Although we have made significant progress in the last five years with the development of MAPPA across England

and Wales, the review this year of a number of tragic incidents where people have been murdered or seriously injured reminded us of the importance of reviewing performance, improving practice and learning lessons. It is vital that these tasks are

Making our communities safer and reducing re-offending is our highest priority and one of our biggest challenges.That is why the work undertaken through these multi-agency public protection arrangements (MAPPA) is so important.The supervision and management of sexual and violent offenders who pose the highest risk of serious harm, whether in the community or in custody, is complex and challenging; and is an aspect of public service where the public rightly expects all reasonable action to be taken.

MINISTERIAL FOREWORD
undertaken by the probation, police and prison services, as well as by those other agencies that contribute to the assessment and management of offenders. The publication of MAPPA Business Plans by each Area in this year’s annual reports offers a helpful and necessary programme of local development and review and must lead to enhanced practice. It will be essential that this progress is transparent and shared with local communities.

In addition to this, however, it is important that no opportunity is missed to consider other measures that will further enhance public safety.That is why we are undertaking the Child Sex Offender Review, to look at how a particular group of offenders, who provoke anxiety for many, are best managed in the community.The review is consulting a wide range of practitioners and key stakeholders including the MAPPA lay advisers, and will report around the end of the year.

Finally, in commending this report to you, I want to take the opportunity to thank all those involved locally in working with sexual and violent offenders, or in ensuring that these arrangements are fit for purpose. Where MAPPA is working well it is based on maintaining high professional standards and effective multi-agency collaboration in the delivery of robust risk management plans.While it is not possible to eliminate risk entirely, where all reasonable action is taken the risk of further serious harm can be reduced to a minimum and fewer victims will be exposed to repeat offending.

Gerry Sutcliffe MP Parliamentary Under Secretary of State for Criminal Justice and Offender Management

This report provides an opportunity to inform you of the work undertaken by a wide range of statutory and voluntary organisations in West Yorkshire to keep our communities safe.

We are delighted to introduce the fifth Annual Report of the West Yorkshire Strategic Management Board for MultiAgency Public Protection Arrangements (MAPPA).

INTRODUCTION

The aim of the MAPPA system is to minimise the likelihood of reoffending for an individual offender by managing the various risk factors which impact on their behaviour. The agencies involved in MAPPA work in close partnership and share information on individual offenders, so risk factors can be more easily identified. This is achieved by applying a structured approach, from prison release through treatment programmes to supervision and monitoring.

The aim of everyone involved in MAPPA is to protect the public - so meeting the needs of victims of crime is central to our approach.

Public Protection remains an immensely challenging area of work and we acknowledge the enthusiasm and commitment of professionals and volunteers across a wide range of disciplines who work together in ensuring public safety.

For more information on the work of MAPPA nationally, and for a review of the first five years of MAPPA, see ANNEX A, the Responsible Authorities National Steering Group overview.

The process of risk assessment, and the subsequent development of effective action plans to prevent offending is carried out by a range of agencies. These include the three “responsible authorities”: police, probation and the prison service; as well as other agencies like social services, health, housing, education, and the youth offending teams.

Victim support services and victim liaison personnel ensure that those who have been personally affected by the criminal actions of an offender subject to MAPPA are listened to. Their views and opinions can and do influence, wherever possible, our approach to managing the offender.

We welcome the creation of the new Indeterminate Public Protection sentence of the court , which means that the most dangerous offenders will remain in prison until their level of risk reduces. No longer will such an offender be released from prison just because they have served a certain number of years. We also look forward to Probation and Prisons joining the Police in their use of VISOR - a new joint database to assist the agencies in monitoring violent and sexual offenders. We commend this report to you with our continued commitment to further strengthening the public protection arrangements that safeguard the public of West Yorkshire.

Regrettably, it is impossible to provide a 100% guarantee that no offender will commit another crime, in the same way that health professionals cannot guarantee that they will cure every patient. Tragedies can and will occur despite the best efforts of skilled staff. Last year, though, not one of the offenders assessed as posing the highest level of risk reoffended.

Colin Cramphorn Chief Constable West Yorkshire Police

Steve Wagstaffe Area Manager (Yorkshire and Humberside) HM Prison Service

Sue Hall Chief Officer West Yorkshire Probation Service

MAPPA - the First Five Years: A National Overview of the Multi Agency Public Protection Arrangements 2001-2006 is available on line at http://www.probation.homeoffice.gov.uk/output/page30.asp

CONTENTS
1. The Strategic Management Board 2. Key Achievements 3. Operation of MAPPA 4. Statistical Information 5. West Yorkshire MAPPA SMB Business Plan 2006-9 6. Contacts 5 6 7 9 10 11

The Board has a representative on all of the Local Safeguarding Children Boards. All multi-agency work is overseen by the West Yorkshire Criminal Justice Board, which contains high level representation from all relevant agencies.

The Board's priority for 2006/7 is to ensure that Multi Agency Public Protection Arrangements in West Yorkshire are robust and deliver a constant and effective service.

The Strategic Management Board (SMB) in West Yorkshire is currently chaired by a Director from Probation. Membership includes senior representation from Police, Probation, Prisons, health providers, housing agencies, Victim Support, Social Services, representation of voluntary agencies, and two lay advisers. The Board receives reports on the operation of MAPPA, on public disclosure issues, on domestic violence and public protection issues.

1. THE STRATEGIC MANAGEMENT BOARD

Police Service Probation Service Prison Service Youth Offending Teams Agencies concerned with social security, child support, pensions, employment and training Local Education Authorities Local Housing and Social Services Authorities

The following organisations are among those with a statutory duty to cooperate in the working of MAPPA in West Yorkshire:

Who takes part in MAPPA?

Registered Social Landlords Health Authorities, Strategic Health Authorities, NHS Hospital Trust and Primary Care Trusts In addition MAPPA include:

Housing support providers Victim Support Services Organisations providing support for women, particularly those concerned with domestic violence and many other locally based voluntary organisations.

The Strategic Management Board acknowledges the commitment and dedication of hundreds of individuals working through MAPPA to promote the protection of the people of West Yorkshire. The SMB uses a range of statistical data to help it to monitor the effectiveness of MAPPA. The data includes information relating to I caseload I meeting type I gender I attendance levels I ethnicity I MAPPA categories

This is in addition to the data that is forwarded to the Home Office. The SMB has also sampled a small number of individual cases in order to assess the quality of assessments and risk management. The SMB was satisfied with the quality of the cases sampled, and intends to review the quality of a much larger sample in October 2006.

I recalls to prison

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The MAPPA workload increased during 2005/6. During the previous year, some 500 high risk offenders were actively managed, through 1800 interagency meetings. In the current year, the figure has risen to 833 offenders, managed through 2278 meetings.

2. KEY ACHIEVEMENTS
Despite the increase in workload, not one of the level 3 (highest risk) offenders committed a violent or sexual offence. Of the level 2 offenders (756) only 5 were charged with such an offence. Although each instance of further offending is to be regretted, these are impressive figures, given the number of offenders involved and the nature of the risks they pose. The attention given to domestic abuse continued. New arrangements were introduced for cases where the perpetrator has been sentenced to an intensive treatment programme by the courts. All of these cases have now been brought into the MAPPA system at the initial stage.

An offender reporting to his Probation Officer.
Act will allow for sentencers to comment on the control of the most serious offenders, following their release from prison. Case Study 1

The Board had to manage the implications of media scare stories about the role of Approved Premises. These premises are an integral part of public protection arrangements on behalf of communities as they provide an opportunity to assess and monitor an offender's behaviour on release from prison, instead of a direct release into independent accommodation. The majority of such premises have been operating successfully in West Yorkshire for some decades. The Board improved the quality of data it receives in relation to the operation of local MAPPA panels, which means that performance can be more tightly monitored. The Board will also routinely receive investigator reports in relation to those few cases where a MAPPA offender has been charged with a serious violent or sexual offence.The introduction of the 2003 Criminal Justice Act on 1 April 2005 provided Courts with a greater range of conditions and required behaviour for those supervised by Probation staff under community orders. The same

Closer liaison has been encouraged between all agencies in dealing with domestic violence cases. The Board has made a commitment to take on the review of such cases when a death has taken place. The aim is for agencies to learn from such tragedies and promote best practice. Members of the Board have supplemented their own knowledge by observing MAPPA throughout West Yorkshire. Without becoming involved in particular cases, this has increased their understanding of the processes involved and the areas for further work. More recently the work of MAPPA has been enhanced by the new role of the Prison Service.

Early in 2006 this again gave rise to concerns and action taken through MAPPA resulted in RD being admitted to a secure mental health unit in West Yorkshire, where he remains.

RD has criminal convictions for a variety of offences, dating back over 20 years. In 1995, a four-year prison sentence for the rape of his expartner brought him to the attention of the public protection panel. In 2000 he was imprisoned for 5 years for serious sexual offences against a 10-year-old girl. He remained subject to MAPPA throughout his imprisonment and there was extensive liaison between Probation, housing authorities, mental health services, Victim Service Unit, Social Services and Police in preparation for his release in March 2004. Four months later, RD's behaviour led Probation and Police to have him arrested and recalled to prison. He was eventually released in 2005 and again the agencies worked closely together to monitor his behaviour.

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3. OPERATION OF MAPPA

Typically risk management plans are very specific. For example they may include the following considerations or restrictions.

Where the circumstances of a case indicate a public protection need which requires exceptional resourcing, perhaps with actions from a number of agencies, it will be referred to a Multi Agency Public Protection Panel (MAPPP) to ensure that every possible action is taken to minimise risk and that all the agencies participating in the risk management activities understand what is required of them.

be effectively managed through normal agency management which includes documented reviews.

Programme session.
Each of the 5 Local Authority areas of West Yorkshire conducts MAPPA meetings on a regular basis. These are currently administered by the responsible authority and attended by the constituent agencies to MAPPA. of the most important of these is the Offender Assessment System (OASys).

I Prohibition on making contact with certain individuals or groups of people - and particularly victims; I Restrictions on the type of employment they may pursue.

I A requirement to take part in a programme of work specifically designed to prevent further offending;

I A requirement to live at a particular address and observe a curfew enforced with an electronic tag;

Although any member agency of the strategic management board can refer to MAPPA, in practice the majority of offenders are referred by the Probation Service, which supervises prisoners released from prison on licence. The MAPPA provides a system for ensuring that all the available information is gathered and shared with all the agencies which deliver services that contribute to public protection. Effective risk assessment and management requires the exercise of professional judgement. A variety of validated assessment tools are applied in order systematically to assess all offenders subject to supervision. One

OASys complements the assessment mechanisms now used by the Police to identify serious sexual and violent offenders. The use of assessment tools ensures that all offenders are subject to appropriate supervision plans based upon risk, but that in addition, those offenders identified as having the potential to cause harm are subject to a risk management action plan and must be referred to MAPPA. In these cases a risk management plan is reviewed at a meeting of specialist Police, Probation and Victim Unit staff together with representatives of partner agencies. Before the meeting takes place, information from a variety of sources will have been sought, which is then shared at the meeting in order to inform the risk management plan. In most cases the potential risk can then

When a risk is identified, or the behaviour of an offender gives rise to concerns, the Officers of the CPPU will act to prevent or stop the activity. The range of options open to them to

Failure to keep to any of these conditions will lead to enforcement action which can result in a return to prison. Standards are imposed rigorously and action is taken as soon as an appointment is missed or a condition breached. The Police also employ a range of measures to monitor the activity and risk that registered sex offenders and others present. Within the Child and Public Protection Unit (CPPU) of West Yorkshire Police, a number of officers and support staff are employed to do this work.

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MAPPA meeting.
achieve this are many but may include: I Arrest and Prosecution; I Surveillance and intelligence; Case Study 2

In some cases the MAPPP will consider releasing information about an offender to individuals or groups in order to protect their safety. This step is not taken lightly, but sometimes it represents the most effective means of achieving individual and community safety. The safety of victims and the wider community is the fundamental consideration of the MAPPP.

The Prison Service, which is the third member of the Responsible Authority, brings invaluable knowledge about prisoners prior to their release. The level of contact with such prisoners during their sentence means that the Prison Service can build up a picture of attitudes and behaviours, and alert Probation and Police to factors that may require particular attention when the prisoner is released.

I Obtaining orders such as Sex Offender Orders which place restrictions on individual offenders within the community.

He was subject to MAPPA procedures resulting in co-operation between all the agencies involved . Detailed conditions were placed in his release licence, an alarm was provided for his ex-wife, and the situation was disclosed to the school attended by the children. If there is any indication that his behaviour is giving cause for concern, prompt action will be taken to recall him to prison.

Before and during his most recent imprisonment for an offence of wounding, JA continued to attempt to maintain contact with his ex-wife and children, against their wishes.

JA has convictions for dishonesty, violence, criminal damage, threats and intimidation dating back to 1979. Police records show he has been involved in 40 domestic violence incidents, most involving his now exwife, with whom he has two children. He has also used force towards neighbours and police officers attending the incidents.

In consequence, RB was refused employment and has since found work in a low risk position. Even though this man is not subject to Sex Offender Registration he continues be monitored by the police and MAPPA.

In view of this, disclosure procedures were pursued through MAPPA and details of his offending and involvement as a suspect in several child protection cases were shared in a controlled manner with relevant parties.

Following discussion at a MAPPA meeting, an officer from the Police Public Protection Unit visited RB and advised him that such employment opportunities were not appropriate given his background. He was entirely dismissive of the officers' concerns and refused to accept the advice offered.

The police received information that RB was actively seeking employment through an agency, in roles involving close contact with children. These roles included positions in schools and playgroups.

Despite this, under the provisions of the MAPPA framework WY Police and Probation Services identified him as being a potentially dangerous individual.

Allegations of significant indecency towards children have been made against RB on many occasions over a period of years. However, due to the difficulties associated with securing witness evidence from very young child victims he has never been formally charged and brought to trial. He does have convictions for other types of offending that in themselves would not represent a significant risk to public safety.

Case Study 3

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4. STATISTICAL INFORMATION
Analysis of type of cases dealt with in 2005/6
Level 3* Registered sex offenders Violence offenders in the community Other in the community Of the Level 3 cases: 14 27 6 Of the Level 2 cases: Level 2* 86 157 179 “Level 2” cases are those where indicators of risk of serious harm have been identified; which could occur at any time, and have a serious impact. *Cases are classified as “Level 2” or “Level 3”.

I None were returned to custody for breach of a restraining order or sexual offences prevention order

I 14 were returned to custody for breach of licence.

I None were charged with a serious sexual or violent offence.

I 5 were charged with a serious sexual or violent offence.

I 2 were returned to custody for breach of a restraining order or sexual offences prevention order.

I 107 were returned to custody for breach of licence.

“Level 3” cases are those where the risk is “imminent” and would have a serious impact.

Freedom of Information: Disclosure of Registered Sex Offenders
Divisions West Yorkshire Pudsey & Weetwood Chapeltown Killingbeck City & Holbeck Wakefield & Pontefract Kirklees Calderdale Bradford South Bradford North Keighley Total

Total RSO’s 204 81 88 139 207 272 118 96 94 74 1373

There were 1669 registered sex offenders in West Yorkshire in 2004/5, 1834 registered sex offenders in 2005/6 of which 1373 were being managed in the community. This increase is due to length of time offenders remain on the register, and also due to the increased detection of many types of sex offences, including the misuse of computer systems for the purpose of accessing abusive images of children. Between 1st April 2005 and 31st March 2006, 44 sex offenders having a registration requirement were either cautioned or convicted for breaches of that requirement. In 2005/6 122 full Sexual Offences Prevention Orders were imposed by Courts in West Yorkshire. (Compared to 4 in 2003/4). This demonstrates an active use of the new legislative framework for controlling the activities of proven offenders.

If MAPPA cases are charged with a serious sexual or violent offence, a review of the case is required for scrutiny by the Public Protection Unit, National Probation Service.

The fact that no level 3 cases and only 0.66% of level 2 cases (5/756) were charged with serious sexual or violent offences is a positive indicator of how MAPPA can effectively manage offenders returning to the community following prison, or placed on community orders following conviction.

The victim's family expressed their concerns, which were reported to the meeting by the Victim Services Unit representative. As a result, ST will not be allowed to make any contact at all with his son. Since the crime was an incident of domestic violence, he must inform probation if he enters a relationship with a woman.

A detailed map was drawn up of an exclusion zone, defined in his licence conditions. ST would not be permitted to enter a large area of the town, which included shops used by the victim's family and leisure areas used by his son.

Towards the end of his life sentence, the MAPPA decided that on release AM must not return to this neighbourhood, nor to areas where the victim's family might bump into him.

ST was convicted of the murder of his partner. Her death had a profound effect on the neighbourhood as she ran out into the street, dying in front of local children playing there, including her and ST's own small son.

Case Study 4

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5. WEST YORKSHIRE MAPPA SMB BUSINESS PLAN 2006-9
Aim Who 1. 2. 3. 4. 5. 6. 7. 8. 9. Scope the co-ordination and administration need of districts Implement revised MAPPA guidance Publish annual report Probation, Police, Prisons SMB SMB SMB SMB Probation, Police SMB SMB SMB SMB SMB Commence analysis of quarterly data relating to MAPP panels, offender profiles, and SFO cases Review performance at year end

Timescale

Sept 2006 By Mar 2007 As required April 2006 Mar 2007 May 2006 Oct 2006 July 2006 July 2006

Conduct large scale audit of MAPPA cases in order to benchmark quality Devise all-year communications plan

Establish feedback channels to SMB for chairs of MAPP panels

10. 11. 12.

Consider plans for local MAPPA conference

Ensure key agencies offer suitable induction and training for SMB members and practitioners Establish clarity around the role of duty to co-operate agencies

By March 2007 Oct 2006 July 2006

Develop appropriate links with local children's safeguarding boards SMB and with partners implementing Local Area Agreements

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7. CONTACTS
West Yorkshire Probation Area Tel: 01924 885300 Director of Offender Management West Yorkshire Probation Board Cliff Hill House Sandy Walk Wakefield West Yorkshire WF1 2DJ (as above)

Communications and Public Relations Officer Tel: 01924 885300 West Yorkshire Police

Head of Child and Public Protection Unit Tel: 01924 292388

West Yorkshire Police PO Box 9 Wakefield West Yorkshire (as above)

Principal Media and Public Relations Officer Tel: 01924 292226

West Yorkshire Prison Service Governor Tel: 01937 848500

HMP Wealstun Thorp Arch Boston Spa Wetherby LS23 7AZ

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