Warwickshire

Multi-Agency Public Protection Arrangements Annual Report 2003–4

Foreword
This annual report is the third published since the formation of the Multi Agency Public Protection Arrangements (MAPPA) in 2001. The report documents the progress that has been made during the year to ensure that the public are protected from potentially dangerous offenders. The focus, quite rightly, is on how agencies work together, sharing information where necessary so that the risk posed by an offender is as accurate as possible. The new three-tier MAPPA structure helps to ensure that, where necessary, agencies are able to commit additional resources to those relatively few cases where extra measures are needed to protect the public. The work of the MAPPA is largely carried out without the knowledge of the public. This annual report includes case studies and examples of a day in the life of a probation officer and a police officer. These give a helpful insight into the types of cases dealt with and the ways in which risk can be reduced through joint working. During 2004 – 2005 we will be extending the public scrutiny of these arrangements through the appointment of two lay advisors to the MAPPA Strategic Management Board. The board oversees these arrangements. Structures and arrangements on their own will not protect the public without staff in each of our agencies who implement the arrangements and ensure the quality of assessment, sharing of information, decision making and intervention. We would like publicly to thank the staff involved in these arrangements, at all levels, for their contribution to making Warwickshire a safer place for us all.

Liz Stafford
Chief Officer of Warwickshire Probation Area and Chair of the MAPPA Strategic Management Board.

Bob Golding
Assistant Chief Constable, Warwickshire Police. 1

2

Contents
1. MAPPA the national picture 2. Achievements in Warwickshire 2003 – 4 5 9

3. How the MAPPA operates locally 10 - Case examples 1 and 2 - The new structure of Warwickshire MAPPA - Referrals to MAPPA - How agencies make a referral - Sex Offender Programme - Day in the Life of a Probation Officer - Day in the life of a Police Officer in the Dangerous Offender’s Unit - Working with Victims 4. Agencies involved in MAPPA - Police - Probation - Prison Service - Forensic Community Psychiatric Nurse - Housing - Social Services - Education - Youth Offending Service 5. Statistics 6. Strategic Management Board Appendix A Contacts 15

18 19 21 23

3

4

1 MAPPA – The national picture
Sexual and violent offences deeply affect the lives of victims and their families and inspire fear in local communities. Their impact can be profound and longlasting, leaving victims feeling unsafe even in their own homes. The Government regards tackling sexual and violent crimes as one of its highest priorities. Having set up the MAPPA in 2001 – which provided for the first time a firm statutory basis for the work police and probation jointly undertake to protect the public from sexual and violent offenders – it has in the last year done a great deal to strengthen the MAPPA and the wider public protection framework. Strengthening the MAPPA The national development of the MAPPA has concentrated on preparing to implement the MAPPA provisions of the Criminal Justice Act (2003). These provisions came into force on 5 April 2004 and help strengthen the MAPPA by: ● making the Prison Service part of the ‘Responsible Authority’ with police and probation; ● formalising the involvement of other agencies which can make an important contribution to helping offenders not to reoffend - the Act imposes a ‘duty to co-operate’ with the Responsible Authority MAPPA upon: - Local Authority Housing, Education and Social Services. - Health Service bodies. - Jobcentres Plus. - Youth Offending Teams. - Registered social landlords which accommodate MAPPA offenders. - Electronic monitoring providers. ● the appointment by the Home Secretary of two members of the public (‘Lay Advisers’) in each
5

area to assist in monitoring the effectiveness of the MAPPA. Work on the duty to co-operate has been taken forward by two separate and complementary initiatives. First, in many areas the duty to co-operate formalises what has already begun to be established as good practice. The statutory basis of the duty will help ensure a more consistent engagement of all these agencies across England and Wales. Secondly, the relevant central Government departments and the Welsh Assembly have been involved in developing the guidance which the Home Secretary issued on the duty to co-operate. The reform of the way in which child protection is organised, following the public inquiry into the tragic death of Victoria Climbie, will reinforce the importance of effective joint working between different agencies which the MAPPA has itself promoted. The introduction of an element of public scrutiny of this often complex and sensitive area of public protection through the appointment of two Lay Advisers in each area has been carefully and successfully trialed and evaluated. As Home Office Minister Paul Goggins said: “Lay Advisers will play a vital role…We are committed to giving them not only an insight into how this work is carried out but, more importantly, an opportunity to question what is being done and why.” Other legislative measures In addition to this work to strengthen the MAPPA, the Government has begun to strengthen other statutory provisions. The most significant of these is the Sexual Offences Act (2003) and the measures to introduce new sentences for ‘dangerous’ offenders which will keep them in custody until they no longer pose a serious risk to the public.
6

The Sexual Offences Act overhauls the many antiquated sexual offences and plugs loopholes in the law. In updating sexual offences, it strengthens the law on rape and on sex offences against children. It introduces new offences of ‘sexual grooming’ and extends the protection from exploitation in prostitution or pornography to children up to the age of 18. For the first time, it will be an offence to buy sexual services from a child below this age, targeting those who abuse children in this way. The Sexual Offences Act also strengthens the sex offenders register, which has proved a valuable means by which the police can monitor convicted sex offenders within their area, and introduces new civil orders to help prevent further offences from being committed. The focus on victims In addition to all this work to tackle offenders, the Government has placed greater emphasis upon meeting the needs of victims. The victims of sexual offending are identified as a priority group within the National Victims and Witnesses Strategy. This strategy, which was published in July 2003, aims to improve support and protection for victims and witnesses by: ● reducing the adverse effects of crime on victims and witnesses, and preventing secondary victimisation; ● encouraging more victims and witnesses to come forward; and ● offering more options to victims and witnesses, including alternatives to attendance at court. These initiatives will help toward another key Government target, that of improving public confidence in the criminal justice system.

7

The Government is underpinning this work in its Domestic Violence, Crime and Victims Bill, which is currently going through Parliament. It will create a new independent post of Commissioner for Victims and Witnesses to be a champion/voice for all victims of crime, and a new statutory Victims’ Code of Practice (to be implemented in April 2005), which will build on the existing Victim’s Charter and set out specific responsibilities that each criminal justice system agency and Victim Support must provide to victims.

8

2 Achievements in Warwickshire MAPPA 2003 - 4
In the year 2003 - 4 the local Multi Agency Public Protection Arrangements have been boosted by the appointment of a dedicated independent co-ordinator from August 2003. This post has been funded by Warwickshire Police, Warwickshire Probation Service, the health trusts, the borough and district councils and Warwickshire County Council through the Strategic Management Board. The development of this role has led to a radical reshaping of MAPPA work in Warwickshire to improve the way agencies focus their resources and improve the quality of partnership and public protection work. Some examples of these improvements are: ● A new integrated referral process that ensures that agencies focus their time and resources on the most high risk and dangerous cases where the attention is needed most. This has been achieved through the introduction of three tiers of multi agency work. - The highest tier is the Multi Agency Public Protection Panel or MAPPP, which focuses on the very highest risk cases (also called level 3) that require special and unusual resources from the agencies to manage them effectively. - Below this are Risk Assessment Management Panels (RAMPs or level 2 meetings) which deal with those high risk cases that don’t pose the gravest risks but do require some multi agency work to manage them effectively. - Lastly, there is a process for ensuring that all the other cases which have been identified by the Criminal Justice and Courts Services Act 2000, are subject to a proper risk assessment and allocated to an appropriate process of risk management within the relevant agency. This is called level 1 management and the case is usually handled through routine liaison between agencies. These levels are set out in more detail below. ● Integrating the Domestic Violence Project into the MAPPA to give extra support to the very highest risk and problematic cases of domestic violence. ● A new process to formally integrate the perspective of victims into the RAMP and MAPPP meetings. This means that the RAMP and MAPPP meetings are better aware of the effect on the victim of any plans or decisions they make. ● A new arrangement with Mental Health Services ensures that the highest risk mental health cases are discussed on the RAMP and MAPPP, and the lower risk ones are dealt with through health run case conferences. This means that the public protection arrangements are not overwhelmed with cases that can be managed better by mental health agencies instead. ● Joint training has been provided for all agencies involved in the MAPPA which helps them to do the following better: - Understand and use the public protection system effectively. - Make decisions about risk and risk management according to the best research and thinking available. - Ensure that the RAMPs and MAPPPs do not discriminate unfairly against people on grounds of race, sex, religion, disability or sexual orientation. ● Inclusion of electronic tagging companies in the meetings where an offender is likely to be tagged to improve the planning, monitoring and surveillance of dangerous offenders. There are also plans in hand to introduce a training package for probation and police officers who deal with sex offenders in Warwickshire, to build closer links and share more intelligence information. This has been helped by the provision of specialist training by the Home Office, through the Lucy Faithful Foundation. New auditing and evaluation measures are also being developed to ensure that the MAPPA is as effective as it can be in protecting the public.

9

3 How the MAPPA operates locally
It is easiest to explain how the MAPPA protects the public by giving case examples of the work done by one of Warwickshire’s RAMPs or MAPPPs. It should be remembered that although agencies seek to minimise and reduce the risks to the public, the Multi Agency Public Protection Panel can’t eradicate risk to the community altogether without an offender being returned to custody. The decision to return a person to prison is ultimately the decision of parole boards or the courts, but by working closely together, agencies can significantly reduce the risks in many cases. The Mental Health Services reported this to the police and a criminal investigation was started. The case was taken to the local Risk Assessment Management Panel (RAMP). The agencies there set up a plan to tackle the risks that included the following: ● Police pursued the criminal investigation into the fires he may have started locally. ● The hostel was warned about the risks and a fire safety survey was completed on the property with the Fire Service. ● The Local Housing Authority identified alternative accommodation for him where he was not a risk to others and he was successfully re-housed. ● Mental Health Services arranged for a specialist psychiatric and psychological assessment of his risk. ● He was engaged by Mental Health Services in a weekly programme of work, which helped him identify strategies to prevent him acting out his impulses. ● Mental Health Services have closely monitored his progress. Despite his early anger at the decision to tell the police and go to the RAMP, the individual has signed a voluntary agreement with mental health professionals to work with them on managing his risk. ● Mental Health Services have allocated ongoing time and resources to him to address his risk despite the fact that he isn’t strictly mentally ill enough to justify this, simply because he was a high risk case subject to the RAMP. ● The Fire Service monitored the number of fires around him to verify whether he was telling Mental Health Services the truth about his activities. Outcome: Brian has been re-housed safely, he has engaged positively with the Mental Health Services to tackle his behaviour, the number of suspicious fires in his locality have reduced and he has, with help from agencies, not acted on his powerful impulse of setting up a serious arson incident.

Case 2: John was a dangerous offender who had been involved in a number of violent relationships with vulnerable women. John was known to be very charming towards women and to start relationships that soon became violent. He would become very controlling. John had been sentenced to a lengthy period in custody for a very serious assault against one of his victims which had caused her severe long term emotional and physical harm. Probation were considering John for early release from prison on licence and brought the case to the RAMP for discussion.

Case 1: Brian was a mentally ill man who told his psychologist that he was having obsessive thoughts about burning down a building. Mental health staff were concerned that this could have been the accommodation in which he lived. There were upwards of 12 other vulnerable people living in that accommodation at the time. He also admitted to causing a number of minor fires locally and had a dangerous fascination with fire.

10

The agencies put the information together which showed that he had been targeting women like this for more than five years previously and had several victims, not all of whom had come to the attention of the courts. The way he operated became clear – he targeted shy women who lacked confidence and met them through the churches and at local gyms. It was also clear that he was continuing to try and contact his previous victim. The RAMP was able to hear what the impact of the offence had been on his last victim and what her fears were. He had shown little remorse or insight into his behaviour in prison and was believed to have a personality disorder which meant that he was unlikely to be able to change. From discussing his behaviour the panel realised that there was a very high risk that John would commit similar offences, and would actually target his last victim again if allowed out. As a result the RAMP recommended that: ● John was not released at this time. ● Further work was done with the victim to protect her from unwanted mail from the prison and to try and set up plans for his release which would protect her. ● Police would visit the local churches to inform the pastors of the risks that John posed to women in their congregations. ● John would be restricted from contacting his victim and going to the area where she lived, once he came out on licence. ● The agencies would continue to closely monitor his behaviour once he did come out. Summary The Multi Agency Public Protection Panels protect the public in some of the following ways:

● They share critical information about high-risk offenders so that each agency has the most complete picture they can get in making decisions and managing that person. ● They make critical decisions together and bring greater accountability into that process on behalf of the community. For example, if the Probation Service wanted to recommend releasing someone really dangerous into the community from prison they would have to justify that decision to the panel as well as to the Prison Parole Board. ● In certain cases they make decisions to inform schools, parents or employers about the risks an offender poses. ● They enable special resources to be found for difficult cases, which would not usually be available. For example, specialist risk assessments from outside experts or specialist housing provision which would reduce the offender’s potential opportunity to offend. ● Each agency has a range of different legal powers which can be sought to control or prevent behaviour, including Anti Social Behaviour Orders, Sex Offender Orders, Licence Conditions, power to evict, electronic tagging and Curfew Orders. These, when used together, can often help make a package of measures that ensure offenders are managed more safely. ● Panels can sometimes offer specific measures to help protect victims, such as accommodating the offender in another area. The panels can also inform victims of the plans being made for release and rehabilitation of high-risk offenders, and give victims police alarms and reassurance.

New Structure of the Warwickshire MAPPA Following Home Office guidance, Warwickshire has restructured its Multi Agency Public Protection Arrangements (MAPPA) to reflect three levels of activity and has appointed a MAPPA Co-ordinator to pull together the new system. Level 1 All cases that come through the MAPPA referral process are carefully screened to assess the level of risk and level of harm an individual presents. The referral is sent out to the participating agencies to check whether they have any information about the risk of harm an offender presents, and then the referral is returned back to the Dangerous Offenders Unit, where a decision is made as to the level that is most appropriate for managing the case. The MAPPA Co-ordinator will make the decision in conjunction with the referring agency about whether the case should be placed on the RAMP. If the case is not placed on the RAMP, the referring agency will manage it. This could entail a different type of multi agency meeting (eg. a mental health case conference or Anti Social Behaviour Order meeting), or it could be dealt with by the referring agency through the usual liaison with partner agencies. Level 2 The next level of activity is the Risk Assessment Management Panel or RAMP, which is a local meeting held in each district of Warwickshire once a month. This is chaired by the MAPPA Co-ordinator, and membership of the RAMP includes the same agencies indicated above. It will deal with a maximum of five cases at a time and will focus on high-risk cases where high levels of

11

harm are likely but the level of resource needed to manage that risk is not likely to be unusual or extraordinary. RAMPs tend to deal with offenders who are assessed as likely to commit offences such as rape, child abuse, arson or serious violence. The MAPPA Co-ordinator will ensure that where a victim’s wishes are known by the Victim Contact Unit, that the victim has the opportunity for their views to be presented to the panel. RAMPs are used to help plan the return of dangerous offenders from prison into the community, and are also a forum where the Probation Service can check with agencies about the appropriateness of its recommendations to release certain offenders. Level 3 The highest level of MAPPA comprises the Multi Agency Public Protection Panel or MAPPP which deals with the ‘critical few’ cases which pose the highest risk of very serious harm to the community. The MAPPP is chaired by a Detective Superintendent or Assistant Chief Probation Officer to reflect serious high-level

ownership of the issues. Agencies invited in addition to the police and the Probation Service are likely to include Social Services, housing departments, Mental Health Services, a representative of the prison and any other relevant agency that can contribute towards the management of the offender’s risk. The distinguishing feature of the MAPPP is the need for high-level managerial representation at the meeting to guarantee availability of unusual or extraordinary resources to manage a particular offender. A MAPPP might also be called to manage any offenders who come into the county who are likely to attract media attention and public interest and concern. Cases can only be placed on the MAPPP after agreement by the Detective Superintendent and Assistant Chief Probation Officer who chair the MAPPP. Referrals to MAPPA The police automatically refer Registered Sex Offenders. Probation automatically refers all those offenders who have received a 12-month or longer custodial sentence for a violent or sexual

offence, who are not already registered as a sex offender. Mental Health Services have to refer all cases where an offender is found not guilty of a sexual or violent offence by reason of insanity and made subject to a Hospital Order or Guardianship Order. Any agency can refer an offender who is believed to pose a high risk of harm to the community, and who has been convicted of a serious offence in the past. How agencies make the referral There is a referral form which agencies are required to complete if they wish to refer a case through for a MAPPA response. In the first instance, professionals who are unsure of the MAPPA process should have a discussion with the MAPPA Co-ordinator or agency representative on the RAMP, to discuss their concerns and whether a referral is appropriate. The MAPPA Co-ordinator can be reached at the Dangerous Offenders Unit at Police Headquarters in Leek Wootton (01926 405871). The public cannot make a referral to the MAPPA. If a member of the public has concerns about an individual they need to speak to the police in most instances or the agency that is dealing with that person (eg. Mental Health Services, Social Services) Sex Offender Treatment Programme Warwickshire participates in a regional Sex Offender Treatment Programme, led by West Midlands Probation Service. Sex offenders who complete the West Midlands Probation-led Community Sex Offender Group Work Programme are half as likely to re-offend as untreated offenders. This was the overall finding of a five-year

12

evaluation project run by Dr Jayne Allam, a psychologist at the University of Birmingham. The Community Sex Offender Group Work Programme works with offenders released from prison on licence or those serving community sentences. The programme has been nationally accredited for use with offenders and is part of the Probation Service’s ‘What Works’ approach, which develops evidence based methods for working with offenders that have been shown to be effective. It combines intensive group therapy work and psychometric testing, and is regularly assessed for effectiveness. Sex offenders can be directed to attend as part of a community sentence or as a condition of their release from prison. The programme can last for up to 200 hours, with individuals being required to attend weekly, for between 18 months and two years. The programme helps the offender think about their offences and the impact on the victim, and helps them learn new skills to constrain and control their behaviour which complement the external controls that are imposed through MAPPA.

Day in the life of a probation officer My role as a probation officer is both challenging and demanding. As I supervise a large number of offenders in the community, I have to be well organised and plan my day in advance. Each offender who I supervise (for example sex offenders, violent offenders, arsonists etc) will have their own specific needs and underlying issues that need to be addressed to reduce their offending behaviour. To enable me to identify suitable interventions to reduce their offending, I use the nationally accredited OASys probation risk assessment tool. This is a complex document that requires the offence and the offender’s lifestyle to be examined in detail with them. I complete a risk screening and full risk analysis to determine if the offender is deemed low, medium, high or very high risk, and identify those factors which impact on their offending behaviour. When this assessment is complete, I will devise a supervision plan with the offender which will include the work that he or she is required to do, and any restrictions that are likely to be placed on them. This could include being required to undertake anger management work, sex offender treatment programmes or drug and alcohol management courses, and could involve restrictions such as a curfew, being banned from contacting victims or entering certain areas of Warwickshire as part of the licence conditions. In my role I must apply what we call National Standards. These are the requirements set by Government to ensure the number of visits an offender receives from their probation officer. My working practice is consistent and where offenders fail to comply with their community sentence or licence
13

conditions, I instigate the correct enforcement procedure. This often means that when an offender breaks the conditions of their licence from prison (eg. by contacting a victim), they are returned to prison to serve out the rest of their sentence. Whilst supervising high-risk offenders, I have to liase regularly with the Dangerous Offenders Unit to pass on information or seek advice to ensure they are managed effectively. I recently contacted the unit to advise that I had received information from another offender who was the personal friend of an offender I was supervising. In conversation he stated that this particular offender had formed a relationship with a local woman who had young children. The offender in question was a registered sex offender and I was therefore able to pass this information on to the Dangerous Offenders Unit, who were able to make relevant enquiries to ensure the safety of the local woman and her children. In performing the above role I believe I provide an effective and essential service to the Criminal Justice System and the public. Day in the life of a police officer in the Dangerous Offenders Unit As the detective constable in the Dangerous Offenders Unit, my role involves managing the Registered Sex Offenders within Warwickshire and I am also the officer responsible as the police liaison point for the Multi Agency Public Protection arrangements. Registered Sex Offenders are required to register within three days of a caution or conviction or within three days of their release from custody. Following their initial registration, I will complete an initial

visit to that offender to establish their current circumstances, ensure they are aware of their registration requirements and to complete an initial assessment of their risk to the community. As part of the risk assessment process I will also liase with other agencies such as Social Services, the Probation Service, Mental Health Services and housing departments. Each offender is classified as very high, high, medium or low risk of re-offending, using nationally recognised assessments tools, which have been validated by research for accuracy. I liase closely with other agencies to ensure that the public is protected appropriately. For example, a local probation-run hostel in Warwickshire phoned me to pass on information which they’d acquired that a Registered Sex Offender (who they were not involved with) had formed a relationship with a vulnerable woman with children. It was known that he presented a risk to children. I made checks with Social Services, who were able to run checks with the health services to confirm that the woman did indeed have children. As a result of this, action was taken to warn the woman of the risks posed by the offender. This is a typical, routine example where close liaison and working together between agencies has prevented children being abused. Working with Victims To prevent offenders re-victimising their victims or others, the MAPPA has to work effectively with the victims of crime. This is why the MAPPA links directly into the work of the Victim and Witness Information Partnership (VIP) in Warwickshire.

Work of the VIP The VIP is a groundbreaking pilot initiative, which brings together the police, Crown Prosecution Service, Probation Service, Youth Offending Service, Magistrates Courts and Crown Courts with domestic violence support agencies, Victim and Witness Support and anti social behaviour co-ordinators. It provides a source of information for the victim about the progress of their case through the criminal justice system, through email, the telephone or a drop in centre. The VIP also ensures that intimidated or reluctant witnesses are supported through special measures in or outside court. The VIP electronically joins up the information of all these different agencies around the offender’s case and sets up a joined up support service so that the victim only has one place to go for all the information and support they need. The Victim Contact Unit does the following things to support victims of crime where the offender received 12 months or longer in custody for a sexual or violent offence: ● Makes contact with the victim. ● Consults the victim about the release plans for the offender and makes the victim’s views known to the supervising probation officer, the prison authorities and the MAPPA. ● Makes recommendations about licence conditions or other aspects of an offender’s resettlement plan. ● Keeps victims informed about any significant developments during sentence or after release, including notification of release dates and any additional measures to increase their safety.

MAPPA and VIP For the RAMP or MAPPP to do their work effectively they need to understand the victim’s perspective in the case properly. The VIP liaises directly with the RAMP or MAPPP and provides a separate report on each case that is heard at the RAMP or MAPPP. The report is made after consultation with the victim. The VIP makes its report directly to the independent chair of the panel. This report will detail the impact of the offence on the victim and their fears, views and wishes about future plans around the offender. The difference this link with the victim makes can be very significant. Knowing the area where the victim lives and how the victim was affected by the offence can help the RAMP or MAPPP plan where the offender should be directed to live after custody for the duration of their licence. In some cases the RAMP or MAPPP can place an offender away from the victim. In others the Probation Service can seek a condition of the licence that prevents the offender making any contact with the victim. Victims often have a keen sense of the risk posed by an offender, especially if the offence was part of

14

an ongoing relationship with the offender. This information can be very useful to the assessment and management of the offender. Where a victim fears that an offender will target them again, the RAMP or MAPPP can help minimise these risks and fears by taking special measures and providing information, advice and reassurance to the victim. Some decisions and plans have been changed as a result of hearing the victim’s perspective.

4 Agencies involved in MAPPA
Police As one of the three responsible bodies for the MAPPA, the police play a key and vital role: ● Jointly chairing, with the Probation Service, the Strategic Management Board (SMB). ● Registering sex offenders who fall under the provisions of the Sex Offender Act 1997, developing intelligence packages on each one, undertaking a risk assessment, liasing with other agencies where required, and visiting sex offenders to monitor their whereabouts and behaviour. ● The police provide police alarms for victims as well as victim liaison and support. ● The police provide the administration for the MAPPP. Probation As a joint lead for the MAPPA, the Probation Service provides the following contribution to the MAPPA work: ● Jointly chairing, with the police, the Strategic Management Board (SMB). ● Initial assessments of all offenders who come before the courts for violent and sexual offences, using a standard assessment tool. ● Further more specialist assessments of sex offenders through the Sex Offender Programme. ● Supervision and management of offenders placed on community orders, including action to breach offenders who fail to comply. ● Delivery of specialist programmes designed to reduce the risk of further offending, including the nationally recognised West
15

Midlands Sex Offender Group Work Programme. ● Planning and preparatory work with offenders in prison, including the provision of advice on suitability for release, accommodation plans, victim concerns and licence conditions. ● Supervision and management of offenders on licence following their release from prison, including recall action for offenders who fail to comply or whose behaviour gives cause for concern. ● The provision of accommodation for offenders in Approved Premises (formerly known as probation and bail hostels) who need enhanced supervision and oversight. Prison Service With effect from April 2004, the Prison Service became part of the statutory framework for the Multi Agency Public Protection

Arrangements, joining the police and probation as the third party in the ‘Responsible Authority’. The Prison Service contributes to MAPPA at two key levels: Strategic Management Board The Area Manager in the West Midlands has delegated authority within MAPPA to a newly created post of Risk Manager. The West Midlands Area Risk Manager is already working as part of the MAPPA Strategic Management Board, contributing to the work of the SMB in its monitoring and review of the effectiveness of MAPPA. Operational Delivery of MAPPA It is intended that prisons in the West Midlands will become an important partner in the operation of MAPPA by: ● Ensuring that prisoners subject to MAPPA are identified as early as possible within their sentence and referred to the MAPPA coordination process. ● Using OASys, the risk assessment tool developed jointly by the Probation and Prison Services, to carry out initial and subsequent assessments of risk of harm to others. ● Providing information about release dates and, where relevant, about prison behaviour to ensure that the MAPPA risk assessment is informed about factors relating to risk, and particularly dynamic risk. ● Contributing to the development of risk management plans and meeting with other agencies at risk panels. ● Ensuring that Prison Service representatives at MAPPA meetings are at an appropriate grade to contribute to panel

decisions and to allocate resources. ● Ensuring that Prison Service resources are targeted where possible to assist with reducing risk (eg. in the delivery of accredited offending behaviour programmes) for prisoners subject to MAPPA. The Prison Service is looking forward to working collaboratively with its partners in MAPPA and to contributing to the decision making that is central to the MAPPA process, and is already working to become more consistent and coordinated in its own strategy and practice. Forensic CPN (Mentally Disordered Offenders Scheme) The Mental Health Services provide critical support to the MAPPA in cases where there are mental health concerns in the offender by: ● Assessing all offenders with possible mental health problems at the point of arrest. ● Providing information, liaison, assessments and advice to agencies involved in the management of offenders with mental health problems. ● Providing advice, assessments and support to agencies struggling to manage offenders with personality disorders. ● Providing treatment and support to a small protected high risk case-load of offenders with mental health problems. ● Carrying out assessments of offenders inside prison as part of the package of preparing them to return to the community safely.

Housing The contribution of the local authority housing departments to MAPPA includes the following: ● Advising on safe, suitable accommodation options for sexual and violent offenders, taking into account the concerns of the victim. ● Providing accommodation for difficult to place offenders which helps agencies manage their risk better and prevent re-offending. This often includes housing away from vulnerable people and where there is a higher level of monitoring. ● Sharing information about the lifestyle and behaviour of offenders living in their housing areas. It is important to also include the role played by housing associations in Warwickshire, which often contribute in the same way. Social Services Social Services’ main role is to ensure that children and vulnerable adults are protected from significant harm. Social Services has the lead role in protecting children from abuse under the Children Act 1989.

16

The MAPPA‘s role is to prevent harm to children by working with or imposing controls on the offenders. Several members of the Warwickshire Area Child Protection Committee (ACPC) which co-ordinates the work of child protection, also sit on the Strategic Management Board (SMB), which co-ordinates the work of the MAPPA to provide a robust link between the work of the two bodies. The contribution Social Services makes to the MAPPA includes the following: ● Undertaking child protection investigations into suspected incidents of child abuse, or concerns about risk to specific known children. ● Sharing information about a known offender. ● Providing assessments and treatments and therapeutic help to children showing sexually inappropriate and abusive behaviour. Education The Education Authority provides support to the MAPPA in certain cases: ● Providing education packages for difficult to place young offenders. ● Working with parents and children to raise awareness of risks of abuse and keeping the children safe. ● Providing information to other agencies about the progress of juvenile offenders. ● Ensuring safe and sensitive management in the school environment of children who commit sex offences.

Youth Offending Service The Youth Offending Service in Warwickshire is responsible for the direct delivery of services to young offenders, their families and their victims. This includes undertaking risk assessments of all young people who commit offences. The Youth Offending Service prepares Pre-Sentence Reports on young people appearing before the courts and helps advise the courts on the most appropriate sentence. The service also supervises all community sentences and postcustodial licences. Intensive supervision and surveillance programmes for persistent young offenders ensure that very close monitoring and supervision arrangements for offenders are in place to help reduce the risk of reoffending. The Youth Offending Team contributes to RAMPs and MAPPPs in the same way that the Probation Service does: ● Planning for the release of dangerous young offenders. ● Providing high quality risk assessments through the ASSET risk assessment tool. ● Providing close management and supervision plans with other agencies.

17

5 Statistics
The main changes in the figures this year largely reflect new counting requirements introduced by the Home Office, which focus on only those cases in MAPPA where the offender is in the community. Registered Sex Offenders There has been no change in the number of registered sex offenders living in Warwickshire since last year. It should be recognised that not all of the registered sex offenders living in the community pose a high risk of re-offending. Those who do are likely to be subject to some form of enhanced monitoring or multiagency meetings under the MAPPA. This is a much smaller number – in the region of around 15 percent of the total figure. Violent Offenders The number of potentially dangerous offenders (usually violent offenders) in Warwickshire’s figures has dropped very significantly this year. This drop is due to the practice of only counting those who are in the community, and excluding those who are in prison during this year. Other Offenders These are offenders who are not registered sex offenders or who do not have a 12-month sentence or longer for a violent or sexual offence. It includes those offenders who are not automatically picked up in the other two categories but who pose significant risks to the community. Some of these are mentally disordered offenders, who are referred by the Mental Health Services or who have ceased to be under the statutory management of the Probation Service but continue to pose a considerable risk. Not all the cases referred actually went on to be discussed at the highest levels of the MAPPA. Many were dealt with at the lowest level but were referred to ensure there was a multi agency consultation about how best to handle the risks. Sex Offenders Orders There have been no Sex Offenders Orders taken out this year, however, with the changes in the new Sexual Offences Act 2003, it is anticipated that the new powers and orders given to police forces may increase the number to be taken next year.

18

6 Strategic Management Board
Warwickshire has established a Strategic Management Board (SMB) that meets quarterly to monitor and review the effectiveness of MAPPA, make recommendations for change and publish the annual report. The chair of the board rotates yearly between the Chief Probation Officer and the Assistant Chief Constable. In addition to the police and probation, the board has representation from the Prison Service, Social Services, the Youth Offending Service, the education and housing departments and the primary care trusts in Warwickshire. In addition, a representative of the electronic tagging service is also invited to attend the board. The board has direct links with the Warwickshire Area Child Protection Committee (ACPC), which is a committee that organises and oversees the work of the Warwickshire agencies to help protect children from abuse within Warwickshire. The police, probation and Social Services representatives on the SMB also sit on the Warwickshire ACPC to develop strong links and continuity of policy. Plans are in place to recruit two lay members from the public to sit on the Strategic Management Board to add an extra element of public scrutiny to the MAPPA in Warwickshire.

19

20

Appendix A

Statistical information
Number of sexual, violent and other offenders covered by Multi Agency Public Protection Arrangements (MAPPA)
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSOs) i) The number of RSOs living in Warwickshire on 31st March 2004. 183

Warwickshire No. of offenders

This information excludes RSOs in prison. ia) ii) The 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 2003 and 31st March 2004. The number of full Sex Offender Orders (a) applied for and (b) imposed by the courts in Warwickshire between 1st April 2003 and 31st March 2004. a) b) The number of interim Sex Offender Orders (a) applied for and (b) imposed by the courts in Warwickshire between 1st April 2003 and 31st March 2004. a) b) 36 3

iii)

0 0

iv)

0 0

2.

Category 2: violent offenders and other sexual offenders 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 Warwickshire between 1st April 2003 and 31st March 2004 53

3.

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 1st April 2003 and 31st March 2004. The number of Restraining Orders imposed on any MAPPA offenders by the courts in Warwickshire between 1st April 2003 and 31st March 2004. 37

vii)

0

21

4.

MAPPP cases (viii) The number of MAPPA offenders in each of the three categories who have been managed through the MAPPP (level 3) between 1st April 2003 and 31st March 2004. Registered Sex Offenders Violent Offenders Other Offenders 2 1 0

This figure is the ‘critical few’. The criteria for referring a case to the MAPPP are defined in MAPPA Guidance as those in which the offender: ● is assessed under OASys as being a high or very high risk of causing serious harm; AND ● presents risks that can only be managed by a plan which requires close co-operation at a senior level due to the complexity of the case and/or because of the unusual resource commitments it requires; OR ● although not assessed as a high or very high risk, the case is exceptional because the likelihood of media scrutiny and/or public interest in the management of the case is very high and there is a need to ensure that public confidence in the Criminal Justice System is sustained. ix) Of the cases managed by the MAPPP (i.e. (viii)) between 1st April 2003 and 31st March 2004, the number that, whilst still in the MAPPP: Were returned to custody for a breach of licence a) Were returned to custody for a breach of a restraining order or sex offender order b) Were charged with a serious sexual or violent offence c)

1 0 0

For these purposes a serious sexual and violent offence is one of the following (ie. the same offences as used to trigger reporting in the National Probation Service as a ‘serious further offence’): murder; attempted murder; arson (where there is an intent to endanger life); manslaughter; rape; kidnap/abduction or attempted kidnap/abduction. Any other very serious violent or very serious sexual offence, armed robbery (defined as robbery involving a firearm), assault with a deadly weapon or hostage taking. Any other violent or sexual offence where the offender/offence is likely to attract significant media interest or which raises wider issues of national interest.

22

Contacts
National Probation Service, Warwickshire Area Pat Johnson Acting Area Chief Probation Officer Address National Probation Service Warwickshire Area 2 Swan Street Warwick CV34 4BJ Phone 01926 405800

Warwickshire Police DS Steve Hussey Dangerous Offenders Unit

Address Warwickshire Police HQ PO Box 4 Leek Wootton Warwickshire CV35 7QB

Phone 01926 415142

Deane Jennings MAPPA Co-ordinator

Warwickshire Police HQ PO Box 4 Leek Wootton Wawickshire CV35 7QB

01926 405871

DC Sue Pritchard Dangerous Offenders Unit

Warwickshire Police HQ PO Box 4 Leek Wootton Wawickshire CV35 7QB

01926 415000

23

24

Warwickshire

Photos: Format Photographers and the CJS Communications Team Produced by: Media and PR Team, Warwickshire Police 01926 415064 www.warwickshire.police.uk www.warwickshireprobation.org.uk
2004-005