MAPPA Annual Report 2004

1. Contents
Introduction by Chief Officers Key Achievements Public Protection Systems Operating Cases Managed How the MAPPA operates locally What is MAPPA? What does MAPPA do? What doesn’t MAPPA do? Which organisations are involved? How does MAPPA work? Case Example Mr A Case Example Mr B Case Example Mr C Strategic Management Board Looking Ahead for 2004 and onwards Victims The Critical Few Understanding Risk The Sexual Offences Act 2003 Violent Offenders Duty to Co-operate Statistics Commentary on local statistics Registered Sex Offenders Violent and Other Sex Offenders Other Offenders Court Orders MAPPP Offenders Contact Points, responsible Authority & other relevant Agencies 3 4 4 4 4 4 4 5 5 5 5 5 6 6 7 7 7 8 8 8 8 8 9 10 10 10 10 10 10 11

2. Introduction by Chief Officers
Sexual and violent offences are appalling crimes that deeply affect the lives of victims and their families and inspire fear in local communities. Their impact can be profound and long-lasting, leaving victims feeling unsafe even in their own homes. Work undertaken over the last year by the MAPPP signatory agencies reflects the high priority which the Government places on tackling sexual and violent crimes Although the existing Multi-Agency Public Protection Arrangements (replacing the previous Inter-Agency Public Protection Arrangements) were only rolled out in August 2002, over the last year significant effort has been invested towards improving the arrangements through building on experience and responding to new national initiatives and legislation. Whilst no system can guarantee absolute safety, this report clearly illustrates that the citizens of Wiltshire are well served by the public protection arrangements operating in Wiltshire. Diana Fulbrook Chief Probation Officer Wiltshire Probation Area National Probation Service Dame Elizabeth Neville Chief Constable Wiltshire Constabulary


3. Key Achievements
Public Protection The MAPPA system in Wiltshire has successfully managed cases throughout 2003/4. There have been no offenders managed through the MAPPA system and identified as very high risk of harm on the Home Office criteria who have been convicted of further serious offences. A number of offenders of all categories have been returned to court for re-sentence or recalled to prison as a result of information gained, shared and analysed through MAPPA contacts and meetings. Systems Operating Work between the Police and the Probation services over the last year has been at the core of the success of MAPPA with close involvement in the field between both probation officers and specialist police officers having responsibility for violent and sexual offenders. Wiltshire Police Head Quarters has provided excellent support in maintaining a register of violent and sexual offenders with links to this area. This is run by two registrars who log, analyse and share information with the other agencies working with offenders Meetings regarding offenders are held regularly throughout the County, utilising specialist staff who work within a true multi-agency public protection system. Cases Managed A wide range of cases have been included into the system, including offenders released from prison, on discharge from hospital, or those who have moved into the area from other Counties and Countries. The agencies involved include a wide range of statutory and voluntary bodies. The voluntary agencies have been specialists in drug and alcohol counselling and accommodation. Case examples are described in a later section.


4. How the MAPPA Operates Locally
What is MAPPA? Each of the 42 Police and Probation areas now has Multi –Agency Public Protection Arrangements (MAPPA). These are Multi-Agency arrangements which enable shared locally based assessment, conferencing and management of offenders who have committed dangerous, violent or sexual offences. Within Wiltshire these have been running since the 1997 Sex Offenders Act indicated closer working was required and the Criminal Justice and Court Services Act 2000 set out how this should happen. The arrangements operating now since April 2004 are based on the developments required by the Criminal justice Act 2003 and the Sexual Offences Act 2003. These run alongside the established arrangements for child protection and protection of vulnerable adults. The emphasis in MAPPA is to assess and manage the offender to reduce the risk they might present to the community at large as well as, on some occasions, to known individuals or staff working with them.

What does MAPPA do?
• • • •

Devizes, oversees the arrangements and chairs multi-agency meetings. Offenders are identified by the agencies working in the system through their offending whether dangerous, violent or sexual as well as through their behaviour. Information is quickly gathered from agencies and a decision is made as to how to proceed. Many less serious cases can be managed by single agencies, while others will involve meetings of practitioners or of senior staff as appropriate. Over the last year the involvement of more agencies has been set in legislation with a “duty to co-operate” obligation. This also allows statutory and some voluntary institutions, not normally associated with having a public protection function, to take an active role in the collective task of problem solving and using their resources to protect communities. In cases where multi-agency work is considered to be the most appropriate way of managing an offender safely, decisions are made on the appropriateness of accommodation and disclosure of previous offences to family friends or neighbours. Conditions in prison licences are often imposed which if breached, may result in the offenders recall. Psychiatric treatment considerations could be shared with other agencies to ensure offenders are dealt with appropriately. Meetings are minuted and decisions recorded. Actions planned are reviewed in subsequent meetings. The whole process is subject to audit and review to identify good practice as well as areas for improvement or development.

Case Examples: 1. Mr A aged 45 Background: Convictions for theft, assault and sexual assault on a teenage boy. The sexual assault was unusual as it appeared to be a physical attack rather than a sexually motivated act. This man was referred into the MAPPA process by the Probation Service which was to supervise him on release from prison. He had a record of alcohol abuse which disinhibited him and previous associates were also heavy drinkers. He was prone to violent outbursts. Furthermore, he was thought to be the subject of a personality disorder. Risk Assessment: This case was managed by Police, Probation, Community Forensic (Psychiatric) Team, and Housing Dept. He was initially assessed as posing a Very High Risk of Harm to the Public. On initial release this man reoffended by being drunk and disorderly and the Probation Service arranged his recall via the Home Office. This action was carried out by the police. Risk Management Plan

Identifies violent and sexual offenders in the area Shares information with agencies dealing with the offenders Assesses the risks an individual may present When needed, brings agencies together to manage risk.

What doesn’t MAPPA do?
• • •

MAPPA meetings do not assume responsibility for a case MAPPA does take responsibility from an agency MAPPA does not require agencies to work beyond their existing statutory duties.

Which Organisations are Involved? The Police, Probation and Prison Services are the core “Responsible Authority” for the MAPPA. On practical case management they work with other agencies to share information and assessments, decide on the risk individuals pose, meet to share plans and review resulting actions.
• • • • • • •


) Constituting the “Responsible Probation ) Authority” HMP (April 2004 onwards) Housing Health services (managerial, clinical and commissioning) Social Services Youth offending teams

How does MAPPA Work? The day to day management of the MAPPA system is the responsibility of the MAPPA Co-ordinator, a new post created during this last financial year and which was filled in January 2004. The Co-ordinator, who is based at the Police Headquarters in

Close Supervision by Probation Service - On release, a major focus was his alcohol abuse and the sexual assault. Alcohol advice agencies saw him as a condition of his supervision.

Re-housing It was determined that he would be more of a risk to the community if he became homeless and unable to receive regular contact that would be necessary. He was re-housed. Overt monitoring of his situation - Joint visits at his home was undertaken by the Police and Probation Services to check on his circumstances, assess his attitudes, behaviour and intentions. Public Protection Outcomes: Mr A ceased drinking and no longer associated with his former friends. The community was protected by stabilising a man enabling him to find motivation to change his behaviour. The agencies were able to share assessments of his actual offences so that they were able to establish that he was not a sexual risk to children. Overall risk was reduced to medium, which, from very high, is substantial. It is believed he has not offended since re-release a year ago. He has finished his statutory contact with the Probation Service however; he will remain subject to sex offender registration and hence monitoring by the Police for another 5 years. 2. Mr B aged 40 Background Convictions for assault on his exlandlady whist drunk. He has previous conviction for violent offences. He has links with the

psychiatric services who prescribe him medication and with alcohol treatment agencies. When he appeared in court he was made subject of a Community Rehabilitation Order for three years operated by the Probation Service. Risk Assessment Initially Mr B was assessed as high risk while he was in an unstable lodgings situation and was drinking. Inter-agency liaison involved Police, Probation, Housing, Environ-mental Health and Psychiatric Services. Risk Management Plan Probation supervision through frequent meetings Enforcing his attendance for alcohol counselling Anger management work with the probation officer Medication by the psychiatric services Home visits by the police to check on risks to those with whom he lived with. Practical assistance from the council to clean up his lodgings was unusually arranged, to stabilise him and his wider domestic arrangements. Public Protection Outcomes Re-housing away from the victim Referral of the victim for support. Reduction of alcohol use. Reduction of general risk to the public. This case continues without a neat conclusion but illustrates agencies working together to support an individual in the community who would otherwise be more of a risk. Those, with whom he lives are

identified and involved in the process, so that as much as possible within legislation and resources available, can be accomplished to protect the public. 3. Mr C aged 50 Background Convicted sex offender. Assault on his infant son. He was made the subject of a 2 year Community Rehabilitation Order with a condition to attend a Sex Offender Treatment Programme. He has no other convictions. His wife and other children have ceased to have any contact with him. Risk Assessment This case was discussed at an assessment meeting with Police and Probation officers. A full Local Level Risk Management Meeting with other agencies was not needed as Social services had been involved in the child protection assessments at the time of Mr C’s arrest. He was identified as High Risk to Children. Risk Management Plan

Supervision by the Probation Service - Sex Offender Treatment Programme Accommodation to be checked for suitability - Mr C found lodgings which were checked out by Social Services. Information sharing to other relevant agencies - He disclosed some high risk behaviour which was shared with a neighbouring county as he visited the seaside. Prohibition on particular behaviour - He was instructed not to visit the seaside.

Overt monitoring of his situation – Police and Probation will continue to visit him at home. Public Protection Outcomes Mr C’s contacts with another sex offender identified and specifically prohibited

Identification of a potential individual victim enabled her to be safeguarded. Mr C has now moved within the county; however his sex offender record goes with him. Supervision by both Police and Probation officers will continue to actively monitor

his behaviour, situation and attitudes. His case is to be reviewed again under the MAPPA system. The risks he poses will be reassessed and if needed, a multi agency meeting would look at further actions to protect the public.


5. Strategic Management Board
Structure The Board meet on a quarterly basis and is chaired by a member of one of the Responsible Authorities. The system for the management of the MAPPA has not changed significantly over the last year although the coming year will bring the biggest change since inception. This will be the appointment of two “Lay Advisers” who will form part of the Strategic Management Board (SMB) membership. It is expected that they will take up their roles in the autumn. Work The work of the SMB is to consider the strategic issues, develop and agree local policies to enable the work to be undertaken and evaluate performance. The whole MAPPA process needs to work within the National Guidelines and to learn from national developments and initiatives. The Board and its sub division, the Practice and Procedures Group complete this work. Should any offender who is subject to the MAPPA process be charged with any serious sexual or violent offence a “Serious Offence Case Review” is undertaken by the Board and lessons communicated to local agencies and professionals. Practical work over the last year has included the revision of the Policy and Procedures documents to comply with the changes in legislation in the Criminal Justice Act 2003 and Sexual Offences Act 2003. The Board instituted an audit of the MAPPA minutes system which resulted in a reformatting of the minutes to more clearly display risk assessments, actions planned and their outcomes. In line with the findings of the joint inspectors report “Safeguarding Children” more formal links have been established with the Area Child Protection Committee through agency representatives sitting on both MAPPA and ACPC. The same link has been made with the local Vulnerable Person’s Committee.


6. Looking Ahead for 2004 and Onwards
Victims In addition to the work to tackle offenders, the Government has rightly placed much emphasis upon meeting the needs of victims of crime. This and the prevention of further people becoming victims lie behind the MAPPA system. The involvement of Victim Liaison Officers in appropriate cases and the involvement of the police Domestic Violence Units, in interagency discussion meetings and risk management planning will continue and develop. The attention paid to the needs of specific identified

victims and potential victims will also continue. The Domestic Violence Crime and Victims Bill will build on the existing Victims’ Charter and set out specific responsibilities that each criminal justice agency and Victim Support must provide to victims. It is expected that this will have an impact on the work of the MAPPA. The Critical Few The focus on work with sexual, violent and dangerous offenders will continue with an emphasis on identifying what has been termed the “Critical Few” who need particular attention, care in handling and who demand particular resources, or who may cause great concern to the public. These offenders may present a higher risk of harm and are more unstable whilst being known to many agencies. Particular attention is given to identifying these individuals and to target resources to protect the public through their effective management. Many offenders qualify for inclusion into the MAPPA system, but do not necessarily present a high risk of serious harm. To identify them and only allocate resources appropriate to them, allows a more comprehensive focus on the ‘critical few’. Understanding Risk The development of risk assessment and management has progressed in recent years. There are now exists, tried and tested risk assessment tools which when used by skilled trained staff, enable assessments to be made, which research has shown to be sound. Police, probation, youth offending team staff and prison staff all now use such tools. A challenge for other agencies

brought into the system is to understand the implications of the outcomes of these assessments for their own work with offenders. All agencies need to look at the particular circumstances and personal details behind the terms, dangerous or violent offender, let alone sex offender, to make appropriate judgements as to which are the “critical few” and which are the many who they can work with safely and effectively within normal procedures. The Sexual Offences Act 2003 This legislation affects the operation of the MAPPA system in a number of ways. Existing and new sex offenders are liable to be monitored by the police and have to report to them on their activities more so than in the past. This will enable a quicker response to an offender putting themselves into a higher risk situation, which could well trigger inter-agency action by the MAPPA, or Child Protection Procedures. A range of new civil preventative orders will be available from May 1st 2004. These will replace the existing Sex Offender Orders and allow more appropriate targeting of offenders, who can be included in the MAPPA process through offences committed abroad, prohibited from travelling abroad to commit offences or brought into the MAPPA system before committing offences when suspected of “grooming” children for later sexual abuse. More rigorous notification conditions for the sex offenders New civil preventative orders available for the monitoring of sex offenders

Violent Offenders The MAPPA will continue to work with the Public Protection Unit of the National Probation Service and develop the support given to accommodation providers for extra staff to help safely re-integrate offenders who can be otherwise difficult to place. Special conditions can be imposed on some of these offenders including electronic monitoring of curfew for up to 5 years after release. A long term focus of work in the MAPPA is the small numbers of offenders who have to be released at the end of determinate sentences while they are recognised as still presenting a risk to the community. Duty to Co-operate: The Criminal Justice Act 2003 introduces a ‘Duty to Co-operate’ with the MAPPA, which requires the responsible authority to collaborate with each of the following bodies: • Social Service Departments (or equivalents) • Primary Care Trusts, other NHS Trusts and Strategic Health Authorities • Job Centres • Youth Offending Teams • Registered Social Landlords, which accommodate MAPPA offenders • Local Housing Authorities • Local Education Authorities and • Electronic Monitoring Providers This will set on a statutory footing the good practice evidenced in the close inter-agency working in Wiltshire and Swindon over the last few years

7. Statistics
Wiltshire Annual Report Statistics for 2003/2004 with year on year comparisons for 2001/02 and 2002/03
Registered Sex Offenders (RSO) 01/02 185 30 5 02/03 255 42 13 Diff 70 12 8 % 03/04 Diff 37.8% 234 -21 40.0% 38 -4 160.0% 12 -1 % -8.2% -9.5% -7.7% MAPPP Offenders within MAPPA 02/03 03/04 36 9 21 6 28 5

Number of RSO RSO per 100k RSOs cautioned

Number of RSOs Number of V&OS Number of OthO

Diff -27 -15 -23

% -75.0% -71.4% -82.1%

Violent and other Sex Offenders (V&OS) 01/02 200 02/03 214 Diff 14 % 03/04 Diff 7.00% 129 -85 % 39.7%

Outcome measures of MAPPP activity 02/03 03/04 Return to Cust. Breach of licence Returned to Cust. Breach of SOO 9

Diff -8

% -88.9%

Number of V&OS


Other Offenders (OthO) 01/02 5 02/03 28 Diff 23 % 03/04 Diff % 460.0% 78 50 178.6%





Number of OthO

Charged with further serious offence





Statistics relating to Court Orders 01/02 1 1 0 0 0 02/03 5 5 0 0 3 Diff 4 4 0 0 3 % 03/04 Diff % 400.0% 0 -5 -100.0% 400.0% 0 -5 -100.0% 0 0 0 0 0 0 0 0 0 2 -1 -33.33%

MAPPA calculations for 2003/2004 Category Total MAPPA offender population in this Area Total MAPPP offender population in this Area % of MAPPA that are MAPPP Offenders

Result 441 20 4.50%

SOO applied for SOO granted ISOO applied for ISOO granted RO granted

SOO - Sex Offender Order, ISOO - Interim Sex Offender Order, RO - Restraining Order

For the purposes of calculating the number of Registered Sex Offenders per 100,000 head of population, the PPU have used the results from the 2001 census. The head-

count for Wiltshire was reported as 613487.

MAPPP Population in 2004 Registered Sex Offenders










20 185 255 234






Statistics Contd.
Commentary on the local Statistics The way in which cases have been counted within Wiltshire has been brought into line with the national collation of statistics. This has resulted in an apparent reduction in some categories and an increase in others. Registered Sex Offenders The number of Registered Sex Offenders within Wiltshire is attributable to the removal of those with a Wiltshire address but still serving prisoners, who were previously counted in this figure. They should have not been counted in the last years’ statistics. The accuracy of this figure is assured through the comparison of the number of Registered Sex Offenders per 100k in comparable areas. The overall number of Category 1 Registered Sex Offenders is expected to continue to rise for the foreseeable future as both the 1997 Sex Offenders Act and now the 2003 Sexual Offences Acts created both fixed and indefinite registrations. The earliest and shortest registrations are only now running out while the larger number of longer term and smaller number of indefinite registrations will continue to build. Violent and Other Sex Offenders With regard to the Category 2 Violent Offenders and Other Sexual Offenders a similar reduction in numbers is also attributable to the removal of serving prisoners from the Wiltshire statistics. Other Offenders The number of Category 3 Other Offenders continues to increase. This is a proportionately large increase as it includes all those referred into the MAPPA system through other agencies, as well as those who have ended statutory supervision after release from prison or ended the period of sex offender registration, but are still considered a substantial risk. As the MAPPA system has become better known to other agencies working in the community with offenders referrals are made for advice. These can result in simple and effective plans and links between agencies to protect the public. Court Orders The number of court orders held in Wiltshire has increased to 6 with an offender subject to one moving into the area while no new ones were deemed necessary in the report period, however application has now been made for new orders which will appear in next years statistics. The low need for new orders is in good part a positive reflection on the compliance achieved by the Police Officers who visit and monitor the sex offenders in the community. MAPPP Offenders A substantial change has occurred in Wiltshire, in the organisation of the highest level interagency cases, with the adoption of the most recent national guidance requiring 3 levels of MAPPA cases. Previous to that, although the higher level were treated differentially according to the risks which they posed, the same meetings structure was used which had the effect of combining the level 2 and 3 figures for purpose of statistics.

8. Contact Point within the responsible Authority and Other Relevant Agencies

Wiltshire Probation Area Assistant Chief Officer (Specialist Services)

Address Rothermere Bythesea Road TROWBRIDGE Wiltshire BA14 8JQ

Phone 01225 781950

Community Safety and Criminal Justice Department Wiltshire Constabulary

Address London Roadm DEVIZES Wiltshire SN10 2DN

Phone 01380 722341

Victim Support Area Manager

Address Victim Support Wiltshire 31a The Brittox DEVIZES Wiltshire SN10 1AJ

Phone 01380 729476