MAPPA Annual Report 2006/07

Protecting the people of West Yorkshire

MAPPA Annual Report 2006/07

Ministerial Foreword
These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the Government's continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the way the MAPPA work. I want to highlight two of them here. Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents will be able to register a child protection interest in a named individual with whom they have a personal relationship and who has regular unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption that the offences will be disclosed to the parent. Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that robust performance management is in place. To achieve this, we intend to introduce new national standards, which will ensure a consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the standards. We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always room for improvement. I

commend this annual report to you as an indication of the commitment, skills and achievements of the professionals, and lay advisers, in managing and monitoring this essential, often difficult area of business.

Maria Eagle MP Parliamentary Under Secretary of State

MAPPA Annual Report 2006/07

We are pleased to introduce the 2006/07 annual report of the West Yorkshire Strategic Management Board for Multi Agency Public Protection Arrangements (MAPPA).
Sir Norman Bettison

The report is intended to offer an insight into the work undertaken by a wide range of agencies - statutory, voluntary, private who share a common aim of making our communities safer. The aim of the MAPPA system is to minimise the likelihood of re-offending from individual offenders by assessing and managing the various risk factors that are associated with their behaviour. Agencies involved in MAPPA understand the importance of working closely together, including the sharing of information, so that an accurate picture of the risks can be formulated. A structured approach is adopted prior to release from prison, and intensifies once the offender is in the community, usually through a combination of supervision, monitoring, or treatment. The needs of victims are maintained at the centre of MAPPA work. Victim contact staff ensure that the victims of MAPPA offenders are listened to, and that their views are relayed to those bodies that will make decisions about such offenders. The assessment of risk, which leads to the development of action plans to manage that risk, requires the involvement of many

agencies. Whilst the MAPPA system is headed by the three 'responsible authorities' - police, probation, prisons - it is also supported by agencies as diverse as health, social services, accommodation providers, education, youth offending teams, electronic monitoring providers etc. Public Protection continues to be a hugely complex, difficult, and challenging area of work. We want to acknowledge the skill, commitment, perseverance, and passion of professionals and volunteers across a range of disciplines, who work together to deliver public safety. Because the final responsibility for the commission of a crime lies with the offender, it is impossible to provide a 100% guarantee that no offender will commit another crime. Tragedies can and will occur despite the best efforts of skilled staff. Nonetheless, in West Yorkshire, only one of the MAPPA offenders assessed at the highest risk level has re-offended in the last three years. We commend this report to you, and assure you of our ongoing commitment to strengthen the public protection arrangements that safeguard the public of West Yorkshire.

Sue Hall

Sir Norman Bettison Chief Constable West Yorkshire Police

Sue Hall Chief Officer West Yorkshire Probation

Tony Hassell Area Manager HM Prison Service

Tony Hassell


MAPPA Annual Report 2006/07


1 2 3 4 5 6

The Strategic Management Board Key Activities Operation of MAPPA Statistical Information





West Yorkshire MAPPA SMB Business Plan 2006-2009



MAPPA Annual Report 2006/07

1 The Strategic Management Board
The Strategic Management Board (SMB) in West Yorkshire is chaired by a Director from Probation. Membership of the SMB comprises of senior representatives from a range of agencies, and these include Police, Prisons, health, housing, local authorities, and Victim Support. Two Lay Advisors also sit on the Board, and their role is to bring a citizen’s perspective to the work of MAPPA. The Board receives reports on a range of issues, such as the ability of health trusts to identify and monitor certain offender / patients, community involvement in monitoring and supporting sex offenders, and the quality of work with high risk offenders. This, plus the statistical data it receives, enables the Board to carry out its prime function of monitoring and developing the effectiveness of MAPPA throughout West Yorkshire. During 2006/07 the Board had representation from the following agencies: Probation Police Prisons Youth Offending Teams Health Trusts Group 4 Securicor Accommodation Providers Social Services Departments Victim Support Langley House Trust Education Jobcentre Plus These agencies represent hundreds of individuals who work with dangerous offenders on a day to day basis, and whose aim is to protect the public of West Yorkshire. The Strategic Management Board acknowledges the commitment, skill, and dedication of those individuals. The SMB recognises the need to protect children and to promote their welfare, and for that reason it has a representative on all five of the local Safeguarding Children Boards in West Yorkshire. All multi-agency work is overseen by the West Yorkshire Criminal Justice Board, which contains high level representation from a number of agencies. From 2007/08, the SMB intends to strengthen its links with staff who deliver public protection at a local level. The SMB will also review its membership and structure, in order to ensure it remains fit for purpose.

‘The critical few’ - MAPPA level 3 protection panel
Health Representatives
There will normally be two decision-makers for resouces/decisions relating to mental health, disability, general health etc.

Assistant Chief Probation Officer
With strategic responsibility

Prison Representatives
If a custody case

Probation Public Protection Manager
Chair of the meeting

Senior Police Officer
With strategic lead on public protection

Senior Police Officer
From local police area with responsibility for intelligence

Police Legal Advisor
Only attends if legal issues are identified

Police Public Protection Officer
If a violent or sex offender in the community

Victim Liaison Officer (VLO)
(probation-led). Only attends if there is an identified victim and the panel needs more information

Social Care
A senior manager representing one of the following areas: child protection, vulnerable adults, families, learning disabilities

Approved Premises’ Manager (probation)
This person has strategic responsibility for decisions relating to Approved Premises (previously known as probation hostels)

Education Representative
Strategic level, to arrange co-ordinated links with schools/childcare providers, if necessary

Senior Probation Officer
In charge of day-to-day management of the local area’s MAPPA cases and line manager of the Probation Officer

Probation Officer
If the offender is under probation supervision and/or licence, then this person is the day-to-day ‘offender manager’

Local Housing Manager
Senior manager who can make allocation decisions for accommodation on release from prison or after a period of residency in an Approved Premises


Chris Dyer Wealstun Prison

Jenny Price Wakefield Family Services

Steve Maw Youth Offending Team

MAPPA Partners
Chris Dyer is Deputy Governor of HMP Wealstun, a split site prison which holds category C and D prisoners. He represents the five prisons in West Yorkshire on the MAPPA SMB. “The Prison Service is important in contributing to MAPPA in West Yorkshire, as a significant number of our prisoners are subject to its requirements” Chris says.” Its success is not just in individual cases, now there is a management group to assess those offenders who pose a risk before, during and after custody. We are effective in managing this risk, giving the public greater confidence in the MAPPA process. The majority of the work of the Prison Service takes place while offenders are in custody. Work is carried out focusing on specific conditions of risk management through MAPP meetings and reports, such as • Multi Agency Risk Management Team • Providing Programmes to address drug and behaviour problems • Sex Offender Treatment • Safeguarding Children • Planning the release of high profile offenders • Engaging with ongoing joint training with other agencies. “The Prison Service cannot fulfill its role in MAPPA without the links with its partner agencies, Police and Probation. The best opportunity for us to affect an offender's behaviour is whilst he is in custody. By careful risk management and targeted interventions we endeavour to ensure that when an offender is released back to the community the risks are greatly reduced.” Jenny Price is a member of family services having previously been lead officer for child protection and safe guarding for schools and the education service. She has been involved with MAPPA both through attending local MAPPA meetings and representing the education service through West Yorkshire on the Senior Management Board. “Establishing effective working relationships between schools and MAPPA is essential within the overall management of offenders” says Jenny. “Both schools and the MAPPA process need to develop relationships based on trust and an understanding of the need to act effectively when particular circumstances or situations related to an offender are within a school locality.” Whilst it is important that information is shared, this must be done in a way that meets strict rules of confidentiality and risk management. Steve Maw is Operational Manager for the Leeds West Youth Offending Team (YOT) and represents all the West Yorkshire YOTs on the MAPPA Strategic Management Board (SMB). "YOTs deal with a relatively small number of serious offenders" he says. "We work with more Prolific and Priority Offenders (PPOs) or those on ASBOs. The very small number of dangerous young people are mostly serving indeterminate sentences in custody, not in the community. So part of my role is to try to promote awareness of proper risk assessment and risk management. I meet with each of the YOTs to disseminate information from the SMB. ‘‘MAPPA itself is a system for managing risk in adult offenders, and I have to raise awareness that we need to look at different issues to make the system relevant to young offenders.’’ “With adult offenders, you can look at their past behaviour and offences to predict future risk. With children and young people a serious offence can be their first offence, so information from schools becomes more important in telling us about difficult behaviour. The MAPPA creates a structure for sharing all the information we have in order to assess and manage risk and help to protect the public.’’


MAPPA Annual Report 2006/07

2 Key Activities
By their very nature, MAPPA cases are often difficult and complex. On top of this, the MAPPA workload is substantial - over 2900 offenders are within MAPPA in West Yorkshire, of whom nearly 1600 are in the community, usually on licence after a period of imprisonment. A total of 3052 multi-agency meetings were instituted in order to manage these offenders - a significant increase on the previous year. Offenders are managed at three different levels, with level 3 being reserved for the critical few offenders who present the highest level of risk. In West Yorkshire there were 89 level 3 offenders, and nearly half of these were managed in the community. Of these, only one was charged during the previous year with a serious sexual or violent offence. The Board continued to review the management of individuals convicted of domestic violence and who are sentenced by courts to intensive treatment programmes. Research was commissioned to ensure that we were managing these individuals in the most effective and efficient manner. During the year, health trusts were asked by the SMB to audit their ability to identify and manage MAPPA offenders with mental health problems or who posed a risk of sexual offending. Following more stories in the media about sex offenders being accommodated in probation hostels, the SMB continued to liaise with head teachers and managers of day nurseries, and to assure them that the 24 hour regime of probation hostels provided exactly the right environment to ensure that risks posed by sex offenders were being effectively managed. The SMB considered the importance and dilemmas of placing offenders into suitable employment. Employment is known to be a vital factor in reducing offending across most offender groups, and the tension is to manage MAPPA offenders into appropriate forms of employment, without increasing the risk to the public. Further guidance will be issued to staff on this issue.

Case Study 1
JT was sentenced to 3 years 9 months imprisonment for an assault occasioning actual bodily harm. The victim was a 9 year old child with learning difficulties and epilepsy. JT was seen by neighbours hitting and screaming at her. When rescued by neighbours, the child was found to have 40 injuries to her body. Her mother (the co-accused) was in the house when the assault took place and was sentenced to a period of imprisonment for failing to protect her daughter. The victim is now living with other family members. A MAPPP meeting decided that any licence conditions upon JT's eventual release should include a “no contact” condition relating to his partner and the victim. This was explained to JT by his home probation officer. JT sought help and advice from a prison officer and prison-based probation officer. He denied to them that he had made threats of suicide as reported by members of his family. The MAPPP decided that the prison should enforce the planned licence conditions with immediate effect. His partner's phone numbers were deleted from JT’s phone card and this was enforced despite his attempts to manipulate prison staff into allowing him to use the office telephone to call her.


MAPPA Annual Report 2006/07

3 Operation of MAPPA
What is MAPPA?
MAPPA stands for Multi-Agency Public Protection Arrangement. A MAPPP is a regular meeting of agencies concerned with the management of registered sex offenders, violent offenders and other offenders who present the highest levels of risk. Each of the five Areas of West Yorkshire conducts MAPPA meetings on a regular basis. the Responsible Authority. These include; • Local Authorities/Social Services • Primary Care Trusts, other NHS Trusts and Strategic Health Authorities • Jobcentre Plus • Youth Offending Teams • Registered Social Landlords who accommodate MAPPA Offenders • Local Children’s Services • Electronic Monitoring provider assessment of the offender’s risks. A risk management plan is developed based on that risk assessment.

What is a risk management plan?
A risk management plan determines what action needs to be taken and by whom to minimise the risk posed by individual offenders. A risk management plan may include: • Monitoring and surveillance and control procedures that provide high levels of vigilance on offenders • Restrictive conditions e.g. conditions that restrict where an offender can live • Attendance at a programme designed to address causes of offending behaviour

Which agencies are involved in the MAPPA?
As a result of the Criminal Justice Act 2003 the Responsible Authority in each of the 42 Areas of England and Wales now comprises the Police, Probation and the Prison Service. In addition, a range of other agencies have been placed under 'a duty to co-operate' with

What happens at a MAPPA meeting?
The purpose of the meeting is for information to be shared between all agencies to allow for the best

Case Study 2
WR is a Slovakian national who first came to UK police attention in December 2005 for an offence of indecent exposure to a woman in a hairdressers' salon. In February 2007 he received a 12 month community order with a requirement of 80 hours' unpaid work and was placed on the Sex Offenders' Register for 5 years. He registered himself as having no fixed address and living in Bradford, but could not be located. Arrested for failing to register a change of address, he was found to be living in a flat above a hairdressers with shared bathroom facilities. The MAPPA authorised disclosure of WR's convictions to the proprietor of the salon. He has now moved and registered his new address, and Interpol are seeking information from his home country in relation to any other previous convictions or concerns.


MAPPA Annual Report 2006/07

• Contingency plans and rapid response arrangements made with the local police • Victim safety plans • Enforcement action should the offender fail to comply with a Community Order/Licence. This could mean a return to prison for some offenders There are three levels at which MAPPA offenders are managed: Level 1 - Where a single agency e.g. the Probation Service, can safely manage an individual offender without the active or significant involvement of other agencies. Level 2 - Where the combined resources of at least two agencies are required to manage an individual offender Level 3 - This is the highest level of

risk, reserved for the 'critical few' who pose a particular risk to the public, requiring input from a range of agencies. The risk posed by offenders at this level may require senior management to allocate significant resources to manage each individual offender.

victims are crucial in helping the agencies decide on the most appropriate strategies for managing individual offenders, and depending on the circumstances of the case a member of staff from our Victim Liaison Unit will be able to represent the interests of victims and to make their views known. Do offenders attend MAPPPs? No again, the meeting itself involves only the MAPPA agencies. Offenders' views will usually be known by police and/or probation. They are informed that they are being managed through a multiagency process, and key decisions about managing the risk they pose will usually be passed on to them by their Offender Manager or the police officer unless this information is sensitive and needs to be kept confidential in order to protect known victims or the public at large.

What about confidentiality?
Information shared at MAPPPs is confidential to the agencies represented and will only be used as agreed for the protection of the public. Each agency represented is responsible for ensuring the information and documentation are handled and stored securely. Do victims attend MAPPPs? No - the meeting itself is confined to representatives from agencies and organisations involved in MAPPA. However, the views and concerns of

Case Study 3
DH was convicted of domestic violence after assaulting his partner and was given a short prison sentence. As this was under 12 months, he was released without a licence. On release he was allowed contact with his partner in order to access their young child. However, it was not long before he assaulted her again, this time causing serious injury with a hammer. He was sentenced to a further 18 months in prison. Victim Services' involvement in MAPPA ensured his partner's views were included in discussions of the case. WY police placed her on the new “sanctuary scheme” which involved installing alarms, locks and a safe room in her house. On release from custody DH was placed in a hostel, under curfew, and exclusion zones were set up around his partner's home. Contact with his daughter now has to be arranged through the courts and social services, as the safety of the partner and child are paramount.


MAPPA Annual Report 2006/07

Keeping Victims at the heart of MAPPA
Central to the work of West Yorkshire Probation Board is the protection of victims. Our Area Victim Liaison Unit is continuing to protect victims of serious sexual and violent crime from future harm, while providing a main link to the MAPPA. At the heart of Public Protection work is the need to protect victims. The Criminal Justice System has devoted increased attention to victim issues over recent years with additional support being provided through the arrest and pre court stage by Victim Support and Victim Witness Care through what can be a lengthy and difficult period of time. After conviction the Victim Liaison Unit will write to identified victims to offer the facility of contact and information. With consent, victims receive information covering the work the offender has undertaken whilst in custody and can have their views taken into account by authorities which consider release on any form of licence. This can lead to additional licence conditions that may restrict direct contact or exclude offenders from certain geographical areas. Victim staff may continue to be involved in the MAPPA process after the offender has been released and serve to ensure that victim views are taken into account when considering how best to manage individual offenders within the community. Under the provisions of the Criminal Justice and Court Services Act 2000, the Victim Liaison Unit has statutory responsibility for victim work in cases of

serious sexual and violent crime where the offender receives a prison sentence of 12 months or more. This has been further extended under sections 36 - 44 of the Domestic Violence, Crime and Victims Act 2004 to include victims or victims' families of serious sexual and violent offences, where offenders have been made the subject of hospital orders with restriction.

MAPPA and Offender Management
The Probation Service has been subject to significant change over the past 18 months. One of the main changes has been to implement “end to end” management of offenders throughout their sentences be this in the community or in Prison. To achieve this Probation and Prison Service work closely together under the auspices of a new organisation called NOMS (National Offender Management Service). Since November 2006, offenders in custody who have been assessed as high and very high risk of causing serious harm to the public have an Offender Manager - based in the Probation Service - who works with them from the beginning to the end of their sentence. This means less duplication in assessments and more coherence in how an individual offender is assessed and their sentence managed. Whilst the offender is in custody, the Prison Service ensures that an Offender

Supervisor is in place to provide a strong link between the offender and their Offender Manager. The Offender Supervisor ensures that the sentence plan prepared for the offender by their Offender Manager is fully implemented. A large part of this work will be about reducing and managing identified risks. The Offender Manager and the Offender Supervisor work very closely together to share information and to make sure that their risk assessments are regularly updated and used to inform decisions about the offender's sentence. This coordination and communication greatly enhances what MAPPA has to offer in its management of individual offenders who have been assessed as posing a high risk of harm to the public.

Case Study 4
AR was released to a hostel, where it was identified he was a high risk to children. Consequently he was the subject of Police surveillance which resulted in him being quickly recalled after he was observed loitering in a library where children were. Liason with probation resulted in his immediate recall to prison.


MAPPA Annual Report 2006/07

4 Statistical Information
Level 3* Level 2* 65 159 111

Analysis of type of cases dealt with in 2006/7

Registered sex offenders. Violence offenders in the community. Other in the community.

13 8 1

Of the Level 3 cases: • 2 were returned to custody for breach of licence • None were returned to custody for breach of restraining order or sexual offences prevention order • One was charged with a serious sexual or violent offence

Of the Level 2 cases: • 81 were returned to custody for breach of licence • One was returned to custody for breach of a restraining order or sexual offences prevention order •7 were charged with a serious sexual or violent offence *Cases are classified as ‘‘Level 2’’ or ‘‘Level 3’’. ‘‘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.

The fact that only one level 3 case was charged with a serious sexual or violent offence is a positive indicator of how MAPPA can effectively manage offenders returning to the community following prison, or placed on a community order following conviction If MAPPA cases are charged with a serious sexual or violent case, a review of the case is required for scrutiny by the Public Protection Unit, National Offender Management Service (NOMS) There were 1387 registered sex offenders managed in the community in 2006/7 compared with 1373 in 2005/6 Between 1 April 2006 and 31 March 2007, 63 sex offenders having a registration requirement were either cautioned or convicted for breaches of that requirement. In 2006/7, 91 full Sex Offender Prevention Orders were imposed by Courts in West Yorkshire. This compares with 122 in 2005/6. West Yorkshire Police continues to be proactive in the successful application for Sex Offender Prevention Orders.

Case Study 5
WG was released from prison to a hostel. He was also subject to a Sexual Offences Prevention Order, which prevented him having unsupervised contact with children. Good liason between Police and Probation through MAPPA highlighted concerns and he was placed under Police surveillance, when it was established that he was visiting his partner and her two children. Social Services and Probation were notified resulting in WG being recalled to Prison.

‘‘Level 3’’ cases are those where the risk is ‘‘imminent’’ and would have a serious impact. There were 1387 registered sex offenders managed in the community in 2006/07 compared with 1373 in 2005/06.


MAPPA Annual Report 2006/07

5 Business Plan 2006-09
Aim 1. 2. 3. 4. Scope the co-ordination and administration need of districts Implement revised MAPPA guidance Publish annual report Commence analysis of quarterly data relating to MAPP panels, offender profiles, and SFO cases Review performance at year end Who Probation, Police, Prisons SMB SMB SMB Timescale Review completed As required As required Oct 2007 Comment Increased resource will be diverted into MAPPA as a result of the review. Final national guidance is still awaited. Undertaken for 2006-7 Data is routinely presented in relation to MAPP panels and serious further offences. Further work planned on offender profiles. Increased involvement of MAPPA co-ordinators in the SMB will enable the SMB to have a closer link with performance at a local level. MAPPA co-ordinators will be represented at SMB meetings. Results of an audit of high risk cases in October were fed to the SMB. Much work resulted from media interest in the accommodation of sex offenders. Regional conference took place in March 2007. Lay advisors are being linked to specific local MAPP panels. All offender managers being provided with latest risk of harm training. Local approach agreed. Awaiting further national guidance. SMB representation on all local safeguarding children boards.



March 2008

6. 7.

Establish feedback channels to SMB for chairs of MAPP panels Conduct large scale audit of MAPPA cases in order to benchmark quality Devise all-year communications plan 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 Develop appropriate links with local children's safeguarding boards and with partners implementing Local Area Agreements

Probation, Police SMB

July 2007 As required



July 2007

9. 10.



11. 12.


As required Ongoing


MAPPA Annual Report 2006/07

6 Contacts
West Yorkshire Probation Area Director of Offender Management West Yorkshire Probation Board Cliff Hill House Sandy Walk Wakefield West Yorkshire WF1 2DJ Tel: 01924 885300 Communications and Public Relations Manager (as above) Tel: 01924 885300 West Yorkshire Police Head of Child and Public Protection Unit West Yorkshire Police PO Box 9 Wakefield West Yorkshire Tel: 01924 292388 Yorkshire and Humberside Prison Service Deputy Governor HMP Wealstun Thorp Arch Boston Spa Wetherby LS23 7AZ Tel: 01937 848500

Media Relations Manager (As above) Tel: 01924 292226

Case Study 6
JL was released after serving a prison sentence following his breach of a Sex Offender Order. JL has a history of indecency offences in his home area against under age boys dating back to 1961 and was considered by the MAPPA to be a very high risk to children. After discussion by MAPPA he was released to live in a West Yorkshire hostel, under enhanced supervision, for three months before he was moved back to his home area. He was subject to a curfew, had to sleep in an alarmed room, and was only allowed out of the hostel under escort. JL was subject to a Sex Offender Prevention Order (SOPO) with the condition that he must not have contact with any child under 16. He was escorted to church but approached a young boy. Police and Probation ensured he was recalled to prison for this breach of his licence conditions. The MAPPA was concerned that he would now be released from custody at the very end of his sentence and therefore under no supervision. Action was therefore taken to deal with him for breach of his SOPO, and he was sentenced to a further three years' imprisonment.



West Yorkshire



Yorkshire & Humberside