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Multi-Agency Public

Annual Report

Managing Risk
through MAPPA

1 Forewords 4

2 National Summary 6

3 Area Summary 8

4 Helping Victims of Crime 9

5 How MAPPA Works 10

Risk Assessment
Working with Sex Offenders
A Day in the Life….
Case Studies

6 Managing MAPPA 16

7 Who’s Who in MAPPA 18

West Midlands Police

Probation West Midlands
Prison Service
Social Services
Youth Offending Teams

8 Facts and Figures 26

West Midlands MAPPA Annual Report 2002-03 Page 3

National Foreword
As the recently appointed Minister with responsibility for Multi-Agency Public Protection
Arrangements (MAPPA), I am pleased to introduce this, the second, annual MAPPA report. It
is clear that in the last year (2002-03), MAPPA continued to play an important role in what
remains one of this government's highest priorities - the protection of the public from
dangerous offenders.

As someone with many years experience of working in the field of child protection, I am
particularly impressed by the important contribution the MAPPA are making to strengthen
collaboration between agencies at a local level where the focus is on the dangerous offender.
These improvements must, however, impact on the protection of children. As the tragic death
of Victoria Climbie showed, an effective multi-agency partnership is crucial and the MAPPA are
an important element.

To ensure greater consistency in the MAPPA across the 42 Areas of England and Wales, and
to prepare for the implementation of measures contained in the Criminal Justice Bill, we
published the MAPPA Guidance in April. Building on good practice, that Guidance clarified the
structure of the operational arrangements as well as the importance of formal review and
monitoring - of which this annual report is a vital part.

The Criminal Justice Bill will strengthen the MAPPA in two ways. First, it will make the
involvement of other agencies part of the statutory framework. Second, it will introduce the
involvement of lay people - those unconnected with day-to-day operation of the MAPPA - in
reviewing and monitoring the MAPPA. Annual reports and this new lay involvement show the
Government's commitment to explaining how the often sensitive and complex work of public
protection is undertaken.

The Government is also strengthening the protection of the public with other measures in the
Criminal Justice Bill. They include new sentences for dangerous offenders to prevent their
release if they continue to be dangerous. Additionally, the Sexual Offences Bill will tighten up
sex offender registration, introduce a new offence of 'grooming', and enable Sex Offender
Orders to be imposed on violent offenders who pose a risk of causing serious sexual harm -
thereby extending sex offender registration to them.

I commend this report to you and congratulate all the agencies and individuals who have
contributed to the achievement of the MAPPA locally in your local Area.

Paul Goggins, MP,

Parliamentary Under-Secretary for Community and Custodial provision in the

Home Office

Page 4 West Midlands MAPPA Annual Report 2002-03

Local Foreword
We are pleased to welcome the second annual report about the work of MAPPA in the West

The publication of this report remains an event of great significance. It is a symbol of
accountability and openness regarding the management of violent, sexual and dangerous
offenders, a group that understandably causes the public great concern.

This report includes contributions from ourselves and our partners in education, health,
housing, social services, prisons and the Youth Offending Service. Probation-police partnership
working, in particular, continues to grow year on year and we are now collaborating more
closely together than at any time in the history of either organisation.

The work of the Joint Public Protection Unit, covered in detail in this report, is a shining
example of the benefits of police and probation staff working in the same team to more
effectively manage offenders living in our communities. Their co-ordination and intelligence
gathering activities ensure that probation and police officers can be as effective as possible in
the monitoring and supervision of this small but potentially dangerous group.

With the creation of the new West Midlands Criminal Justice Board, which brings us together
with the Courts and the Crown Prosecution Service, we will continue to explore new ways of
working together more effectively. We are already seeing how the benefits of information
sharing under agreed protocols, as demonstrated by MAPPA, can be applied to our work with
persistent offenders in the areas of car theft, burglary, violence and street crime, juvenile
offending and even gang and gun-related crime.

Faced as we are with new challenges across all aspects of the Criminal Justice System and the
public sector, this report is a timely reminder that public protection remains of paramount
importance for every agency involved in MAPPA. The West Midlands has led the way
nationally in best practice for the effective management of the risk posed by sexual, dangerous
and violent offenders and we aim to continue with this high standard.

We hope you will find this report interesting.

Paul Scott-Lee Hilary Thompson

Chief Constable Chief Officer
West Midlands Police West Midlands
Probation Area

West Midlands MAPPA Annual Report 2002-03 Page 5

National Summary
This section of the report draws attention to the wider context of the operation
and development of Multi-Agency Public Protection Arrangements (MAPPA).

The most important work undertaken within MAPPA is done locally, led by the police and
probation - who act jointly as the ‘responsible authority’ in your area - and in each of the 42
areas of England and Wales. The experience and good practice upon which this work is based
began in the 1990s - most significantly as a result of the closer working relationship required
by the Sex Offender Act 1997.

The Criminal Justice and Courts Services Act 2000 formalised that relationship and built on
the existing experience by requiring the police and probation services to establish
arrangements (the MAPPA) for assessing and managing the risks posed by sexual and violent

The Act also required the ‘responsible authority’ to publish an annual report on the operation
of those arrangements. This report, covering April 2002 to March 2003, is the second annual

The Importance of Partnership

Key to the development of the MAPPA in the past year has been the closer involvement of
other agencies such as housing, health and social services, working alongside police and
probation. The truly multi-agency nature of MAPPA, and the collaboration which underpins it,
is to be strengthened further by the Criminal Justice Bill.

The Bill will place a 'duty to co-operate' on a wide range of organisations including local health
authorities and trusts; housing authorities and registered social landlords; social services
departments; Jobcentres; Youth Offending Teams; and local education authorities. In addition,
the Prison Service will join the police and probation services and become part of the MAPPA
‘responsible authority’.

Supporting and co-ordinating the development of the MAPPA throughout the 42 Areas of
England and Wales, is the National Probation Directorate's Public Protection Unit (PPU).

This unit acts as a central point for advice and, increasingly, involvement in the management of
difficult cases. These include, for example, UK citizens who have committed serious offences
abroad and return to this country without anywhere to live. The Unit is also able to provide
financial support when the risk management plans make exceptional demands upon local

Involving the Public

MAPPA developments in the next 18 months will also include the appointment by the Home
Secretary of two 'lay advisers' to each area. The eight areas of England and Wales which have
been piloting these arrangements since January (Cumbria, Greater Manchester, Durham, South
Wales, Dorset, Hampshire, Surrey and West Midlands) report that they add real value. Lay
advisers will contribute to the review and monitoring of the MAPPA which is undertaken by
each area's Strategic Management Board - the work of which you can read more about in this

Page 6 West Midlands MAPPA Annual Report 2002-03

The purpose of appointing 'lay advisers' is to ensure that communities understand more of
what is done to protect them and that those involved professionally with the MAPPA are
aware of the views of the community.

The lay advisers will not 'represent' the community in the way, for example, that local

councillors do, nor will they be involved in operational decision-making. And, given the
sensitivity of much of what the MAPPA does, especially with the few offenders who pose a
very high risk of serious harm to the public, it is not practicable for the general public to be

Lay advisers will, however, ensure an appropriate and practical level of community

MAPPA Offenders

This year the annual report provides a more detailed breakdown of the number of sexual and
violent offenders who are covered by the MAPPA in your area. As last year, the figures
include the number of registered sex offenders. Because sex offender registration is for a
minimum of five years (and generally for much longer) the figures are cumulative.

This is why they have increased - by 16 per cent in England and Wales. Only a very small
proportion (about six per cent throughout England and Wales) are considered to pose such a
high risk or management difficulty that they are referred to the highest level of the MAPPA -
the Multi-Agency Public Protection Panels (the MAPPP).

Figures alone do not, of course, tell the whole story. The anonymised case studies illustrate
the practical work of the MAPPA, and demonstrate the preventive action which can be taken.
Prior to the MAPPA, action of this kind was mainly taken by one agency alone, with the effect
that on occasion offenders' behaviour which might have triggered preventative action went

The multi-agency approach of the MAPPA helps ensure that if an offender does breach the
condition of the licence under which they were released from prison or a court order
prohibiting certain activities, then action to enforce the condition or order and protect the
public can be taken more swiftly.

If you are interested in reading the reports of other areas, they will be published on the
National Probation Service's web site ( during

West Midlands MAPPA Annual Report 2002-03 Page 7

Area Summary
Public Protection Panels (PPPs) were first established in the West Midlands in 1997 following the
introduction of the Sex Offenders Act. The purpose of the panels was to provide a forum for
agencies to share information and to work together in the assessment and management of the risks
posed by registered sex offenders and other offenders regarded as potentially dangerous. These new
public protection arrangements proved to be highly effective in the West Midlands and in other parts
of the country.

As a result, the Criminal Justice and Court Services Act 2000 was introduced, placing the
arrangements on a statutory footing. Under the Act, police and probation were jointly required to
establish what are now called Multi-Agency Public Protection Panels (MAPPPs). The Act also
required police and probation to:

z Establish strategic management arrangements for reviewing and monitoring the

effectiveness of MAPPA;
z Establish systems to ensure that only those ‘critical few’ offenders who pose the
greatest threat to the public are referred to MAPPPs;
z Establish systems for information sharing and inter-agency collaboration in
respect of all relevant offenders;
z Consider resource allocation and the need for multi-agency training;
z Develop strategies for community and media communications;
z Publish an Annual Report describing local MAPPA, including statistical

Within the West Midlands metropolitan area there are 21 MAPPPs, one in each of the Operational
Command Unit (OCU) areas of West Midlands Police. Each MAPPP meets on a monthly basis,
concentrating on offenders within the local community. The panel is chaired by the crime manager, a
detective chief inspector, with representatives from probation and other key agencies contributing
to the development of a risk management plan for each offender based on the risk they present.

An important development this year in the West Midlands MAPPA has been the introduction of a
three-tier system for dealing with offenders. The purpose of the three-tier system is to ensure that
the most dangerous offenders receive the greatest degree of scrutiny and oversight. The three tiers

z Single agency intervention - where low risk offenders who do not require multi-
agency management are dealt with by one agency (usually police or probation);
z Risk action planning - where medium risk offenders are jointly managed by police
and probation, supported by any relevant information provided by other
z MAPPP - where the highest risk offenders, often referred to as ‘the critical few’,
are assessed, managed and reviewed by all the agencies that play a part in

The three-tier system was introduced as recently as January 2003. It is still early days, therefore, but
initial feedback from practitioners is that the system is working well. The main benefit is that the
MAPPP is able to devote more time and resources to managing ‘the critical few’, thereby affording
the community the maximum protection from the most dangerous offenders.

Page 8 West Midlands MAPPA Annual Report 2002-03

Helping Victims of Crime
Probation West Midlands has worked
with victims of serious crime for many

years. In 1999 the service established a
specialist Area Victim Liaison Unit
(AVLU) to ensure a consistent, effective
service to victims.

AVLU officers have developed a high

degree of skill and sensitivity in working
with victims. This work has now been
placed on a statutory footing by the
provisions of the Criminal Justice and
Court Services Act 2000.
Victim Unit staff work with the victims of
The duties of the unit are to: serious sexual or violent offenders

z Make contact with victims of violent or sexual offences where the offender
was sentenced to 12 months or more in prison;

z Consult the victim about the release arrangements for the offender and
make the victim's views known to the supervising officer, the local MAPPP,
the prison authorities and, where relevant, the parole board;

z Make recommendations about licence conditions or other aspects of the

offender's resettlement;

z Advise probation colleagues and the MAPPP about any victim concerns
relevant to the management of individual offenders;

z Keep victims informed about any significant developments during the

sentence or after release, including notification of release dates and any
additional measures taken to increase their safety.

Naturally, it is up to victims to decide whether they wish to have contact with the Probation
Service and, if so, how much and at what stage. The duration of contact with individual victims
can last for years.

Other agencies involved in assisting victims include Victim Support, the police, social services
departments, the National Society for the Prevention of Cruelty to Children (NSPCC) and a
number of local organisations. A list of useful telephone numbers is included below:

National Victim Support line 0845 303 0900

Prison Service Victims' Helpline 0845 758 5112
Probation West Midlands AVLU 0121 248 6100
West Midlands Police Vulnerability Unit 0121 609 6909

West Midlands MAPPA Annual Report 2002-03 Page 9

How MAPPA Works
There are many facets to the daily work of the Multi-Agency Public Protection Arrangements
(MAPPA) partner agencies' work with dangerous, violent and sexual offenders.

In this section we look at how agencies co-operate on a daily basis, the circumstances in
which information is disclosed to communities, how offenders are assessed for risk, the work
of the Probation Service in preventing re-offending, and a day in the life of police and
probation officers who work in this field.

We also include case studies showing how MAPPA arrangements have helped manage
particular individuals in the last year.

Disclosure and
Information about individuals
shared within the MAPPP
meetings is confidential to the
agencies represented and is only
used as agreed for the
protection of the public. There
is a strong recognition of the
detrimental impact disclosure of
personal details may have on a
convicted person trying to lead
a normal life.

However, in certain
Public protection is of paramount importance
circumstances it may be
when considering issues of disclosure
necessary to disclose
information about individual
offenders in order to protect victims, families or other members of the public. Before a
decision to disclose is made, the circumstances of each case are carefully considered.

This assessment involves identifying the extent and nature of the risk posed by the individual,
the vulnerability of those who may be at risk and the impact of disclosure on the offender and
the victims.

The initial recommendation to disclose is normally made at a MAPPP meeting, with the
agreement of all the agencies represented. The recommendation goes to an assistant chief
constable in West Midlands Police, who will make the final decision about what information
can be disclosed and to whom. The power to disclose was used 12 times in 2002/03.

In cases involving children, social services departments may also need to disclose information
to certain parties in order to protect vulnerable children. Social services would normally seek
to consult their MAPPP partner agencies before disclosure, though if a child was thought to be
at immediate risk this may not be possible.

Page 10 West Midlands MAPPA Annual Report 2002-03

Risk Assessment
Accurate, reliable risk
assessment is critical
to the effective

management of sexual,
violent and other
dangerous offenders.

In the West Midlands,

all offenders under
probation supervision,
and all those sent to
prison, are subject to
an initial assessment of
risk using a
standardised national An extract from an OASys form - the new national risk
assessment tool assessment tool
(OASys). This gives a
first indication of which offenders are likely to pose the greatest danger to the community.

Certain groups of offenders are then subject to a more detailed assessment, using specialised
risk assessment methods. Sex offenders are assessed jointly by police and probation staff
working in the Joint Public Protection Unit (JPPU). This assessment enables offenders to be
categorised as very high, high, medium or low risk. In turn, this provides a basis on which
managers and practitioners can decide how best to manage the level and type of risk posed by
the offender.

It is important that risk assessment should be a continuous process rather than a one-off
event. All offenders managed under the MAPPA are subject to regular review. The review
process involves gathering, sharing and analysing information about the offender.

Changes in circumstances, new patterns of behaviour, response to treatment or the

uncovering of information not previously available can all affect the risk assessment and the
decisions made by the agencies about risk management.

Working With Sex Offenders

Sex offenders in the West Midlands who complete the Probation Service's Community Sex
Offender Groupwork Programme are half as likely to reoffend as untreated offenders.

A five-year evaluation of the programme by Dr Jayne Allam, a psychologist at the University of

Birmingham, has shown that the treatment is particularly effective for serious offenders such
as child sex abusers and rapists.

The West Midlands Sex Offender Unit works with offenders released on licence from prison,
or those who are serving community sentences. The sex offender programme was originally
developed and piloted in the West Midlands in 1993, and has been used nationally since April
2001. 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.

West Midlands MAPPA Annual Report 2002-03 Page 11

Sex offenders can be directed to attend the programme as part of a community sentence, or
as a condition or their release from prison. The programme can last for up to 200 hours with
individuals being required to attend weekly, on a compulsory basis, for between 18 months
and two years.
The programme imposes internal controls or 'inhibitors', i.e. mechanisms that the offender can
develop themselves to help control their own behaviour and reduce the likelihood of further
offending. The aim is to alter the way offenders think about their crimes, and particularly their
victims, and to change their future behaviour.

The Probation Service also uses external inhibitors in work with offenders i.e. controls that
serve to monitor and constrain their behaviour and opportunities to offend. A number of
measures can be used depending on the risk the offender presents:

z Regular meetings with a probation officer who will focus on looking for
factors associated with the likelihood of reoffending;

z Action to enforce orders and licences rigorously and swiftly if the offender
does not comply or if there are concerns about his or her behaviour;

z Multi-agency interventions agreed by a MAPPP;

z More intensive techniques for the highest risk offenders such as surveillance
and observation by the police.

Evaluating the Sex Offender Programme

z Only 8.2 per cent of child sex abusers have been reconvicted of a sexual
offence after five years, compared to 18.4 per cent of untreated offenders;

z Only 15.4 per cent of rapists have been reconvicted of a sexual offence
after five years, compared to 34.6 per cent of untreated offenders;

z Only 2.5 per cent of child sex abusers have committed new violent
offences after five years, compared to 10.4 per cent of untreated

z Only 8.3 per cent of rapists have committed new violent offences after
five years, compared to 29.2 per cent of untreated offenders;

z Only 13.1 per cent of child sex abusers have committed new non-sex/non-
violent offences after five years, compared to 27.3 per cent of untreated

z Only 25 per cent of rapists have committed new non-sex/non-violent

offences after five years, compared to 45.8 per cent of untreated

A sample of 150 offenders was used in the research, including 122 child sex abusers, 13
rapists and 15 exhibitionists (people who have committed non-contact offences). Their
behaviour and criminal activity has been measured at regular intervals throughout the
programme against that of a similar group of 107 offenders, who were originally
recommended for the programme but given alternative sentences by the court.

Page 12 West Midlands MAPPA Annual Report 2002-03

A Day In The Life…
The work of those professionals involved in managing sex offenders is often complex, usually
extremely varied and equally rewarding. To show the extent of that work we asked two
members of the Joint Public Protection Unit (JPPU) to tell us about a typical day.

The Police Sex Offender Management Officer
This is a challenging and demanding role
and my day starts by contacting the JPPU
to see if there are any new prison releases
or convictions to be registered or if there
are any address changes to follow up.

I then liaise with the other agencies

involved in MAPPA such as probation,
social services, housing and education to
see if they have any information on these
individuals. Where offenders are from
outside the West Midlands, I will liaise
with other relevant police forces.

Offenders are required within three days

of conviction or release from prison to
visit a designated police station to notify
Offenders of concern to local MAPPPs are
their name and address.
visited and monitored regularly by police
offender managers and micro-beat officers
At this time, I also take their fingerprints
and photograph in order to verify their
identity and complete a full profile of them.

I then start my routine visits, checking to see that they are still at their registered address and
who they are living with, whether they have a job and what they do, what sort of hobbies they
have and how they spend most of their time.

I visit my very high and high-risk offenders at least once a month. The medium or lower-risk
offenders are seen between twice to six times a year by myself, or by police beat managers or
micro beat officers. It is best if one officer sees them on a regular basis in order to identify any
changes in appearance or behaviour, particularly in drug or alcohol use.

Other issues I deal with, albeit not on a daily basis, are the preparation for MAPPP meetings
and risk action plans for lower-risk offenders, as well as evidence gathering for Sex Offender
Orders and third party disclosure.

West Midlands MAPPA Annual Report 2002-03 Page 13

The JPPU Probation Officer
I usually arrive at the office at 8am and the first half hour or so will be spent dealing with e-
mails and letters. By 8.30am today, I am liaising with the unit's police inspector regarding a
high-risk sex offender who is about to be released from prison.
We have only received very short notice of this prisoner's release due to him having served
part of his sentence in Spain while awaiting extradition. Concerns are raised about whether he
will attempt to abscond again.

I telephone the prison to check time of release and ask for a copy of the offender's licence
conditions to be faxed over. I then confirm his reporting instructions to Probation West
Midlands' Homeless Offenders Resettlement Unit (HORU) who will be supervising this case.

I then contact the probation hostel where he will live initially, seeking further information
from their records and confirming his likely arrival time. I complete a Risk Matrix 2000
assessment for this offender as his risk now becomes 'live' with his release into the
community. This indicates that he presents a very high risk of reconviction.

The inspector and I discuss the case

with the West Midlands Police Press
Office as there has been previous
media interest in this offender. I then
attend a meeting to discuss
procedures for sharing relevant
information with other agencies on
high-risk offenders living in the

During the rest of the morning, I

speak to my manager at the West
Staff at probation hostels liaise with the JPPU Midlands Sex Offender Unit regarding
when high risk offenders are released from new referrals for a treatment group I
prison and placed under their supervision work with, take a couple of calls
regarding sex offender registration
details from probation and police officers, and telephone HORU to verify that an offender on
licence has been recalled to prison so the Police National Computer (PNC) can be updated.

After lunch, I phone a probation officer about an offender who has lost his accommodation. I
suggest referral to a local supported housing project and am pleased to hear that the
probation officer has organised an emergency MAPPP.

HORU then phone to inform us that the high-risk, high-profile sex offender has reported as
required following release from prison. I telephone the hostel and relevant police Operational
Command Unit (OCU) to advise them that the offender has now arrived before taking a
further telephone call about a new registration.

I then finalise a PowerPoint presentation on working with sex offenders for use on the Level
Two police detectives' course. Finally, I check the probation computer system on behalf of a
police detective who wishes to speak to a report author about the inclusion of a request for a
restraining order and update the Risk Matrix 2000 database on offenders recently discussed at

Page 14 West Midlands MAPPA Annual Report 2002-03

Case Studies
MAPPA partner agencies work together closely on a daily basis to manage the risk of offending
and harm to the public. Here we include three examples of how this co-operation was used to
reach the best solution in individual cases during 2002-03.

Case Study One
A sex offender who targets female single parents with children under 16, offences for which
he had previously served a prison sentence. Through robust monitoring by police and
probation, it became known that he had formed another relationship with a single parent
with two children.

The police immediately visited the address and took the children into protective custody.
Social services were able, under child protection measures, to disclose to the mother details
of the offender's convictions. The relationship ended at that point and the offender
continued to live in his own flat. Through continuing monitoring, the police became aware
that he had started to form another relationship with a mother with young children. An
emergency MAPPP meeting was called which recommended disclosure of his previous
convictions to the woman. An Assistant Chief Constable of West Midlands Police agreed to
this course of action and the relationship was again ended.

Because of his persistent behaviour, a Sex Offender Order was obtained from the Court
preventing him having any contact with under 16s. Any breach of this order and he will be
liable to imprisonment for up to five years.

Case Study Two

A man convicted of a number of rapes on women was due to be released at the very end of
his prison sentence. He was visited in prison by the local police offender manager, and his
probation officer, in order to assess his risk prior to release and to agree a risk management

This included placing him in the most appropriate accommodation where he could best be
supervised, monitored and helped to find his own suitable accommodation in the community
- in this case a probation hostel. At the hostel he is continuously monitored and is on a
curfew which only allows him outside the hostel for specific short periods of time. The local
police are aware of these times and are able to monitor him during these periods.

Case Study Three

An offender was released on licence following a prison sentence for harassment and
violence offences. He had licence conditions to live where directed by his probation officer,
not to approach or communicate directly or indirectly with his victims, not to enter named
areas and certain hospitals, and to co-operate with mental health practitioners for the
purpose of assessment.

Information was received that he had gone to a seaside resort to ‘end it all’. The police
were alerted and he was arrested on the beach walking into the sea. Due to the
deterioration in his condition, the possible risk to himself and the public, and the need for
him to be reassessed, he was recalled to prison.

West Midlands MAPPA Annual Report 2002-03 Page 15

Managing MAPPA
Within the West Midlands, responsibility for the operation of MAPPA lies with a Strategic
Management Board (SMB). The SMB is chaired by a chief superintendent from West Midlands
Police, with an assistant chief officer from Probation West Midlands as vice chair.

Membership of the SMB includes two Lay Members

appointed this year, other police and probation
representatives, along with senior managers from:

z Three social services

z Two local authority housing
departments; Bob Baxter (left) and Mike
Tennant (right) are the chair and
z The Regional Mental Health
vice-chair of the Strategic
Development Centre; Management Board
z The Youth Offending Service;
z The education service;
z HM Prison Birmingham;
z A local voluntary sector housing association;
z The NSPCC.

The SMB meets every two months. Its role is to monitor and review the effectiveness of the
local MAPPPs, to ensure consistency of practice and procedure, to promote communication
and information sharing between the agencies involved in MAPPA, and to act as a focal point
for consultation and communication with the wider community.

To help achieve its goals the SMB has set up three sub-committees, each with a specific brief.
They are:

z Quality Assurance, Audit and Serious Case Review Committee - which

undertakes formal reviews of cases where there are lessons to be learned
that will improve practice in multi-agency risk management;

z Policy, Procedure and Marketing Committee - which reviews policies and

procedures to ensure compliance with new legislation and national
guidance, and is developing a marketing strategy to keep the public better
informed about how the MAPPA operate;

z Training and Development Committee - which plans and organises multi-

agency training events for managers and practitioners involved in the
assessment, treatment, management and accommodation of sexual and
violent offenders.

Page 16 West Midlands MAPPA Annual Report 2002-03

In the autumn of 2002, following a very rigorous recruitment and selection process, two Lay
Members joined the SMB. The West Midlands is one of eight pilot areas chosen by the Home
Office to recruit Lay Members and to test out the contribution they can make to the work of
the MAPPA system.

The Lay Members have participated in a national training event, and are currently undertaking

a wide-ranging induction programme to familiarise them with MAPPA in the West Midlands.

The purpose of involving Lay Members in the SMB is to:

z Create greater openness and transparency in the work of the MAPPA;

z Make professional decision-makers more publicly accountable;
z Enable community representatives to scrutinise the processes, priorities
and working methods of MAPPPs;
z Bring community opinions to bear on the future development of the
MAPPA system.

The Lay Member scheme is being evaluated by a Home Office research team. The results of
the pilot will be used to inform the nationwide rollout of Lay Member involvement in strategic

What do the Lay Members think ?

A contribution from the West Midlands representatives, describing their early impressions of
the role, appears below:

"We are pleased to have the opportunity of playing a part in the pilot programme
introducing the role of Lay Members to the MAPPA and SMB.

The acknowledgement of the contribution that can be made by Lay Members to the
protection of the community from violent and sexual offenders is a welcome one.

Although it is a developing role, we feel our responsibility is to ask the difficult questions.
Why are we doing this ? How will this make the communities of the West Midlands feel
safer ? And to question the established views of the organisations represented on the

The challenge is to remain independent. It is important to be a member of the SMB

contributing ideas and challenging views.

But, at the same time it is important to maintain the unique perspective that being a Lay
Member offers. And, in the end, not being afraid to voice a different point of view."

J Francis & M Burnett

West Midlands MAPPA Annual Report 2002-03 Page 17

Who’s Who in MAPPA
Protecting the public from violent, sexual and other dangerous offenders is best achieved by
effective joint working between all of the relevant statutory and voluntary bodies. The MAPPA
now in place in the West Midlands involve contributions from a wide range of relevant
agencies at both the operational and strategic levels.

In this section of the report the roles and responsibilities of the two lead agencies - police and
probation - are described, as well as the contributions made by a number of other key

West Midlands Police

As a lead agency in the delivery of MAPPA, West Midlands Police contribute through:

z Dedicated sex offender management officers in 21 community safety


z Community-based policing using 'micro-beat' officers;

z The chairing of MAPPPs by local crime managers;

z The Joint Public Protection Unit (JPPU);

z Covert operations by the Crime Support Department.

Community-based policing is delivered

through a sector model comprising teams of
uniform police constables who take personal
responsibility for local areas called 'micro-
beats'. This enables officers to become
custodians of the community, devoting time to
tackle issues of local concern.

Micro-beat officers are able to gather evidence

and intelligence on the activities of sexual,
violent and dangerous offenders living within
the community.

These officers play a crucial role in the

monitoring process, ensuring those convicted
of sex crimes comply with the sex offender
Information about offenders covered
registration requirements in notifying the
by MAPPA is stored on FLINTS - the
police of any change in their personal details,
West Midlands Police computer
place of residence or travel arrangements
intelligence database

Page 18 West Midlands MAPPA Annual Report 2002-03

outside the United Kingdom.

At a local level the management of sexual and violent offenders is co-ordinated via the 21
Community Safety Bureaux. These are teams of officers based in local centres of excellence
with a wide range of specialist policing skills.

A significant proportion of their activity is focused on public protection and the management
of high-risk offenders. Dedicated offender management officers have a specific responsibility
for targeting specialist resources and activity aimed at reducing the risk posed by sexual and
other high-risk offenders. They monitor behaviour, enforce the law and provide support to
enable offenders to reintegrate back into society.

Each police area has a dedicated monthly

MAPPP meeting, concentrating on local
offenders within that community. The crime
manager, an officer of the rank of detective
chief inspector, chairs the local panel, with
representatives from probation and other key
agencies contributing to the development of a
risk management plan for each offender based
on the risk they present.

The crime manager is able to commit

specialist resources either overtly in a
monitoring role, or, in high-risk cases when it
is necessary and proportionate, to conduct
covert operations and surveillance. In cases
where there is a serious risk of harm to the
public, the police actively seek to utilise Sex West Midlands Police’s Crime Support
Offender Orders and third party disclosure to Department conduct joint operations
protect the public. with other agencies against individuals
of concern to local MAPPPs
West Midlands Police and Probation West
Midlands have established a Joint Public Protection Unit (JPPU), staffed by a team of police and
probation personnel to undertake initial risk assessments and to act as custodians of the
register of sex offenders and potentially dangerous offenders. The joint team provides expert
support and guidance to all agencies.

The JPPU has facilitated multi-agency training seminars throughout the year and provides a link
to the Home Office Public Protection Unit. The JPPU was one of the first of its kind in the
country and is recognised nationally as best practice.

West Midlands Police has a dedicated team of detectives from the Crime Support Department
who target covert operations on the minority of very high-risk offenders present in the West
Midlands, often described as the 'critical few'.

The detectives regularly conduct joint operations with other law enforcement agencies
throughout the country.

They are supported by the force's Hi-Tech Crime Unit which is able to undertake covert
investigations into child abuse and paedophile activity on the Internet. The police also provide
crime prevention advice for Internet users, particularly parents and young children, on the
West Midlands Police web site (

West Midlands MAPPA Annual Report 2002-03 Page 19

Probation West Midlands
As one of the two lead agencies, Probation West Midlands makes a wide-ranging contribution
to the work of the MAPPA including:
z Initial assessment of all offenders who come before the courts for violent or
sexual offences, using a standard assessment tool;

z Further, more specialised assessment of sex offenders, carried out in

conjunction with the police in the Joint Public Protection Unit, using the
nationally approved risk assessment tool;

z Supervision and management of offenders placed on community orders,

including action to breach offenders who fail to comply;

z Delivery of specialist
programmes designed to
reduce the risk of future
offending, including the
nationally recognised West
Midlands Community
Sex Offender Groupwork

z Planning and preparatory

work with offenders in prison,
including the provision of
advice on suitability for
Groupwork programmes, where offenders
release, accommodation work with trained Probation Service tutors
plans, victim concerns and are an integral part of many community
sentences and licence conditions for sexual,
licence conditions;
dangerous and violent offenders.

z 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;

z The provision of accommodation in Approved Premises (formerly known as

probation and bail hostels) for offenders who need enhanced levels of
supervision and oversight.

Page 20 West Midlands MAPPA Annual Report 2002-03

During the last two
years Probation West
Midlands has undergone
reorganisation in order
to ensure that the
greatest attention is

given to those offenders
who pose the most risk
to the community.

The most serious

offenders are supervised
by officers in specialist
Public Protection Teams

Each PPT is managed by The Probation Service’s network of Approved Premises

a senior probation provide closely supervised residential accommodation and
officer (SPO) and staffed skills training for offenders on bail, licence following
by officers possessing release from prison or serving community sentences.
particular skills in the
assessment and management of violent, sexual and other dangerous offenders.

Caseloads in PPTs are lower than in other teams to ensure that officers have the necessary
time to devote to the management of high-risk offenders.

The assessment and management of violent and sexual offenders is conducted on a multi-
agency basis. PPT senior officers attend local MAPPPs, exchanging information with colleagues
from other agencies and contributing to decision-making about individual offenders regarded
as particularly risky.

For offenders assessed as medium or low-risk, the SPOs meet regularly with their police
counterparts in order to share knowledge and agree on actions to manage each offender

At senior management level, the assistant chief officer with lead responsibility for public
protection is a member of the MAPPA Strategic Management Board.

West Midlands MAPPA Annual Report 2002-03 Page 21

Education staff make a number of contributions to the work of the MAPPA, including:

z Identifying signs that children are at risk of abuse or neglect and taking the
necessary action;

z Providing information to other agencies about known or potential child


z Working with children and parents to develop their awareness of risk


z Providing information to other agencies about the behaviour and progress

of juvenile offenders.

Each Local Education Authority (LEA) has designated child protection officers who contribute
to the work of both MAPPPs and Area Child Protection Committees (ACPCs). A regional
education manager sits on the MAPPA Strategic Management Board, advising on questions of
policy and practice from an education service perspective.

A very wide range of health professionals - family doctors, hospital staff, community
psychiatric nurses, consultants - are in a position to contribute to the MAPPA. These
contributions include:

z Recognising the signs and symptoms of abuse and neglect;

z Sharing information with other agencies about offenders and victims of


z Providing care and support for known victims and others thought to be at
risk of harm or self-harm;

z Contributing to the care and treatment of abusers in the community,

secure hospitals and prisons.

Health services participate in local MAPPP processes, often by attending on a case-by-case


A manager from the Regional Mental Health Development Centre is a member of the MAPPA
Strategic Management Board, offering advice on national and local developments in the field of
psychiatric care and the treatment of mentally and personality disordered offenders.
The contribution of local authority housing departments to the work of MAPPA includes:

z Advising on safe, suitable accommodation options for sexual and violent

offenders, taking into account victim concerns;

z Making appropriate tenancies available, often on warden-controlled sites or

where other forms of oversight are available;

z Sharing information with other agencies about the lifestyle and behaviour of
offenders living in local authority accommodation.

Along with police and probation, the seven housing departments in the West Midlands area
are signatories to a protocol that provides for a safe, consistent approach to re-housing sex

Local authority housing representatives regularly attend MAPPP meetings. Some authorities
have appointed dedicated housing officers to work with the MAPPA, one of whom sits on the
Strategic Management Board (SMB).

Voluntary sector accommodation providers also play an important role within the MAPPA, in
much the same ways as described above. Four local housing associations have used probation
grants to establish floating support schemes for high-risk sex offenders.

These schemes involve specially appointed public protection officers who keep in regular
contact with sex offenders, assist with their resettlement and report on any issues of concern
to the local MAPPP. As of April 2003 there are floating support schemes in each of the seven
districts in the West Midlands. A voluntary sector project manager has this year joined the

Prison Service
The Prison Service contributes to MAPPA in the West Midlands by:

z Joint working where prisoners may pose a risk to the public on release;

z Provision of a sex offender treatment programme in prisons;

z Regular risk assessment of prisoners through their sentence.

The Prison Service works closely with other agencies to identify any prisoner who may
represent a risk to the public on release.

Regular risk assessments take account of progress made during the sentence, and inform
decisions on sentence planning for individual prisoners, including sex offender treatment
The Prison Service is required to notify social services departments and the Probation Service
of plans to release prisoners convicted of sexual and violent offences, and offences against
children and young people, so that appropriate action can be taken by agencies in the
community to minimise any risk.

At Her Majesty's Prison Birmingham there is a close working relationship between the police,
probation and social services in the planning, risk assessment and preparation for the release
of offenders into the community.

The Prison Service is engaged in the MAPPP process, through its close liaison with the Joint
Public Protection Unit, and has recently become a member of the Strategic Management
Board - represented by a governor from HMP Birmingham.

Social Services
A key objective for social services departments is to ensure that children and vulnerable adults
are protected from significant harm. Social services are the lead agency and have a legal
responsibility under the Children's Act 1989 for the protection of children.

The purpose of local MAPPPs are to effectively manage and monitor the risk posed by
dangerous offenders and as such are inextricably linked to the work of Area Child Protection
Committees (ACPCs).

To reinforce the strategic link between the MAPPP and ACPC structures, a number of senior
managers from social services and other agencies are key members of both ACPC and the

At a local level each of the 21 MAPPPs has a designated representative from social services as
a core member. Social services contribute to the effective monitoring and risk assessment
process by:

z Undertaking child protection investigations;

z Sharing vital information about offenders' behaviour;

z Managing the child protection register and conferences;

z Providing assessment, treatment and therapeutic help to children displaying

inappropriate sexual behaviour;

z Undertaking an assessment of need and formulating a development plan for

juvenile sex offenders.
Youth Offending Service
The Youth Offending Service is responsible for the direct delivery of services to young
offenders, their families and victims. This includes undertaking risk assessments of all young
people who offend. The youth offending workers' assessment identifies:

z The general risk to the public;

z What further work is required to prevent further offending;

z The impact of interventions on re-offending.

The Youth Offending Service prepares all Pre-Sentence Reports (PSRs) on young people
appearing before the courts. The PSR has an important role in providing courts with
information and advice on the risk to the public and on possible sentencing options to reduce
that risk.

The service also supervises all community sentences and post-custodial licences. The intensive
supervision and surveillance programmes for persistent young offenders enable young people
to be targeted more effectively and information to be shared locally between the Youth
Offending Service and the police.

Some areas of the West Midlands have a dedicated specialist service for young people who
sexually abuse others. In these areas the young person receives an input from this service and
the youth offending team. In areas where there is not a specialist service, the youth offending
team has a contract with a specialist consultant to oversee any offending behaviour work.

Where a young person has been charged with, or warned for, any offence of a sexual or
violent nature against a child, young person or vulnerable adult and there are ongoing serious
concerns about the safety of others, a referral is made to the local social services’ children and
families team.

The Youth Offending Service is represented at the SMB and local MAPPPs sharing information
on those young people who are registered as Schedule 1 Offenders (persons convicted of
offences against children or young people) and helping the development of policy aimed at
preventing violent and sexual crime occurring in the first instance.
Facts and Figures
Number of Offenders
i) The number of registered sex offenders on 31 March 2003 1,312

ii) The number of sex offenders having a registration requirement who

were either cautioned or convicted for breaches of the requirement,
between 1 April 2002 and 31 March 2003 80

iii) The number of Sex Offender Orders applied for and gained between
1 April 2002 and 31 March 2003

a) The total number of Sex Offender Orders applied for 2

b) The total number granted 2

c) The total number not granted 0

iv) The number of Restraining Orders issued by the courts between 1 April
2002 and 31 March 2003 for offenders currently managed within MAPPA 7

v) The number of violent and other sexual offenders considered under

MAPPA during the year 1 April 2002 and 31 March 2003 (as defined by
section 68 [3], [4] and [5]) 3,560

vi) The number of 'other offenders' dealt with under MAPPA during the
year 1 April 2002 and 31 March 2003 as being assessed by the Responsible
authority as posing a risk of serious harm to the public (but who did not
fall within either of the other two categories, as defined by section 67 [2b]) 8

vii) For each of the three categories of offenders covered by the MAPPA
('registered sex offenders', 'violent and other sex offenders' and 'other
offenders'), identify the number of offenders that are or have been dealt
with by:

a) MAPPP - registered sex offenders 330

b) MAPPP - violent and other sex offenders 72

c) MAPPP - other offenders 8

viii) Of the cases managed by the MAPPP during the reporting year what was
the number of offenders:

a) who were returned to custody for breach of licence 96

b) who were returned to custody for breach of a Restraining Order or Sex

Offender Order 2

c) charged with a serious sexual or violent offence 2

Keeping Communities Safe
Further Information
This report has been produced by Probation West Midlands and West Midlands Police in conjunction
with members of the West Midlands Multi-Agency Public Protection Panel.

West Midlands Police

Chief Constable
PO Box 52
Lloyd House
Colmore Circus Queensway
B4 6NQ
Tel: 0845 113 5000

Joint Public Protection Unit

West Midlands Police

Community Safety Bureau
3rd Floor Lloyd House
Colmore Circus Queensway
B4 6NQ
Tel: 0121 609 6954

Probation West Midlands

Chief Officer
Probation West Midlands
1 Victoria Square
B1 1BD
Tel: 0121 248 6650

Victim Support Help Line

Tel: 0845 303 0900

Managing Risk
through MAPPA