Multi-Agency Public Protection Arrangements Annual Report 2003 to 2004

for England and Wales

Enforcement, rehabilitation and public protection


Putting People First

1. Contents

What is MAPPA?

Local Arrangements

The Focus on Victims

What has happened in the last year

Strategic Management Board

The Future

Statistical Information


2. Introduction
The joint arrangements between the Police and Probation Service for the assessment and management of those offenders who fall under the MAPPA have continued to develop over the past year. These developments have culminated in the creation of a joint Public Protection Unit (staffed by Police and Probation) located in Middlesbrough. This unit is building on existing working arrangements to provide for even closer working in the shared aim of protecting the public and preventing re-offending. The report itself will provide some specific examples of how this ‘working together’ has resulted in swift action by Police and/or Probation where necessary. Other agencies have also joined the Strategic Management Board to ensure that the needs of the offender and those of the wider community and victims are addressed and balanced. From April 2004 the Prison Service also joins Police and Probation as ‘responsible authorities’ to ensure that we can improve the assessment and management of those offenders who are released from custody and who are resettled into local communities. The work of the Strategic Management Board will be further strengthened by the appointment over coming months of Lay Advisers, following the successful piloting of such arrangements in a number of other areas. Two Lay Advisers, who will not have any involvement in the Criminal Justice System, will be recruited from within the local community. Recruitment to these key roles will begin shortly and we look forward to the important perspective that these people will bring. They will ensure that the voice of the community will be represented on the Board and will also bring a degree of challenge to the approaches of the statutory agencies involved in protecting the public from violent and sexual offenders. We will never totally eliminate risk from our community, but we hope that this report will reassure you about the strength of the arrangements that exist in Cleveland to protect the public and make our communities safer. Elaine Lumley Chief Offficer National Probation Service – Teesside Sean Price Chief Constable Cleveland Police

3. What is MAPPA?
The Criminal Justice and Court Services Act 2000 imposed a duty on each of the 42 police and probation areas to work together to protect the public from offenders who might cause serious harm to the public. MAPPA actually stands for “MultiAgency Public Protection Arrangements”. The arrangements in local areas were introduced in April 2001. MAPPA is the recognised term to describe the arrangements set up locally to assess and manage sexual and violent offenders in the community.

4. Local Arrangements
Multi-Agency Public Protection Procedures have been agreed locally by all agencies who could be involved in the assessment and management of offenders who might pose a risk of serious harm. The procedures have been endorsed by:
q q q q q q q q q q q q

There are two levels of meetings in Teesside: Multi-Agency Public Protection Panel (MAPPP) These meetings take place to manage the risk posed by very high risk offenders, commonly referred to as the ‘critical few’ and who present an imminent risk of causing serious harm Risk Management Meeting (RMM) These meetings occur to manage the risk posed by high risk offenders, where the likelihood of any harm occurring is not imminent, but there is the potential for the individual concerned to cause harm in the future. Invitations to MAPPPs and RMMs are extended to all agencies who are currently involved with the offender and those who could offer a service as part of the risk management plan. At the meeting all information is shared so that an assessment of the risk the offender poses to anyone else can be made. The information might be about:

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Social Services Youth Offender Service Strategic Health Authority NSPCC Tees and North East Yorkshire NHS Trust Local Authority Chief Executives Directors of Housing Electronic Monitoring Providers Education HMP Prison Service Cleveland Police National Probation Service – Teesside

How they have behaved in the past Who their victims were Any potential future victims Whether the offender is in contact with others who may be harmful Whether they are making threats to other people Whether they have somewhere suitable to live Whether they are known to use drugs or drink alcohol Any health problems, particularly mental health and whether they are receiving treatment

Whenever a person who is thought to be a risk of serious harm to others is in the community or is due to be released from prison, a referral is made to the Police and Probation Service who will then convene a multi-agency meeting.

Agencies such as police, probation, housing, health, social services and prison are working more closely than ever before to share information in order to build a picture of the risks an individual presents and what circumstances and problems may increase or decrease the risks. At both the MAPPP and the RMM a Risk Management Plan is formulated with each agency agreeing to contribute resources if appropriate. Some of the actions could be police surveillance, attendance at a treatment programme, hostel

accommodation, or in some cases, a recall to prison where the offender is demonstrating a lack of willingness to comply, or behaviour which is considered too serious for the person to remain in the community. All meetings consider the issue of disclosure very seriously, taking into account possible future victims and the identification of other agencies who may need to know about the risks posed by the offender. Procedural guidelines exist to ensure any disclosures made are legal, justified, necessary and proportionate. All the decisions and actions of both MAPPPs and RMMs are recorded and a date set to meet and review progress. Meetings will continue until the person is no longer considered a danger to others. The following are examples of work carried out as a result of the Teesside Multi-Agency Public Protection arrangements. EXAMPLE A: Bill had 17 convictions from 1988 to 1999, including dishonesty, violence and criminal damage. He had a long history of drug misuse and mental health problems requiring medication. In 1999 Bill was sentenced to two years imprisonment for Threats to Kill. He was subject to a Multi-Agency Public Protection Panel and registered as a very high risk offender. On release from custody, the Risk Management Plan involved close scrutiny of Bill’s contact with his previous victim. As soon as Bill breached his licence by contacting his victim, immediate steps were taken to recall him to prison. Bill was subsequently released again from custody and maintained a period of stability whilst receiving mental health interventions. At this point he was assessed as high risk by a Risk

Management Meeting. Continued emphasis on monitoring Bill’s movements and behaviour has been the priority and he remains subject to Risk Management Meetings. EXAMPLE B: Mark was sentenced to a 2 year Community Rehabilitation Order for an offence of Unlawful Wounding in 2003, where he had assaulted his elderly mother. Mark has a history of violence towards her, including verbal abuse, although he had no other previous convictions and he was, at the time, her main carer. Concern was raised that Mark was still living with his mother and was continuing to consume high levels of alcohol. A referral was made into MAPPA and he was initially registered as Very High Risk by a MAPPP, given the vulnerability of his elderly mother, over familiarity with his mother’s carers and his continuing heavy use of alcohol. At the MAPPP, a Risk Management Strategy was formulated which included Probation, Police and, importantly, Home Carers and Social Services. This included both planned and unplanned home visits, co-ordinated joint visits with Home Care Staff and weekly contact with Probation in order to monitor his drinking, behaviour and home situation, and the allocation of a Social Worker to review any support available to Mark. By December it was agreed that the level of risk Mark presented had reduced due to the success of the Risk Management Plan, and his level of risk was reduced to High Risk. Three month reviews continue to be held and strategies remain in place to protect both his mother and Home Carers.

It must be remembered that we can never eliminate all the risks posed by high and very high risk offenders, but what we do now is more effective than what we were able to do before. What is critical is the co-operation and joint working of all agencies to work together to protect the public. Two offenders considered by MAPPA in 2003/4 have committed further serious offences. The MAPPP ensures that closer supervision results in earlier, carefully planned action which can lead to a further charge, conviction through the Courts, a further prison sentence, and in many cases, recall to custody. The cases where a further serious offence occurred involved the following multi-agency work which focussed on managing the risks and reacting quickly when the further offences occurred. EXAMPLE C: Matthew has a long history of violent offences. The most recent offence resulting in a Community Rehabilitation Order involved an assault against his partner. Further assaults on his partner continued and Risk Management Meetings were convened. Plans were put in place to protect the victim including the involvement of the Police Domestic Violence Unit, focused Probation work on challenging violent attitudes, as well as ensuring, as far as possible, contact between the offender and the victim was monitored. At regular multi-agency meetings information was shared which increased Matthew’s risk to very high. Despite a period of stability when he was complying with the Risk Management Plan, he re-offended and was immediately remanded to custody and is now serving a lengthy prison sentence.

EXAMPLE D: John was convicted of sexual offences against children, and was given a Community Sentence. Initially John was working with agencies to control his behaviour and he was registered as high risk by a Risk Management Meeting. He was subsequently discovered viewing child pornography on the internet. Due to continuing concerns expressed by a range of agencies, a MAPPP was held and he was assessed as very high risk. John again re-offended and served a prison sentence for Indecent Assault. Further MAPPP meetings were held on his release from prison and as soon as it became apparent

that his behaviour was deteriorating, action was taken to investigate his involvement with others and he was arrested and is currently remanded in custody, charged with further offences awaiting trial. The MAPPP enabled information to be shared quickly and immediate police action followed. Those offenders considered by MAPPA represent a very small number of offenders supervised by the Probation Service, and smaller again in respect of all those convicted by the Courts. In Teesside from April 2003 to March 2004 only 16 people were considered by the highest level

meeting, MAPPP, and thus considered the ‘Critical Few’. Two of these went on to commit a further serious offence. In respect of those referred to MAPPA nationally research has shown that less than 2% are charged with further offences. There are more registered sex offenders than last year, but this is to be expected as more people are sentenced at Court who are now registered where previously there was no requirement to register prior to the Sex Offences Act 1997. The registration period for sex offenders is a long one and, therefore, the figure is likely to rise year after year as people will remain on the register.

5. The Focus on Victims
When an offender is sentenced to more than 12 months in prison for a sexual or violent offence, it is the job of the Victim Liaison Officer, employed by NPS – Teesside, to contact the victim and keep them informed of what is happening throughout the offender’s sentence, if the victim wishes to receive this information. The Victim Liaison Officer will offer victims the opportunity to receive information regarding the different stages in an offender’s custodial sentence. This will include notifying the victim about significant aspects of release arrangements. They will also represent any victim issues at Multi-Agency Public Protection Panels and make suggestions regarding licence conditions that could continue to protect victims from offenders. Victim Liaison Officer work is an integral part of our public protection processes. Multi-agency public protection meetings seek information about victim issues. This information is then carefully considered when managing the risk an offender poses. Liaison occurs with other agencies particularly the police and Victim Support to ensure full information is available to assess any risks presented by the offender. The Victim Liaison Officer contributes victims’ views to the decision making within public protection work and acts as a link between the multi-agency public protection process and victims. It is also vital that victims have as much support as possible and the National Probation Service – Teesside works very closely with Victim Support to ensure victims receive as much support as they need to cope with the after effects of offences perpetrated against them.

6. What has happened in the last year
In the last twelve months, the MultiAgency Public Protection Arrangements have been strengthened by greater involvement by other agencies in the Strategic Management Board. This Board meets quarterly and sets a work plan for the following twelve months. Significant achievements from the work plan in 2003/4 have been: MONITORING AND REVIEW GROUP This group, which includes Social Services, Police and Probation, assesses the work of the agencies involved in MAPPA through a sampling exercise every 8 weeks. A standard audit tool is used to assess appropriate decision making in respect of referrals, risk assessments and plans to manage the risk. Health are due to join this group in 2004/5. The wide range of professionals involved enables a wider perspective on defensible decision making in respect of risk assessment. PROCEDURES GROUP NSPCC, Prisons, Police and Probation have completely reviewed the procedures in Teesside in order to incorporate all new guidance and legislation in respect of MAPPA and sexual offences. LINKS WITH ACPC Formal agreements are now in place to link public protection and child protection procedures. This is particularly important to ensure appropriate safe-guarding of all children from potentially dangerous offenders. JOINT POLICE/PROBATION UNIT Teesside will soon benefit from closer joint working as the Probation Public Protection Team and Cleveland Police Violent and Sex Offender Unit will work together from one shared unit. The introduction of VISOR, a unique computerised system to track violent and sex offenders, will also be based in this unit in the future and will enhance the work of MAPPA. AUDIT OF PUBLIC PROTECTION WORK This external audit highlighted a sound approach is being adopted in Teesside to manage public protection issues.

7. Strategic Management Board
The development of this forum has moved at a pace in recent months. Key agencies are involved in the group and have responsibility for the oversight of arrangements put in place to manage serious sexual, violent and other dangerous offenders. This group comprises senior managers from Probation, Police, Prison Service, Social Services, Health, voluntary sector, specifically NSPCC and Victim Support, Housing, Youth Offender Service and Securicor.

8. The Future
Future activity for the SMB in 2004 will be the appointment of two Lay Advisers. These individuals will be chosen from the local community and will enable some form of public insight into, and contribution to, MAPPA. Lay Advisers will become part of each area’s MAPPA Strategic Management Board, and will assist the Board in the formal review of arrangements to assess and manage the risks posed by sexual and violent offenders. This role will be an important addition to the Strategic Management Board with the aim of ensuring some involvement by the public in public protection arrangements. The Strategic Management Board will be involved in recruitment selection and training of lay Advisers and are keen to work with the local community to reassure us all about the arrangements in place to manage potentially dangerous offenders. It is hoped that lay advisers will help give the public a deeper insight into the work of MAPPA. Alongside the appointment of Lay Advisers, the implementation of the Criminal Justice Act 2003 and the Sexual Offences Act 2003 will strengthen Multi-Agency Public Protection Arrangements by introducing sentences for dangerous offenders which will keep them in prison until they no longer present a serious risk, tightening up sex offender registration requirements and introducing a new offence of grooming. Further developments in 2004/5 will concentrate on managing the risks posed by violent offenders and particularly those involved in domestic violence. The new legislation on domestic violence will be a welcome addition to the legislation currently available to manage violent and sexual offenders. A further development in 2004 following the implementation of the Criminal Justice Act 2003 on 5 April 2004 will be the involvement of the Prison Service as part of the Responsible Authority alongside police and probation. Teesside MAPPA already has good working relationships with the two local prisons who have been involved in the SMB for several years. Sharing responsibility with the prisons for MAPPA can only continue to strengthen public protection in Teesside. In addition to the above the Criminal Justice Act 2003 also formalises the involvement of other agencies which can make an important contribution to helping offenders not to reoffend. The Act imposes a “Duty to Cooperate” with the Responsible Authority upon:
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Local Authority, Housing, Education and Social Services Health Service Bodies Job Centres Plus Youth Offending Teams Registered Social Landlords Electronic Monitoring Providers

The “Duty to Co-operate” will formalise current good practice demonstrated by a range of agencies in Teesside.

9. Statistical Information
Category 1: MAPPA offenders: Registered Sex Offenders (RSOs)

Number of offenders


The number of RSOs living in the Teesside area on 31 March 2004


(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 2003 and 31 March 2004


iii. The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in Teesside between 1 April 2003 and 31 March 2004:

(a) The total number applied for


(b) The total number imposed by the courts


iv. The number of interim Sex Offender Orders (a) applied for and (b) imposed by the courts in Teesside between 1 April 2003 and 31 March 2004:

(a) The total number applied for


(b) The total number imposed by the courts


Category 2: violent offenders and other sexual offences

v. The number of violent and other sexual offenders (as defined by Section 68(3), (4) and (5) of the Criminal Justice and Court Services Act (2000)) living in your Area between 1 April 2003 and 31 March 2004


Number of offenders
Category 3: Other offenders

vi. The number of ‘other offenders’ (as defined by Section 67 (2)(b) of the Criminal Justice and Court Services Act (2000)) between 1 April 2003 and 31 March 2004


vii. The number of Restraining Orders imposed on any MAPPA offenders by the courts in Teesside between 1 April 2003 and 31 March 2004


Category 4: MAPPP cases

viii. The number of MAPPA offenders in the three categories above ((i) RSOs, (v) violent and other sexual offenders and (vi) other offenders) who have been managed through the MAPPP (level 3) between 1 April 2003 and 31 March 2004:

(a) RSOs


(b) Violent and other sexual offenders


(c) Other offenders


ix. Of the cases managed by the MAPPP (ie (viii) between 1 April 2003 and 31 March 2004 the following, whilst still in the MAPPP, were:

(a) Returned to custody for a breach of licence


(b) Returned to custody for a breach of a restraining order or sex offender order


(c) Charged with a serious sexual or violent offence


National Probation Service - Teesside Assistant Chief Officer Address Probation House 2 Longlands Road Middlesbrough TS4 2JL Phone 01642 230533

Cleveland Police Detective Inspector

Address PO Box 70 Ladgate Lane Middlesbrough TS8 9EH

Phone 01642 301450

Victim Support and Witness Service Teesside Co-ordinator

Address Briargate 4 Longlands Road Middlesbrough TS4 2JL

Phone 01642 293000

HM Prison Service Area Manager

Address Artemis Court Meadowfield DURHAM DH7 8XQ

Phone 0191 378 6000

for England and Wales

Enforcement, rehabilitation and public protection


Putting People First