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MAPPA Annual Report 2004

1. Contents
Introduction by Chief Officers 3

Key Achievements 4
Public Protection 4
Systems Operating 4
Cases Managed 4

How the MAPPA operates locally 4

What is MAPPA? 4
What does MAPPA do? 5
What doesn’t MAPPA do? 5
Which organisations are involved? 5
How does MAPPA work? 5
Case Example Mr A 5
Case Example Mr B 6
Case Example Mr C 6

Strategic Management Board 7

Looking Ahead for 2004 and onwards 7

Victims 7
The Critical Few 8
Understanding Risk 8
The Sexual Offences Act 2003 8
Violent Offenders 8
Duty to Co-operate 8

Statistics 9
Commentary on local statistics 10
Registered Sex Offenders 10
Violent and Other Sex Offenders 10
Other Offenders 10
Court Orders 10
MAPPP Offenders 10

Contact Points, responsible Authority & other relevant Agencies 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

Diana Fulbrook Dame Elizabeth Neville

Chief Probation Officer Chief Constable
Wiltshire Probation Area Wiltshire Constabulary
National Probation Service

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


4. How the MAPPA Operates Locally

What is MAPPA? These run alongside the established
Within Wiltshire these have been arrangements for child protection
Each of the 42 Police and Probation running since the 1997 Sex and protection of vulnerable adults.
areas now has Multi –Agency Public Offenders Act indicated closer
Protection Arrangements (MAPPA). working was required and the The emphasis in MAPPA is to
These are Multi-Agency Criminal Justice and Court Services assess and manage the offender to
arrangements which enable shared Act 2000 set out how this should reduce the risk they might present to
locally based assessment, happen. The arrangements the community at large as well as,
conferencing and management of operating now since April 2004 are on some occasions, to known
offenders who have committed based on the developments required individuals or staff working with
dangerous, violent or sexual by the Criminal justice Act 2003 and them.
offences. the Sexual Offences Act 2003.
What does MAPPA do? Devizes, oversees the arrangements
and chairs multi-agency meetings. Case Examples:
• Identifies violent and sexual
offenders in the area Offenders are identified by the 1. Mr A aged 45
• Shares information with agencies agencies working in the system
dealing with the offenders through their offending whether Background:
• Assesses the risks an individual dangerous, violent or sexual as well
may present as through their behaviour. Convictions for theft, assault and
• When needed, brings agencies Information is quickly gathered from sexual assault on a teenage boy.
together to manage risk. agencies and a decision is made as The sexual assault was unusual
to how to proceed. as it appeared to be a physical
What doesn’t MAPPA do? attack rather than a sexually
Many less serious cases can be motivated act. This man was
• MAPPA meetings do not assume managed by single agencies, while referred into the MAPPA process
responsibility for a case others will involve meetings of by the Probation Service which
• MAPPA does take responsibility practitioners or of senior staff as was to supervise him on release
from an agency appropriate. Over the last year the from prison. He had a record of
• MAPPA does not require involvement of more agencies has alcohol abuse which disinhibited
agencies to work beyond their been set in legislation with a “duty to him and previous associates
existing statutory duties. co-operate” obligation. This also were also heavy drinkers. He
allows statutory and some voluntary was prone to violent outbursts.
Which Organisations are institutions, not normally associated Furthermore, he was thought to
Involved? with having a public protection be the subject of a personality
function, to take an active role in the disorder.
The Police, Probation and Prison collective task of problem solving
Services are the core “Responsible and using their resources to protect Risk Assessment:
Authority” for the MAPPA. On communities.
practical case management they This case was managed by
work with other agencies to share In cases where multi-agency work is Police, Probation, Community
information and assessments, considered to be the most Forensic (Psychiatric) Team, and
decide on the risk individuals pose, appropriate way of managing an Housing Dept. He was initially
meet to share plans and review offender safely, decisions are made assessed as posing a Very High
resulting actions. on the appropriateness of Risk of Harm to the Public.
accommodation and disclosure of
• Police ) Constituting the previous offences to family friends or On initial release this man re-
“Responsible neighbours. Conditions in prison offended by being drunk and
• Probation ) Authority” licences are often imposed which if disorderly and the Probation
• HMP (April 2004 onwards) breached, may result in the Service arranged his recall via
• Housing offenders recall. Psychiatric the Home Office. This action was
• Health services (managerial, treatment considerations could be carried out by the police.
clinical and commissioning) shared with other agencies to ensure
• Social Services offenders are dealt with Risk Management Plan
• Youth offending teams appropriately.
• Close Supervision by
How does MAPPA Work? Meetings are minuted and decisions Probation Service - On
recorded. Actions planned are release, a major focus was his
The day to day management of the reviewed in subsequent meetings. alcohol abuse and the sexual
MAPPA system is the responsibility The whole process is subject to audit assault.
of the MAPPA Co-ordinator, a new and review to identify good practice Alcohol advice agencies saw
post created during this last financial as well as areas for improvement or him as a condition of his
year and which was filled in January development. supervision.
2004. The Co-ordinator, who is
based at the Police Headquarters in
Re-housing - It was psychiatric services who identified and involved in the
determined that he would be prescribe him medication and process, so that as much as possible
more of a risk to the with alcohol treatment agencies. within legislation and resources
community if he became When he appeared in court he available, can be accomplished to
homeless and unable to was made subject of a protect the public.
receive regular contact that Community Rehabilitation Order
would be necessary. He was for three years operated by the 3. Mr C aged 50
re-housed. Probation Service.
Overt monitoring of his Background
situation - Joint visits at his Risk Assessment
home was undertaken by the Convicted sex offender. Assault
Police and Probation Services Initially Mr B was assessed as on his infant son. He was made
to check on his high risk while he was in an the subject of a 2 year
circumstances, assess his unstable lodgings situation and Community Rehabilitation Order
attitudes, behaviour and was drinking. Inter-agency liaison with a condition to attend a Sex
intentions. involved Police, Probation, Offender Treatment Programme.
Housing, Environ-mental Health He has no other convictions. His
Public Protection Outcomes: and Psychiatric Services. wife and other children have
ceased to have any contact with
Mr A ceased drinking and no Risk Management Plan him.
longer associated with his
former friends. Probation supervision through Risk Assessment
The community was frequent meetings
protected by stabilising a Enforcing his attendance for This case was discussed at an
man enabling him to find alcohol counselling assessment meeting with Police
motivation to change his Anger management work with and Probation officers. A full
behaviour. the probation officer Local Level Risk Management
The agencies were able to Medication by the psychiatric Meeting with other agencies was
share assessments of his services not needed as Social services
actual offences so that they Home visits by the police to had been involved in the child
were able to establish that check on risks to those with protection assessments at the
he was not a sexual risk to whom he lived with. time of Mr C’s arrest. He was
children. Practical assistance from the identified as High Risk to
Overall risk was reduced to council to clean up his Children.
medium, which, from very lodgings was unusually
high, is substantial. arranged, to stabilise him and Risk Management Plan
It is believed he has not his wider domestic
offended since re-release a arrangements. • Supervision by the Probation
year ago. Service - Sex Offender
He has finished his statutory Public Protection Outcomes Treatment Programme
contact with the Probation • Accommodation to be
Service however; he will Re-housing away from the checked for suitability - Mr C
remain subject to sex victim found lodgings which were
offender registration and Referral of the victim for checked out by Social
hence monitoring by the support. Services.
Police for another 5 years. Reduction of alcohol use. Information sharing to other
Reduction of general risk to relevant agencies - He
2. Mr B aged 40 the public. disclosed some high risk
behaviour which was shared
Background This case continues without a neat with a neighbouring county as
conclusion but illustrates agencies he visited the seaside.
Convictions for assault on his ex- working together to support an Prohibition on particular
landlady whist drunk. He has individual in the community who behaviour - He was instructed
previous conviction for violent would otherwise be more of a risk. not to visit the seaside.
offences. He has links with the Those, with whom he lives are
Overt monitoring of his Identification of a potential his behaviour, situation and
situation – Police and individual victim enabled her attitudes.
Probation will continue to visit to be safeguarded.
him at home. Mr C has now moved within His case is to be reviewed again
the county; however his sex under the MAPPA system. The
Public Protection Outcomes offender record goes with him. risks he poses will be reassessed
Supervision by both Police and if needed, a multi agency
Mr C’s contacts with another and Probation officers will meeting would look at further
sex offender identified and continue to actively monitor actions to protect the public.
specifically prohibited


5. Strategic Management Board

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


6. Looking Ahead for 2004 and Onwards

Victims crime. This and the prevention of involvement of the police Domestic
further people becoming victims lie Violence Units, in interagency
In addition to the work to tackle behind the MAPPA system. discussion meetings and risk
offenders, the Government has management planning will continue
rightly placed much emphasis upon The involvement of Victim Liaison and develop. The attention paid to
meeting the needs of victims of Officers in appropriate cases and the the needs of specific identified
victims and potential victims will also brought into the system is to Violent Offenders
continue. understand the implications of the
outcomes of these assessments for The MAPPA will continue to work
The Domestic Violence Crime and their own work with offenders. All with the Public Protection Unit of the
Victims Bill will build on the existing agencies need to look at the National Probation Service and
Victims’ Charter and set out specific particular circumstances and develop the support given to
responsibilities that each criminal personal details behind the terms, accommodation providers for extra
justice agency and Victim Support dangerous or violent offender, let staff to help safely re-integrate
must provide to victims. It is alone sex offender, to make offenders who can be otherwise
expected that this will have an appropriate judgements as to which difficult to place. Special conditions
impact on the work of the MAPPA. are the “critical few” and which are can be imposed on some of these
the many who they can work with offenders including electronic
The Critical Few safely and effectively within normal monitoring of curfew for up to 5
procedures. years after release. A long term
The focus on work with sexual, focus of work in the MAPPA is the
violent and dangerous offenders will The Sexual Offences Act 2003 small numbers of offenders who
continue with an emphasis on have to be released at the end of
identifying what has been termed the This legislation affects the operation determinate sentences while they
“Critical Few” who need particular of the MAPPA system in a number of are recognised as still presenting a
attention, care in handling and who ways. risk to the community.
demand particular resources, or who
may cause great concern to the Existing and new sex offenders are Duty to Co-operate:
public. These offenders may liable to be monitored by the police
present a higher risk of harm and are and have to report to them on their The Criminal Justice Act 2003
more unstable whilst being known to activities more so than in the past. introduces a ‘Duty to Co-operate’
many agencies. Particular attention This will enable a quicker response with the MAPPA, which requires the
is given to identifying these to an offender putting themselves responsible authority to collaborate
individuals and to target resources to into a higher risk situation, which with each of the following bodies:
protect the public through their could well trigger inter-agency action
effective management. Many by the MAPPA, or Child Protection • Social Service Departments (or
offenders qualify for inclusion into Procedures. equivalents)
the MAPPA system, but do not • Primary Care Trusts, other NHS
necessarily present a high risk of A range of new civil preventative Trusts and Strategic Health
serious harm. To identify them and orders will be available from May 1st Authorities
only allocate resources appropriate 2004. These will replace the existing • Job Centres
to them, allows a more Sex Offender Orders and allow more • Youth Offending Teams
comprehensive focus on the ‘critical appropriate targeting of offenders, • Registered Social Landlords,
few’. who can be included in the MAPPA which accommodate MAPPA
process through offences committed offenders
Understanding Risk abroad, prohibited from travelling • Local Housing Authorities
abroad to commit offences or
• Local Education Authorities and
The development of risk assessment brought into the MAPPA system
• Electronic Monitoring Providers
and management has progressed in before committing offences when
recent years. There are now exists, suspected of “grooming” children for
This will set on a statutory footing
tried and tested risk assessment later sexual abuse.
tools which when used by skilled the good practice evidenced in the
trained staff, enable assessments to More rigorous notification close inter-agency working in
be made, which research has shown conditions for the sex offenders Wiltshire and Swindon over the last
to be sound. Police, probation, New civil preventative orders few years
youth offending team staff and available for the monitoring of sex
prison staff all now use such tools. offenders
A challenge for other agencies
7. Statistics

Wiltshire Annual Report Statistics for 2003/2004

with year on year comparisons for 2001/02 and 2002/03

Registered Sex Offenders (RSO) MAPPP Offenders within MAPPA

01/02 02/03 Diff % 03/04 Diff % 02/03 03/04 Diff %

Number of RSO 185 255 70 37.8% 234 -21 -8.2% Number of RSOs 36 9 -27 -75.0%
RSO per 100k 30 42 12 40.0% 38 -4 -9.5% Number of V&OS 21 6 -15 -71.4%
RSOs cautioned 5 13 8 160.0% 12 -1 -7.7% Number of OthO 28 5 -23 -82.1%

Violent and other Sex Offenders (V&OS) Outcome measures of MAPPP activity

01/02 02/03 Diff % 03/04 Diff % 02/03 03/04 Diff %

Number of V&OS 200 214 14 7.00% 129 -85 39.7% Return to Cust.
Breach of licence 9 1 -8 -88.9%

Other Offenders (OthO) Returned to Cust.

Breach of SOO 1 1 0 0.0%
01/02 02/03 Diff % 03/04 Diff %
Number of OthO 5 28 23 460.0% 78 50 178.6% Charged with further
serious offence 1 0 -1 -100.0%

Statistics relating to Court Orders MAPPA calculations for 2003/2004

01/02 02/03 Diff % 03/04 Diff % Category Result

SOO applied for 1 5 4 400.0% 0 -5 -100.0%
SOO granted 1 5 4 400.0% 0 -5 -100.0% Total MAPPA offender population in this Area 441
ISOO applied for 0 0 0 0 0 0 0 Total MAPPP offender population in this Area 20
ISOO granted 0 0 0 0 0 0 0 % of MAPPA that are MAPPP Offenders 4.50%
RO granted 0 3 3 0 2 -1 -33.33%
For the purposes of calculating the number of Registered
Sex Offenders per 100,000 head of population, the PPU
SOO - Sex Offender Order, ISOO - Interim Sex Offender Order, have used the results from the 2001 census. The head-
RO - Restraining Order count for Wiltshire was reported as 613487.

MAPPP Population in 2004

Registered Sex Offenders


220 30%

45% RSO
120 V&So


185 255 234

2001/2002 2002/2003 2003/2004


Statistics Contd.

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

Wiltshire Probation Area Address Phone

Assistant Chief Officer (Specialist Services) Rothermere 01225 781950

Bythesea Road
BA14 8JQ

Community Safety and Criminal Justice Department Address Phone

Wiltshire Constabulary London Roadm 01380 722341

SN10 2DN

Victim Support Address Phone

Area Manager Victim Support Wiltshire 01380 729476

31a The Brittox
SN10 1AJ