programmes either in prison or in the community. The ranges of cognitive abilities of group members are varied, as are the ages, marital status, sexual orientation, ethnic origin and cultural backgrounds of the men who attend. Each group is quite unique, and as if all of these variables were not enough to keep us on our toes, we also need to consider the expectations and purpose of the programmes! Our particular ‘brand’ of Sex offender treatment is based on Cognitive Behavioural Therapy, which broadly attempts to help men recognise and change the links between their distorted offence related thoughts, feelings and behaviours. Intrinsically, this constructive approach intends to place the individual offender at the forefront of the management of his own re-offending risks. This is an approach that, for those who consider that sex offender treatment should embrace more punitive elements of treatment, might appear to contradict their expectations. Notwithstanding these assumptions, the NSOG treatment ethos is founded on high levels of constructive challenge with high levels of support in order to be most meaningful and effective in the reduction of repeat offending. So, does sex offender treatment really work? I like to think that as facilitators we can help those men who truly want to make it work for them, in ensuring they have the tools to understand and control the risks they pose. For those who don't, we need to manage and control the risks posed with more restrictive measures and this is one of the key ways in which the work we undertake with offenders in Programmes interfaces with the MAPPA process.

6. Victims
The National Probation Service Teesside employs two Victim Liaison Officers (VLOs) to enable the Service to fulfil its statutory duty to inform the victims of all sexual and violent crimes, where: the offender has received a sentence of imprisonment of 12 months or more and/or they are the victims of mentally disordered offenders Where the victim chooses to be involved in the scheme it is the role of the VLOs to inform them of the key milestones in the offender's sentence. The main purpose of this is to keep the victim involved and prepare them for developments in the sentence and allow them to give their views on release plans. Offender Managers are also involved with the VLOs from the point of the offender being sentenced to enable the perspective of the victim to be incorporated into their work. The Victim Code of Practice has been introduced, giving victims for the first time a secure position at all stages of the prosecution of the offender and any following sentence. As the Probation VLO role is primarily one of supplying information and consultation they also work closely with partners who offer counselling and support, such as Victim Support, and extend the service to the victims of serious youth crime. A vital part of the VLO role is to liaise with all criminal justice agencies, and the wider community, through the MAPPA process to promote the interests of victims in the management of risk, and ensure that their voice is heard. This means that the Risk Management Meetings can be responsive to victims' needs and specific strategies can be included to protect and support those who remain vulnerable.

Case Study

John was in a short term relationship with the female victim and quickly moved into the victim's home with her young son. Over a period of several months the relationship broke down and John left the home. Prior to the commission of his index offences John embarked on a sustained campaign of verbal intimidation and harassment against the victim which left her feeling very vulnerable. John's refusal to acknowledge the end of the relationship led to an escalation in his behaviour and resulted in him committing offences of Criminal Damage and Dangerous Driving against the victim. These offences attracted a custodial sentence of 13 months. On examination of the case, the VLO was able to identify clear domestic violence issues and the likelihood of future re-victimisation to John's ex-partner. Consequently the VLO discussed the case with Police Colleagues and the Probation Officer managing John's sentence and it was agreed that a referral to MAPPA would be made. This referral coincided with John's eligibility for release on HDC. The VLO was able to meet with the victim and obtain a detailed history of the relationship between her and John and discuss in depth her fears and concerns should the offender receive early release. As a result of the information provided by the VLO the HDC application was refused as it was felt the risk posed to the victim was too great to manage in the community. This decision has allowed for true multi agency working and given all agencies the time necessary to formulate and implement risk management strategies which will assist John address his behaviour and minimise the risk to the victim. These include the installation of panic alarm (provided by the Police) in the victim's home, an exclusion zone around her home address and a condition of no contact. Similarly the VLO was able to refer the victim to other non-statutory agencies to access emotional and practical support not related to the offender's sentence. Contact will be maintained with the victim up to the licence expiry part of John's sentence. This will allow for ongoing comprehensive risk management of John once released.

7. Interventions with Offenders
Approved premises and their role in Public Protection By the Approved Premises Manager
Approved Premises is residential accommodation which has been approved by the Home Office to house offenders. Approved Premises manage offenders as a condition of their Bail, as part of their Licence or as a requirement of a Community Order. In January of this year there were 101 premises in 37 of the 42 probation areas in England and Wales. The size of accommodation varies from 10 to 44 bed spaces, with most in the mid 20 - a provision of around 2200 beds available in total.

Background The Justice and Courts Services Act (2000) placed a legal obligation on police and probation services for the assessment and management of high risk offenders. This established the framework for inter-agency cooperation in the management of violent and sexual offenders. It was however, the creation of the National Probation Service in 2001 that provided the opportunity to bring consistency to the then probation and bail hostel estate and allowed for the development of a strategy which was embedded in the Public Protection and Licence Release Unit. Probation hostels had historically been criticised for the lack of purposeful activity although Her Majesty’s Inspectorate of Probation praised the work of the then probation and bail hostels, with high risk offenders. What had evolved was a focus on enhanced regimes for those individuals who posed the greatest risk of harm; namely violent and sexual offenders and, Approved Premises as they are now known, are an integral part of public protection work. In 2005 Probation Circular 37/2005 defined the role and purpose of Approved Premises and the level of enhanced supervision necessary to manage residents safely. The enhanced provision is that offered over and above normal restriction whilst the restrictive intervention provides elements of control that is not present in other forms of community sentences. Approved Premises are staffed 24 hours a day 365 days a year by staff trained in risk assessment and experienced in the management of violent and sexual offenders. The premises, all of which have CCTV surveillance, are focused on helping to reduce risk and reintegrate men and woman successfully into the community. Whilst many will continue, once in the community, to be monitored, some will be in employment or training and will usually be living where directed or approved by the police and probation services. It should be said that the women's estate is small and there is no provision for women on Teesside. For many offenders residence in Approved Premises is very challenging because of the restrictive measures in the form of curfew, stringent rules and drug testing and treatment. Additionally, offenders are required to fully participate in the regime which will be much more demanding than that in many prisons. Some interventions such as education and training are delivered in-house through partnership agencies. They in turn link with external providers who identify opportunities for training and employment which is not easy for this group. Many have left prison after long periods of incarceration and have poor literacy and numeracy skills, and for some of these, residence in Approved Premises enables them to address these deficits and ensure their employability.


Links with health ensure medical intervention is provided via local GP support with each premises having protocols with established practices in the area. A surgery is run on site each week for men who are receiving treatment or simply need access to services that might otherwise not be accessible. Strict policies relating to the storing and dispensing of medication are in place which comply with health and safety requirements and agency policies governing medication. Practical advice on housing and benefits is available and some staff have developed significant expertise in these areas. Presently, the team on Teesside are working to develop a range of interventions based on need. By the end of 2007 Teesside Probation Service will have a range of interventions focused on tackling those areas which have been identified as linked to offending behaviour and risk. Courses on citizenship, budgeting and thinking skills will, coupled with offending behaviour programmes delivered by our public protection unit, certainly enhance the lives of these men whilst reduce the risk of harm to the public.

8. Managing Risk
Case Study: Trevor
Trevor received a 15 year custodial sentence for the offences of Rape, Section 18 Wounding with Intent, False Imprisonment and Threats to Kills. The victims of the offences were his previous partner and her neighbour. Trevor broke into the property armed with an axe and petrol and attacked his ex-partner, seriously injuring her and raped her during a 9 hour siege. The victim's children were present throughout the offence. During his sentence Trevor received numerous adjudications for violence. He was unsuccessful in all parole applications due to the gravity of the index offence and his behaviour whilst in custody and thus was released at his Non Parole Date subject to licence. Prior to Trevor's release a MAPPP was convened involving the Offender Manager, Approved Premises, Prison staff, Victim worker, Police, Children and Family Services and Housing. A comprehensive Risk Management Plan was developed which included numerous licence conditions including: residency in Approved Premises; stringent electronically monitored curfew hours; no contact condition with the victim, her children and family members deemed to be at risk; an exclusion zone to aid protection to the victims; conditions to inform the offender manager of any relationships (to manage future risks) and details of any vehicle to be travelled in. He was registered by the MAPPP as posing a very high risk of serious harm. Due to the proximity of Teesside Approved Premises to the victim's location and the risk he posed, referrals were made to Approved Premises in other areas. He was accepted into another area and with help from colleagues in prison Trevor moved prison location to ensure he was not released into his exclusion zone. A further MAPPP was held in the relevant area and all professionals involved from Teesside and the new area attended to ensure necessary information was shared and the risk was managed effectively. Trevor remains in Approved Premises and complies with his licence conditions and Sex Offender Registration and is closely monitored by all agencies involved with him. Regular MAPPP reviews take place which focus upon risk and his successful reintegration back into the community.

Case Study: Marvin
Marvin was convicted of an offence of Indecent Assault committed against a minor and received a sentence of 15 months imprisonment with an extended licence period of 48 months in addition to a Sexual Offences Prevention Order. This was for offences of Indecent Assault committed against his son. Marvin originated from an outside Probation area but due to specific risk issues, residence at an Approved Premises on Teesside was identified as being an important aspect of the Multi-Agency management strategy with regards to assisting monitoring of his movements and associations, in addition to other restrictive Licence conditions. While in custody Marvin had been assessed as High Risk but shortly after release was reassessed as Very High Risk and managed under Level Three MAPPA arrangements. Following a comprehensive management plan being devised, Approved Premises staff were quickly able to highlight and forward concerns with regards to his movements and potential association with children. As a response to this information Marvin's Licence was varied to require him to be present within the Approved Premises at specified times in order to reduce his potential to travel, while liaison with the area where previous victims and identified potential victims allowed for greater monitoring measures to be implemented to protect these individuals. Following a number of months in Approved Premises, and continued high levels of information sharing between all involved agencies, suitable move-on accommodation was identified that would allow for a continued high level of monitoring of Marvin.

9. National Probation Service Teesside and Cleveland Police Public Protection Unit
The responsible authorities, made up from the police, probation and prison service have joint responsibility for public protection within Teesside. This obligation is discharged by the now well established joint public protection unit (PPU). Based in central Middlesbrough both police and probation officers work in tandem to minimise risk from some of the most serious offenders within Teesside. Officers from prison play their part in risk assessing and working with the public protection unit providing valuable information to manage the risk once the offender has been released. The PPU has the responsibility of managing all MAPPA cases benefiting from a Detective Sergeant and a Senior Probation Officer who are skilled in assessing risk and formulating risk management strategies to manage the high risk offenders with the assistance of duty to co operate partners such as health and housing. The more serious offenders, known as very high risk offenders are managed in conjunction with other agencies by either an Assistant Director of Probation or a dedicated Detective Inspector from the PPU.

Key Achievements Both the National Probation Service Teesside and Cleveland Police have invested heavily in the area of public protection. This is in response and recognition of this critical area of work. The unit has benefited from an additional Detective Sergeant and four additional Detective Constables. In addition there has been an increase of a further Senior Probation Officer and additional administration staff. To make sure that our staff are fully trained there has also been an increase in the amount of funds available to increase the skills of the new and existing officers. This includes regular attendance on national training courses ran by the Child Exploitation Online Protection organisation (CEOP) and on a local level the responsible authority organisations continue to hold joint development days at HMP Holme House. The Prison Service now has a Public Protection Unit based within Holme House and has developed a public protection policy. Links are being forged with this unit to assist with management of offenders whilst in custody and to help with the management of them when they are eventually released. Prison officers and seconded probation officers also attend MAPPA meetings held in the community providing valuable information on the offender which will help manage risk once they are integrated back into society. Presentations are key to informing and updating the duty to co-operate agencies about MAPPA. There have been a number of presentations and inputs to the youth offending services, health and at Teesside University to new recruits to Cleveland Police ensuring that the work of the PPU and MAPPA is engrained at an early stage.

The PPU has also updated the work force of Cleveland Police by a series of presentations of the work that is carried out by the joint PPU and updating them on relevant legislation to sex offenders. In development is a 'premium service protocol' which is an agreement with the local courts the Crown Prosecution Service and the police to fast track through the Court process an offender who is registered under the MAPPA procedures or who is a registered sex offender. The protocol extends to those offenders where a warrant is issued so that its execution can be expedited and the times where an offender applies for 'judge in chambers' bail so that appropriate representation can be made by officers from the PPU when necessary. In conjunction and agreement with the probation service a police officer from the PPU now has a dedicated liaison role with the two Approved Premises in Teesside. At last year’s nationally funded conference the Strategic Management Board (SMB) business plan was discussed to allow as many SMB members as possible to contribute to the debate for its content and implementation. Since then it is updated, reviewed and discussed at every SMB meeting.

Strategic Management Board Such is the importance of the work revolving around public protection the SMB now meets every two months instead of every quarter and is chaired by the head of the Crime Department of Cleveland Police. There is now consistent representation from all responsible authority and duty to co-operate organisations. Those who represent their organisations within this group are members of senior management who can make and commit to important decisions on how MAPPA operates locally. To give an air of openness and independence two lay advisors did sit on the SMB, although unfortunately one has since resigned. The SMB oversees and directs MAPPA to make sure that the correct level of service is delivered at a local level at the right time to reduce risk from high and very high risk offenders who live in the community of Teesside. All who sit on the SMB are committed to progress the actions of the SMB work programme and to assist with this aim three sub groups are now well established. These groups concentrate on procedures, communications and monitoring and reviewing the day to day decisions made by those who work within MAPPA. The sub groups consist of members of both the duty to cooperate and responsible authority members and are an audit to ensure and demonstrate consistency. Housing those offenders who fall within the MAPPA remit, especially those who are sex offenders is still an issue that causes difficulty at times. Work is ongoing with housing providers to promote the work of MAPPA and to assist in housing offenders who may have lost their tenancy due to being in prison. The SMB is looking at local housing provision and to try and identify what could be done to increase the availability of suitable accommodation.

Training is an issue that effects all large organisations and there has been an increase in effort to raise the profile of MAPPA within duty to cooperate organisations. The SMB has been the catalyst to this training initiative and the PPU has been tasked with assisting in this piece of work. A training package is under development to be cascaded throughout organisations. Senior managers from the police, probation, local authorities, health, to name but a few maintain strategic links with MAPPA through Local Safeguarding Children's Boards (LSCB) and the Local Criminal Justice Board (LCJB) to ensure that MAPPA is an integral part of those meetings. Three working groups have been established at the direction of the SMB. The procedure sub group has been tasked with reviewing the MAPPA procedures and how they operate at a local level; the monitoring and review group are members of the SMB who quality check the decisions of managers chairing the level 2 and 3 meetings together with analysing the decisions as to why someone has not been placed into the MAPPA remit and the communications sub group has been established to promote the work of MAPPA.

Lay Advisors Lay advisors are an essential part of MAPPA. They are independent individuals who do not represent any statutory organisation. They act as a 'critical friend' who can offer advice and guidance from a lay perspective and because of this can incorporate the views of the community. Their role is to ask and enquire about practices and procedures and to challenge assumptions to ensure that MAPPA delivers the highest quality of service in the management of offenders for the community of Teesside. This past year both lay advisors provided representation on the SMB communications sub group and the monitoring and review sub group. Unfortunately one lay advisor has resigned. This situation will be reviewed by the SMB and a further lay advisor will be sought during the next financial year. Both lay advisors had attended national training supported by local training provided by staff from the PPU. However there is a national pressure to provide consistency in training and the SMB await further guidance.

10. Prison Service Involvement in MAPPA

Both HMP Holme House and HMP Kirklevington, the two prisons in Teesside, continue to be represented on the Strategic Management Board for Multi-Agency Public Protection Arrangements and actively engage in the MAPPA processes in the community. HMP Holme House HMP Holme House operates a Public Protection Policy which recognises the duty placed upon the Prison Service as one of the three Responsible Authorities, alongside the Police and Probation Service to ensure effective arrangements are in place to manage the risks that offenders may present on their release from custody. This policy has been implemented to ensure that HMP Holme House meets its obligations under the Prison Service Public Protection Standard to identify, assess and manage the risks posed by sex, violent and other offenders, who pose a risk of serious harm to the public. Collating information from various agencies is essential in compiling an accurate and informed profile of the prisoner and to assess the potential level of risk they may pose. It also ensures that resources are concentrated where they are most required. To this end our policy is underpinned by timely actions to identify, at the earliest stage, prisoners who may be subject to public protection procedures. 1. Daily Interdepartmental Risk Management Meeting - Primary purpose is to carry out a 'sift' of all new receptions to identify prisoners who may be subject to public protection procedures. An essential part of this sift is to consider information regarding previous convictions as well as current offence information. 2. Weekly Interdepartmental Risk Management Meeting - this meeting has a wider attendance and focuses upon identifying prisoners from the daily sift who may pose a higher risk and who are likely to require the completion of a full Public Protection Risk Assessment. 3. Monthly Interdepartmental Risk Management Meeting - the purpose of this meeting is to adopt an 'Investigative and pro-active' approach to identifying and case managing the critical few prisoners who present a high or very high risk to the public, prison staff or others. 4.Strategic Public Protection Meeting - this meeting, chaired by the Deputy Governor, meets quarterly and reviews this policy to ensure that HMP Holme House procedures reflect and adhere to any changes to Prison Service National Policies and that we continue to deliver on our commitment as a Responsible Authority under MAPPA. A major development at HMP Holme House is the formation of an internal Public Protection Unit. This comprises four discipline officers and a full time Administration Officer. The aim is to ensure all prisoners received into the prison, who are identified as a high risk of harm, are processed and monitored appropriately whilst in custody to reduce the identified risks. The focus is on the sharing of information with both relevant internal and external agencies

Case Study: John
Adult male remanded into custody at HMP Holme House on charges of indecent assault on children:

Upon reception into the prison John was identified as being subject to MAPPA and a potential risk to children. A public protection referral was submitted to the prison's Public Protection Unit. At this stage he was denied access to the telephone in reception and was prohibited from having any contact with children under the age of 18 until a full risk assessment could be undertaken. *The right of a child to be safeguarded and protected from harm must take priority over an offender's right to family life if the offender's right would mean contact could place a child at risk (Human Rights Act) The following day, during the Daily Interdepartmental Risk Management meeting, John's offence was discussed and the following procedures were put in place: A request was made to the Probation Service for a full MAPPA assessment to be carried out .

An application was made to the Governor at HMP Holme House to have monitoring authorised in respect to his correspondence and telephone calls. *All phone calls in prisons are recorded and may be subject to monitoring if approved by the governor, which in this instance it was. John was informed by a PPU Officer that he would have to apply for authorisation for any form of contact with children and was instructed that he would need to make an application if he wanted to have telephone contact with any adult. Details of the contact, age, relationship, address and telephone numbers were requested. Contact was made and agreement sought before any of the telephone numbers submitted were activated. Holme House central visits list was updated to reflect that he was not allowed any visits/contact with children. John's details were added to the Holme House 'NO CHILD CONTACT' logs. A Public Protection file was opened and all relevant details documented. Following conviction and sentencing to 4 ½ years custody: John was notified of his requirement to register under the Sexual Offences Act 2003, he was also required to sign documentation to confirm that he was aware of this requirement An OASys (Offender Assessment System) was completed which compiled an in-depth assessment of his risk and needs. This resulted in John being assessed as a 'High Risk' to children, therefore the established restrictions and monitoring procedures remained in place. A Risk Management Meeting (RMM) was held by the Probation Service attended by multi agency staff including John's Offender Manager (External Probation Officer), Offender Supervisor (Prison Officer) and prison PPU officer, where information was shared and decisions made on how he would best be managed throughout his sentence. Following the RMM, in accordance with the North East Sex Offender Strategy, the prison made a referral for an assessment to determine his suitability for a Sex Offender Treatment Programme (SOTP) which could help reduce his risk or re-offending. Following completion of his OASys a Sentence Planning meeting was arranged where John's Offender Manager was able to discuss his situation and set targets for John to work towards during his sentence. John's assessment for SOTP confirmed his suitability for the programme of 6 months duration and he is currently awaiting a placement.

11. Statistical Analysis
In 2006/07, we saw an increase in the number of category three offenders registered at level 2 (High Risk) within MAPPA on Teesside. There are a number of contributing factors. Most significantly was a decision in early 2006 to default any offender sentenced to a Community Domestic Violence Programme into the MAPPA framework. In addition, responsible authorities have worked to enhance the skills and knowledge of their own staff and those working in duty to co-operate agencies. This could also have had an impact on numbers registered within this category. In 2007 we will introduce a new approach to multi-agency conferencing those offenders charged with a domestic violence related offence. This will see a significant decline in 2007/08 in the number of offenders registered through MAPPA as a category three offender. There has been an increase in the number of offenders being managed at level 3 (Very High Risk) category three, from 4 in 2005/06 to 22 in 2006/07. We are confident that a robust threshold is being operated by the chairs of the MAPPPs and, in addition, cases are independently reviewed by the Monitoring and Review group on a monthly basis to ensure consistency in decision making. It is not possible entirely to remove the potential for offenders to commit a serious further offence, and this year we have had 3 Serious Further Offences. Whilst any Serious Further Offence means personal tragedy for people in our community, this year's figures (representing 0.9% of the total of those managed at MAPPA levels 2 and 3) suggest that the MAPPA is generally succeeding in managing those offenders who pose the greatest threat to society. All cases of serious further offending are rigorously reviewed with learning points being addressed by the agencies involved. Monitoring sex offenders is paramount in contributing to community safety. An effective aid in that monitoring process is to apply to the Court for Sex Offender Prevention Orders (SOPO) and Risk of Sexual Harm Orders (ROSHO). A SOPO can be granted upon conviction or after conviction on a civil order. Before a SOPO is granted on a civil order an offender has to be convicted of a relevant offence and then display worrying behaviour. Likewise applying for a ROSHO has similar criteria but an individual does not have to have been convicted. The PPU together with Cleveland Police's legal department have taken on the responsibility of applying for the civil SOPO. During the last year Cleveland Police have applied for, and been granted, 39 SOPO and 1 ROSHO. These orders place restrictions on lives of individuals and prevent them from frequenting certain locations and liaising with individuals to reduce risk of further offending.

Category 1: MAPPA offenders: Registered Sex Offenders (RSOs)

Number of offenders


The number of RSOs living in the Teesside area on 31 March 2007

Police Basic Command Unit Hartlepool Stockton Middlesbrough Redcar & Cleveland Total

42 115 119 81 357

(a) RSOs per 100,000 population


ii. The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1 April 2006 and 31 March 2007


iii. The number of Sex Offences Prevention Orders (SOPOs) (a) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in Teesside between 1 April 2006 and 31 March 2007:

(a) The total number applied for


(b) interim SOPOs granted


(c) full SOPOs imposed by the courts in Teesside


iv. The number of Notification Orders (a) applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in Teesside between 1 April 2006 and 31 March 2007:

(a) The total number applied for


(b) interim Notification Orders granted


(c) full Notification Orders imposed by the courts in Teesside


v. The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in Teesside between 1 April 2006 and 31 March 2007:

(a) The total number applied for


(b) imposed by the courts in Teesside


Category 2: violent offenders and other sexual offenders

vi. 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 Teesside between 1 April 2006 and 31 March 2007


Category 3: Other offenders

vii. The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1 April 2006 and 31 March 2007


Category 4: MAPPP cases

viii. The number of MAPPA offenders in the three categories (1) RSOs, (2) violent and other sexual offenders (V&O) and (3) other offenders (OthO) who have been managed through the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1 April 2006 and 31 March 2007: ix Of the cases managed at levels 3 or 2 (ie (viii)) between 1 April 2006 and 31 March 2007 how many, whilst managed at that level were: (a) Returned to custody for a breach of licence


Level 3 8 0 22

Level 2 25 4 279

Level 3 3 Level 3 0 Level 3 0

Level 2 40 Level 2 0 Level 2 3

(b) Returned to custody for a breach of a restraining order or sexual offences prevention order (c) Charged with a serious sexual or violent offence

13 Multi Agency Public Protection Arrangements

Teesside Strategic Management Board - Business Plan 2005 - 2008

1. MAPPA Development Strategy
MILESTONES September 2006 RESOURCE Police/Probation/ Prison Management Team OUTCOME By April 2007, dedicated MAPPA Co-ordination and Administration in place. PROGRESS No progress. 3 responsible agencies to consider. Business proposal should be put forward – M Braithwaite to discuss with C Wilson; P Kelly would then discuss re PCT contribution. HM Inspectorate visiting this month, would include public protection; may attend June meeting. September 2006 Police/Probation/ Prison Management Team By April 2007 full engagement by DTC agencies with MAPPA. Police/Probation/ Prison Management Team Current structure to be retained.

STRATEGIC AIM To achieve dedicated MAPPA Co-ordination and administration September 2006 Police/Probation/ Prison Management Team

DELIVERY PLAN Review current Police/Probation/Prison resource

Consult with SMB Duty to Co-operate (DTC) agencies regarding available resource

To review SMB structures and membership

To re-engage with all DTC agencies regarding attendance at SMB. September 2006

To consider replicating SMB structures in four unitary authorities September 2006 SMB procedures sub group

To integrate revised national MAPPA guidance into local procedures

Following receipt of national guidance from PPLRU incorporate into local guidance.

By April 2007 to implement SMB structures in four unitary authorities if considered appropriate. Revised guidance implemented.

2. Monitoring & Evaluation Strategy

STRATEGIC AIM MAPPA SMB to implement monitoring arrangements which support: SMB working group to produce Annual Report. September 2006 SMB Monitoring and Review Group April 2007 SMB

Publication of Annual Report

Production of Annual Report

Analysis of use of MAPPA risk management thresholds at level 2 & 3 Ongoing

• Information provided to SMB by SPO responsible for MAPPA for review by all SMB members Quarterly to SMB Meeting Analysis of profile by Monitoring and Review Group. September 2006 April 2007 June 2006 Develop templates to support information gathering. Ensure completion.

Police/Probation/Prison and SMB Monitoring and Review Group to review Police/Probation/Prison to review all SFOs to determine learning

Police/Probation/ Prison Management Team SPO with responsibility for MAPPA SMB Monitoring and Review Sub-group Senior Probation Officer responsible for MAPPA and Detective Sergeant responsible for MAPPA

Analysis of MAPPA offenders who commit serious further offences • Analysis of attendance and level of co-operation of agencies contributing to Level 2 & 3 meetings • Analysis of diversity profile of offenders at level 2 & 3 To improve consistency of recording and collection of data for MAPPA

Active analysis of risk management and improved accountability of all agencies involved in Multi Agency Public Protection work

Happy with progress.

Accurate information recorded to be available for scrutiny

Protocol signed November 06.

2. Monitoring & Evaluation Strategy (Cont’d….)
DELIVERY PLAN Explore links to Serious Further Offence, Part 8 and Homicide Reviews. Formulate standard template for reviews. MILESTONES September 2006 RESOURCE Police/Probation/ Prison Management Team Lay Advisers. OUTCOME New template in place. PROGRESS Guidance sent out for consultation; feedback to June meeting. Serious case reviews to be set up; frequency/pr ocess to be discussed – MB/JA/JH.

STRATEGIC AIM To review arrangements for Serious Case Reviews and develop guidance to ensure that a Serious Case Review process takes place for Serious Further Offences committed by Level 2 and 3 offenders.

3. Communication & Strategic Partnerships Strategy
DELIVERY PLAN Report produced and distributed by Responsible Authority. MILESTONES May 2007 RESOURCE SMB Sub Group OUTCOME Report published and circulated.

STRATEGIC AIM Responsible authority to publish annual report in consultation with Lay Advisers and Strategic Management Board SMB Communications Sub Group to be established to review format of annual report and a communication strategy internally with agencies and externally with the public September 2006 SMB Sub Group led by Lay Advisers Quarterly reports to SMB on performance, Serious Further Offences, involvement of DTC Agencies. June 2006 September 2006 December 2006 March 2007 SPO/DS responsible for MAPPA Communications Strategy contributes to improved public understanding and confidence Consistent dissemination of information to key operational MAPPA leaders for Responsible Authority, Lay Adviser and DTC Agencies

Annual Reports are improved and developed to improve public understanding and engagement

To develop a clear process to support consistent sharing of guidance and good practice to SMBs.

Achieved at this forum.

4. Training Strategy
MILESTONES September 2006

STRATEGIC AIM To produce an awareness pack for MAPPA SMB and DTC Agencies

DELIVERY PLAN SMB Sub Group to be developed to produce pack and determine opportunities for sharing with others

RESOURCE SPO/DS with responsibility for MAPPA to lead Sub Group

OUTCOME Local training pack available for use by all DTC agencies and Responsible Authorities

Achieved M Braithwaite to check all DTC agencies had received them. Achieved Public protection staff could deliver presentations when sufficiently staffed. A trainer could be trained to cascade information.

To review training needs of all agencies involved in SMB

All DTC Agencies represented at SMB to review within their agencies their training requirements. SMB to determine approach to deliver training to meet above need.

December 2006

SMB Members

Training to be disseminated within all agencies. Potential to maximise other training routes to deliver MAPPA message e.g. child protection, vulnerable adults.

National Probation Service Teesside 6th Floor - Centre North East 73-75 Albert Road Middlesbrough TS1 2RU 01642 230533

Lay Advisors 6th Floor - Centre North East 73-75 Albert Road Middlesbrough TS1 2RU 01642 230533

Cleveland Police - Detective Inspector Police Public Protection Unit 160 Albert Road Middlesbrough TS1 2PZ 01642 247438 Victim Support and Witness Service Teesside - Co-ordinator Briargate 4 Longlands Road Middlesbrough TS4 2JL 01642 293000 HM Prison Service - Area Manager Artemis Court Meadowfield DURHAM DH7 8XQ 0191 378 6000

MAPPA RMM MAPPP VISOR PPU HMP SMB NSPCC DSPD OASys CEOP CCTV CDT HARP NHS VLO GP SOPS RSO LSCB LCJB SFO Multi Agency Public Protection Arrangements Risk Management Meeting Multi Agency Public Protection Panel Violent and Sex Offender Register Public Protection Unit Her Majesty’s Prison Strategic Management Board National Society for the Prevention of Cruelty to Children Dangerous and Severe Personality Disordered Group Offender Assessment System Child Exploitation and On-line Protection Centre Close Circuit Television Cleveland Diversion Team Housing and Returning Prisoners Protocol National Health Service Victim Liaison Officer General Practitioner Sex Offender Prevention Order Registered Sex Offender Local Safeguarding Children Board Local Criminal Justice Board Serious Further Offence