Keeping Communities Safe

Multi-Agency Public Protection Ar rangements Annual Repor t 2004–5


Foreword Introduction Key Achievements Keeping Communities Safe The Role of the Prison Service Lay Advisors How the MAPPA operates locally Who’s Who in MAPPA Contributing to the MAPPA process Helping Victims of Crime Risk Management Case Histories Understanding the Statistics Statistical Information Strategic Management Board Contacts Appendix A p. 4 p. 5 p. 7 p. 9 p. 13 p. 17 p. 19 p. 21 p. 23 p. 24 p. 26 p. 27 p. 28 p. 1 p. 2 p. 3



Ministerial Foreword by Baroness Scotland

The work being undertaken to improve the safety of communities through the Multi-Agency Public Protection

Arrangements (MAPPA) is vitally important and a priority for government. The annual reports for 2004/5 provide

evidence of that active engagement. Violence and sexual abuse are unacceptable wherever they occur and it is

evident that through MAPPA such offenders are identified and better managed than ever before. As the number of the local Police, Probation and the Prison Service, is addressing these additional demands by strengthening local

offenders within MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that is partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where they breach their licence or order, and using the findings of research and inspection to strengthen national guidance and local practice.

Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping

last year has clearly enhanced the ability of a number of agencies including health, social services and housing to

to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the

our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me, one of the most exciting developments in this arena in the last 12 months has been the appointment of lay these lay advisors represent a diverse, able and committed group of people who are now helping the statutory

work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in

together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA

advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively. Without a growing sense of public knowledge and confidence about this work much of the benefits of the public protection arrangements will be lost.

I hope this annual report will be useful, informative and re-assuring to local communities. The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.


INTRODUCTION This report provides good evidence that Multi-Agency Public Protection Arrangements (MAPPA) are robust and well supported by all partners. In Cambridgeshire during the past year there has been further strengthening of MAPPA as set out in the body of the report. One of the new provisions, that is particularly welcome, is the introduction of the lay advisors. They bring a public perspective to the work of MAPPA and help to ensure that the Arrangements are

a result of the implementation in April 2004 of the relevant provisions in the Criminal Justice Act 2003 - and these are

transparent. The primary principle of the National Probation Service in Cambridgeshire, which underpins all its work, is the protection of the public. This report on the work of the MAPPA in 2004/5, I believe, demonstrates how all partners working closely together are able to significantly improve their agency’s contribution to public protection in Cambridgeshire.

John Hughes Chief Officer Of Probation

This report demonstrates Cambridgeshire’s multi - agency approach to the management of sex offenders. Cambridgeshire Constabulary is committed to supporting our partners in achieving this goal. The past twelve months have seen a more focused approach to MAPPA and this has been strengthened by the implementation of the Criminal Justice Act 2003. The introduction of Lay Advisors is a significant step towards ensuring that our work is subject to independent scrutiny and we welcome and support this. Over the next 12 months and professional approach to the management of those who present a risk to members of our community.

we will continue to strengthen the excellent relationship that we have forged with our partners to provide a co-ordinated Julie Spence Acting Chief Constable Cambridgeshire Constabulary

This report covers the first full year where the Prison Service has undertaken the role as one of the three responsible authorities in cooperation with our MAPPA partners. In Cambridgeshire the Prison Service representation is undertaken by the Governor of Whitemoor prison near March. Active involvement in MAPPA allows the Prison

Service to develop one of its primary functions of protecting the public, with the Criminal Justice Act 2003 formalising a framework for what had been existing practice in the management of dangerous offenders. This report evidences the Cambridgeshire public that their safety is the key objective of these agencies. the success of partnership working across criminal justice agencies in the county and is, hopefully, a reassurance to Danny McAllister Regional Prison Manager



The 2004/2005 Annual Report of the Multi-Agency Public Protection Arrangements (MAPPA) highlights the key achievements that have been undertaken during the year, and explains how the different agencies are working together to protect our communities. The Criminal Justice and Court Services Act 2000, amended by the Criminal Justice Act 2003 (sections 325 – 327), required Cambridgeshire Constabulary and the National Probation Service, Cambridgeshire, to place the local protection arrangements on a statutory footing. The Prison Service has now joined this statutory Responsible Authority.

During the last 12 months there has been a range of significant new developments that have improved the effectiveness of MAPPA in its work to safeguard the public. The work has been guided by the implementation of the CJ Act 2003 that contained a provision to 'impose a duty to co-operate' on various agencies, and these new structures with the MAPPA came into effect on 1st April 2004. In 2004/2005 a programme of work has developed the new Memorandum of Understanding as required under Further Guidance from the Home Office. The memorandum replaces earlier protocols and has clarified our understanding of the ‘duty to co-operate' by outlining each party's responsibilities and duties towards the other. The memorandum includes the agreement that agencies will: - Share information to prevent serious harm to a third person - Have representation at a senior level at the MAPPA Strategic Management Board - Attend MAPPA meetings as required and engage actively with the process - Identify a named manager within each partner agency to oversee the operation of the MAPPA arrangements - Co-operate in the implementation of action plans for the management of individuals who have been registered under the MAPPA - Keep information secure - Take part in an annual audit of this memorandum in order to ensure it remains fully effective - Be fair to fellow partners when dealing with the media - Work to the principle that all personal data remains the property of the disclosing agency - Contribute resources, as negotiated, to support the operational management of the MAPPA - Commit appropriate resources for the implementation of MAPPA action plans - Provide advice where there may be no direct involvement but the agencies' expertise may assist, e.g. in advising about how specific services can be accessed.


The Prison Service, alongside Police and Probation, is now part of the Responsible Authority that is established in each of the 42 Areas in England and Wales. The enhanced role of the Prison Service in the MAPPA is in recognition of the part it plays in protecting the public. While offenders are serving their custodial sentences, the Prison Service also works with them to address the causes of their offending behaviour; and undertakes further programmes of work to assist their successful resettlement back into the community. As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs). The SMBs monitor and evaluate the operation and performance of the MAPPA in the 42 Police/Probation Areas. The Prison Service estate is configured differently and does not conform to these designated areas. The Prison Service estate, with its establishments, is contained within 12 geographical areas and two functional areas – the High Security estate, and Contracted Prisons. For this reason the Prison Service representation on SMBs varies across the country, although each Prison Service Area Manager has agreed with their SMB on how the Service will contribute both strategically and operationally to their local MAPPA. The main focus of the Prison Service contribution is at an operational level. A number of measures have been put in place across the prison estate to ensure that this will be effective and has resulted in: - Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk - Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with Police and Probation colleagues - All relevant risk management information being provided to multiagency meetings which help plan an offender’s release - At least three months notification to Police and Probation of the expected release dates of those offenders who have been referred to the Multi-Agency Public Protection Panel (MAPPP), and at least six weeks notification of those being managed at Level Two risk meetings - No changes to release dates or arrangements being made without prior consultation with Police and Probation. Playing an effective role in the multiagency risk management of MAPPA offenders requires good communication between criminal justice partners. The Prison Service has taken steps to ensure that there are dedicated points of contact for public protection matters at both area level and in every prison establishment. These points of contact are published together with Police and Probation contacts to ensure better communication across the Responsible Authority. The Prison Service is now an integral part of the Responsible Authority and plays a vital role in the protection of the public.


This year has also seen the recruitment and appointment of Lay Advisors to the Strategic Management Board. CAROLINE BOLTON-SMITH As a newly recruited Lay Advisor to the MAPPA I’d like to share my initial experiences and views. Recruitment consisted of multiplechoice questions to test reasoning skills and my attitudes to a wide range of social and community issues. The interview questions probed for any immediate personal reasons for wishing to contribute to MAPPA (I have none) and my level of commitment. This was followed by an introductory weekend training course in Birmingham with other Lay Advisors from around the country. We were a mixed group, ranging from younger health-care workers to full-time parents and older people from professional backgrounds with quite a few from a health/social care setting. The training weekend was an opportunity to hear the differing views of our role as Lay Advisors, as each SMB runs slightly differently. A particular issue was how, and the extent to which we are accessible to the public we are representing. The talks provided really valuable information about the research into why and how the ‘person next door’ can take the path to becoming a sexual offender against children. Detailed discussions of how an offender’s risk to the community is assessed, and information about how the majority of these offenders can respond positively to treatment programmes, provided both considerable reassurance in the process of MAPPA, and highlighted the need for a greater number of places for sexual offenders on intensive residential treatment programmes. I have attended one SMB meeting so far and I am only just beginning to find out how the Responsible Authorities and local organisations, with a ‘duty to cooperate’, work together effectively. During my short term involvement with the SMB, the lead Police officer has already been moved on and this has given me an early warning of some of the challenges the MAPPA face. I am concerned that lack of continuity of knowledge and focus within any one of the Responsible Authorities will make the role of Lay Advisors even more difficult. I have a background in science research and experience of contributing to Annual Reports that contain complex sets of data. I feel that I will bring a critical and questioning approach to my role that I will direct towards the procedures that the professionals perhaps take for granted. I want to ensure that the best possible choices are made to reach the balance between individual rights and public safety based on all the available evidence, and contributing to the clarity of the information and relevance of the annual MAPPA report to the public. With further national training being planned and local training being arranged, I am able to look forward to performing my role of Lay Advisor with increasing effectiveness in the future.

The importance of managed inclusion of ex-offenders in the community after treatment, with close support and monitoring, rather than exclusion and isolation, was very persuasive and based on real evidence from work in the UK and other countries. For example we heard about Stop it Now! a project that runs a National telephone Help Line (0808 1000 900) which aims to prevent child sexual abuse. It provides advice to adults who recognise that they have an unhealthy attraction to a particular child, or to children in general, and want to stop themselves from causing harm. It also provides advice to people who have a concern about a friend or family member.


Members of the public can send comments and questions about the MAPPA to the Lay Advisors who can put forward these views during the meetings of the board.

A selection of the comments received will also be featured in next year’s Annual Report.

Lay Advisor – MAPPA, c/o National Probation Service, Cambridgeshire, 1 Brooklands Avenue, Cambridge CB2 2BB


Cambridgeshire has been at the forefront of partnership work that manages high risk offenders. The first Dangerous Offender Conferences were held in 1997 with the establishment of a pilot project in Peterborough.
Police and Probation Officers were able to come together to discuss and monitor the cases of offenders who had committed serious sexual or violent offences. The two criminal justice agencies were later joined by Social Services and Housing representatives. The pilot scheme was further Public Protection Panels (the MAPPPs). extended to include the two other Police divisions. Current legislation ensures the highest risk offenders are formally discussed at regular Multi-Agency

The Police and Probation Services are also required to: - Establish strategic management arrangements for reviewing and monitoring the effectiveness of the MAPPA - Establish systems to ensure that only those “critical few” offenders who pose the greatest threat to the public are referred to MAPPPs - Establish systems for information sharing and inter-agency collaboration in respect of all relevant offenders - Consider resource allocation and the need for multi-agency training - Develop strategies for community and media communications - Publish an Annual Report describing local MAPPA, including statistical information.


The MAPPA manages a three tier system that ensures that the most dangerous offenders receive the greatest degree of scrutiny and oversight.
Level One
Offenders at this level are usually classed as at a low or medium risk of re-offending. The large proportion of all MAPPA offenders are likely to be managed at Level One by one agency without actively or significantly involving other agencies.

Level Three
The ‘critical few’ are offenders who are assessed as being at high or very high risk of causing serious harm and are managed by a range of agencies sitting on the MultiAgency Public Protection Panel. This small group presents risks that can only be managed by a plan that requires close cooperation at senior level or where the case is exceptional because of media scrutiny and/or public interest in the management of the case. The MAPPA in Cambridgeshire has been developed through the appointment of a MAPPP Manager, a Senior Probation Officer, who was seconded to work at Police Headquarters. The location of the MAPPP Manager with the Police has been a major success in developing information sharing between Police and Probation. The post of the MAPPP Manager is jointly funded by the two agencies, as is the position of MAPPA Coordinator. The coordinator is an administrative role that oversees the organisation of formal meetings as well as producing high quality minutes and risk management plans. Formal meetings are held regularly in each of the Police Divisions. The manager chairs the meetings where members concentrate on offenders living in the local

Level Two
The management of offenders in this category is handled at Local

Risk Management Meetings where the active involvement of more than one agency is required in

managing the risk. The level of risk is more complex than Level One, but does not require the intensive supervision of the Multi-Agency Public Protection Panel (MAPPP).

community, or about to be released from prison. These meetings are called Local Risk Management Meetings and are at Level Two. Level Three meetings for the “critical few” are called on an

occasional basis when cases arise. In 2004/5 only three offenders were managed for a time at this level. This is in line with Home few” should be referred to the Protection Panel. Office advice that only the “critical Level Three Multi - Agency Public


Protecting the Public from sexual and violent offenders is best achieved by effective joint working between all the relevant statutory and voluntary bodies. The private sector can also have a role to play. A range of agencies has joined Cambridgeshire Police, the National Probation Service, Cambridgeshire and the Prison Service in working together under the MAPPA. The following (‘duty to co-operate’ agencies) are signing the new Memorandum of Understanding: Cambridgeshire Social Services and Office of Children and Young People’s Services Peterborough Education and Children’s Department and Peterborough Adult Social Care Peterborough Youth Offending Service Cambridgeshire Youth Offending Service Peterborough City Council Housing Department Cambridge City Council Housing Department East Cambridgeshire District Council Housing Department South Cambridgeshire District Council Housing Department Fenland District Council Housing Department Huntingdon District Council Housing Department Hereward Housing Association Ltd Huntingdonshire Housing Partnership Muir Housing Nene Housing Society Cambridgeshire & Peterborough Mental Health Partnership NHS Trust. Axiom Housing Society Warden Housing Association Cross Keys Housing Association Premier Monitoring Services Primary Care Trusts for Huntingdonshire, Greater Peterborough, East Cambridgeshire & Fenland, Cambridge City & South Cambs District Jobcentre Plus. VOLUNTARY The following voluntary agencies are also working with the MAPPA: Bridgegate Turning Point Drinksense Cambridge Cyrenians


Agency representatives attending a Level Two meeting that occurs monthly in all three police divisions and is chaired by MAPPP Manager Carol Ashford. Representatives from the Police, housing, social services and mental health attend each meeting. Relevant case managers and other workers. who are actively involved with the cases being discussed, are also invited to take part. Decisions are taken concerning new cases, and members can review the events and progress of on-going work with offenders previously considered at the Level Two meeting.


SENIOR PROBATION OFFICER CAROL ASHFORD ORGANISATION: Cambridgeshire Probation Area TITLE: MAPPP MANAGER As the MAPPP Manager for Cambridgeshire I chair meetings across the county. I am always impressed by, and grateful for, the commitment shown by my colleagues in the various agencies. I am convinced that by working together, and remaining focused on practical risk management, we can continue to make an important contribution to the safety of our local communities.

DETECTIVE INSPECTOR DAVE GRIERSON ORGANISATION: Cambridgeshire Police. TITLE: Divisional Intelligence Manager, Public Protection Unit A single agency would not have the necessary resources to be able to deal with the vast majority of the people that are MAPPP registered. We are presented with some quite complex cases that require input from many of the organisations represented. There is often a preventative element that is built into the work with the offender. For example we may propose that the individual attend a specific Probation programme that has been developed to target offending behaviour. Working within the MAPPA means that we make a collective agreement that individual agencies adhere to. No-one wishes to let down the process by failing to deliver.

DETECTIVE CONSTABLE MARTIN WILLIAMS ORGANISATION: Cambridgeshire Police. Working in the Public Protection Unit My responsibilities involve the monitoring of sex offenders and other dangerous offenders. This approach has to be extremely thorough. We are monitoring just about every aspect of their lifestyle including who they speak to, who are their associates, what are the patterns and trends that are emerging in their lives. Our information helps inform the decisions that are taken on individual offenders. There are four categories of risk: low risk, medium, high and very high and the selected rating determines the amount of resources that are allocated to an individual offender.


PROBATION OFFICER ADRIENNE DRURY ORGANISATION: Cambridgeshire Probation Area TITLE: Probation Officer I attend meetings when I am supervising a case requiring a high level of intervention from different agencies. I can up-date members on any new developments.

PROBATION OFFICER JACIE DRABBLE ORGANISATION: Cambridgeshire Probation Area TITLE: Probation Officer I am a newly qualified Probation Officer and I am co-working the case of a dangerous offender with a more experienced colleague. I attended the meeting to improve my understanding of how the MAPPA works. I have been an observer at other panel meetings and seen how the different agencies work so well together. The notes that are circulated afterwards are very useful.

LINDA PATRICK ORGANISATION: Forensic Mental Health and Court Diversion Team TITLE: Social Worker Our role is to carry out assessments on individual offenders to ascertain their mental health requirements following their release into the community. This may involve arranging the required medical support and reliable access to medication. We seek to manage and minimise their level of risk in the community.

DETECTIVE CONSTABLE ANDY MULLIGAN ORGANISATION: Cambridgeshire Police. Working in the Public Protection Unit My first responsibility is to maintain the Cambridgeshire Sex Offender Register within VISOR (Violent and Sex Offender Register), a national computer system that has been rolled out nationwide to all Police forces. Information is regularly updated on each registered individual. My second responsibility is to work in partnership with the National Probation Service and the Prison Service to manage the risk that certain individuals pose to the public and evolve an action plan that meets these concerns. For example, I may receive a 90-day notification from the Prison Service that a potentially dangerous prisoner is going to be released. We have to consider how to work with and supervise this offender to offer the maximum protection to the public.


NATIONAL PROBATION SERVICE, CAMBRIDGESHIRE The National Probation Service, Cambridgeshire, makes a wide ranging contribution to the work of the MAPPA. This includes: - Initial assessment of offenders who come before the courts for offences of sex or violence. Probation staff use a standard assessment tool, the Offender Assessment System (OASys). This assessment process also enables the report writer to determine an offender’s suitability to attend the Sex Offender Treatment Programme - Supervision and management of offenders placed on community orders, including action to ‘breach’, or in other words, to return an CAMBRIDGESHIRE CONSTABULARY The Cambridgeshire Constabulary contributes to the MAPPA through investigating crimes that come to light through the information sharing activities of the MAPPA and taking appropriate action. This includes: - Having dedicated Sex and Dangerous Offender Intelligence Officers on each of the three Divisions who focus on public PRISON SERVICE The Prison Service has become part of the Responsible Authority for the MAPPA, and there is good liaison and established information sharing with HMPs Littlehey and Whitemoor. Similar liaison systems are being developed with the newly opened prison in Peterborough, which is run by UKDS. This prison will eventually house the majority of Cambridgeshire offenders, and the work to establish protocols for information sharing and develop sound risk management practices will be an essential priority in the year ahead.

protection and the management of high risk offenders - Using a nationally agreed Risk Assessment Tool (Risk Matrix 2000) to prioritise Registered Sex Offenders and visit them according to agreed policy - Having a dedicated officer holding the constabulary responsibility for the new National Register of Sex Offenders (VISOR) and locating this officer with the MAPPP Manager to ensure prompt and effective information sharing

offender to court or prison who has failed to comply - Delivery of Specialist Accredited Programmes to address offending behaviour, including the nationally recognised “Thames Valley” Sex Offender Treatment Programme

- Work with prisoners before their release, and the supervision and management of offenders on licence living in the community, including taking necessary action to recall individuals back to prison - Provision of accommodation in National Probation Service Approved Premises for offenders who need an enhanced level of supervision.

- Jointly chairing the Strategic Management Board and jointly funding the post of the MAPPP Manager and the MAPPA Coordinator with the Probation Service.


SOCIAL SERVICES The Cambridgeshire MAPPA has links to the Cambridgeshire County Council and Peterborough City Council. Both councils are committed to creating safer communities by working in partnership with statutory authorities. Social Services carry out serious case reviews in accordance with the provisions laid down in Working Together (DoH 1999). Social Services provides a comprehensive Children’s Protection Training Programme for practitioners whose work involves the safeguarding of children’s welfare. Child Protection Child Protection is a lead responsibility for the councils. Their responsibilities are undertaken in partnership with the agencies that make up the Cambridgeshire and Peterborough Area Child Protection Committees. These responsibilities include : - Undertaking enquiries with the Police into allegations of abuse of children - Organising multi-agency child protection conferences - Providing key workers for all children on the Child Protection Register - Safeguarding and promoting the welfare of children in need

- Ensuring with Area Child Protection Committee partners that the procedures for safeguarding the welfare of children are up to date and effective - Promoting “Keeping Children Safe” work in all child care settings e.g. schools, pre-school settings, after school clubs - Ensuring safe recruitment practices are implemented across the councils and promoted in all childcare settings. Protection of Vulnerable Adults from Abuse Cambridgeshire Adult Services and Peterborough Adult Social Care have the lead role in ensuring that statutory agencies work in partnership to protect vulnerable adults from abuse. The Cambridgeshire and Peterborough Vulnerable Adult Protection Committees bring together representatives from the statutory, voluntary and private sectors responsible for working with and providing services for adults. The responsibilities of the committees include: - To develop, implement and monitor local policies, guidance and procedures for inter-agency work - To improve ways of working in the

- To improve the quality of adult protection work through further development of training opportunities and programmes - To ensure agreement and understanding across agencies about operational definitions and thresholds for intervention - To audit and evaluate how well local services work together to protect vulnerable adults.

YOUTH OFFENDING SERVICES These services operate in Peterborough and Cambridgeshire and have the primary aim of preventing youth offending amongst 10 – 17 year olds. The Youth Offending Services are statutory partnerships led by the local authorities and involve a multiagency approach, which includes the Police, Probation, Health and voluntary sector services. Programmes of supervision and support are developed and delivered to offenders in the community and in youth offender institutes. There is a growing preventative element that provides for other agencies to intervene with younger children. Only a few young offenders will

light of national and local experience and research

come to the attention of the risk management arrangements, but those that do, will have difficult and complex needs.


The Multi-Agency Public Protection Arrangements give a very comprehensive view of the individual offenders. Housing is an important part of any supervision package. Our department is very involved in discussing the accommodation needs of offenders and working with other agencies, such as the Police, to see if they are suitable to be offered housing.


STATUTORY AND VOLUNTARY HOUSING One of the most difficult and challenging issues surrounding public protection is the provision of accommodation for released prisoners. The number of statutory and voluntary housing agencies that have signed up to the MAPPA Memorandum of Understanding illustrates the importance of finding suitable accommodation. Many serious offenders are initially released to National Probation Service Approved Premises. These places are limited and in high demand. Offenders cannot stay in Approved Premises indefinitely, and will eventually move on to further suitable housing at the appropriate time.

HEALTH SERVICES The involvement of health care professionals is highly beneficial in the work of the MAPPA. The Cambridgeshire & Peterborough Mental Health Partnership NHS Trust has signed up to the original protocol and will sign the new Memorandum of Understanding. A local Community Psychiatric Nurse (CPN) or Psychiatric Social Worker now attends the Local Risk Management Meetings (LRMM) in each of the Police areas. The involvement of the CPN is proving invaluable in ensuring there are good practical arrangements for newly released prisoners to receive their prescriptions for medication, or helping with quick access to psychiatric assessment. Work on a multi-agency basis is also targeting the sizeable group of offenders who exhibit worrying, and sometimes dangerous behaviour, who “fall between” the criminal justice and the mental health system. Further work is being done on a new generation of protocols between the Cambridgeshire NHS Mental Health Trust and the other agencies under the MAPPA. Primary Care Trusts (PCTs) are now signatories to the new Memorandum of Understanding. MAPPA ensures information is sent to GPs as necessary to inform them of particular risks associated with their patients. There is very good communication between the local GP practice and those responsible for offenders in Approved Premises provision.

VOLUNTARY AGENCY ROLES Bridgegate Bridgegate provides advice, information and counselling to drug users, concerned others and professionals. They have specialist projects for young people and drug using parents. Bridgegate also manages the Communities against Drugs Project that works closely with the Police and communities. They also work closely within the Child Protection system and with many statutory and non-statutory partners. They provide services to the Probation Service, Peterborough Youth Offending Team and Cambridgeshire Youth Offending Service. Turning Point Turning Point is a leading national charity that helps the socially excluded build more independent lives. The organisation provides locally tailored services helping people recover from the effects of substance misuse and provides care and support for individuals with mental health problems or learning disabilities. There are projects in Cambridge and in Huntingdon, and since 1998 a service has been provided for the whole of Southern Cambridgeshire. Both projects work closely with and alongside statutory agencies, assisting them in the discharge of their responsibilities under the Mental Health Act and the NHS and Community Care Act. They also have a history of liaison with the Probation Service, working with offenders who have mental health problems.

A great deal of work is undertaken to place offenders as sensitively and safely as possible in local accommodation. Housing agencies rely on an individual’s risk assessment report and other information to help them make informed and responsible decisions. Supporting People legislation has created opportunities to provide accommodation support through workers that will keep in regular touch with offenders in community provision. These workers provide another way of monitoring offenders’ activities and helping them lead responsible lives.

Bridgegate and Turning Point have both signed up to the original protocol. The two agencies have agreed to work on a case by case basis with the MAPPA. Drinksense and Cambridge Cyrenians have become involved at an individual case level by providing support for individuals that contributes to risk management plans.


The Criminal Justice and Court Services Act 2000, which set up the MAPPA, also consolidated earlier developments concerning victims of crime. The Probation Service offers face-to-face contact with a member of the service to the victims of all those sentenced to 12 months or more for crimes of sex or violence. The purpose of the Probation Service's work with victims is to: - Provide victims with general information about criminal justice and custodial processes - Consult victims about whether they wish to provide information relevant to the consideration of any requirements or licence conditions placed upon the offender on his or her release from custody - Consult with victims about whether they wish to be informed about those licence conditions - Transmit any such information put forward by victims to the authority considering the offender's conditions of release - Inform the victim of any conditions or requirements attached to the offender's release, which are relevant to contact with the victim or his family, and any other information. The decision to engage with the Probation Service and, at what stage, is made by the victim.

One of the most important tasks involving the MAPPA is to ensure that past victims are not put at risk again when an offender is released. Victim issues are featured as part of every risk management plan. The Probation Service’s contact with victims of crime is primarily about the giving and receiving of information. There are other agencies involved in assisting victims, including Victim Support, who offer a free and confidential service, whether or not a crime has been reported. Trained staff and volunteers at local branches offer information and support to victims, witnesses, their families and friends. Victim Support provides the Witness Service that is based in every criminal court in England and Wales, and offers assistance before, during and after a trial.

National Victim Support line 0845 303 0900 Prison Service Victims’ Helpline 0845 758 5112 More information about local contact points for Victim Support services can be found at the end of this report – Appendix A.


VICTIM’S VIEWPOINT Mother of two, Jane is trying to rebuild her life. Her former partner was a persistent offender who was released from prison and was on licence until July 2005. He was found guilty of a number of assaults against Jane. She said: “I don’t want him to have any contact with the children. I have an alarm in the house that is connected to the Police system. It makes me feel a bit safer. I have been kept informed of his progress, and I knew when he was to be released. “I am contacted when his case is being discussed, and although they don’t tell me what is said at the meetings, I am told of any changes to his circumstances. It is important for me to know what is happening.”


There are many facets to the daily work of the MAPPA partner agencies regarding their involvement with sexual and violent offenders. Accurate and reliable risk assessment lies at the heart of the effective management of offenders. All offenders under Probation supervision in Cambridgeshire, or released to the service on licence following a prison sentence, are subject to an initial assessment of Those who pose a “High Risk of Harm” must be referred to the Probation Officer’s Line Manager for a discussion about MAPPA referral. Probation Officers also use a more specialised assessment device – called Risk Matrix 2000 – to assess the risk of reconviction of Sex Offenders. Risk assessment at a formal meeting - a LRMM or a MAPPP is when the offender is discussed under the arrangements. This process ensures the risk assessment by the referring agency is updated after information has been shared by the other participating partners. The agencies involved will go on to set up a risk management action plan - and decide how often it should be reviewed.

their risk using the OASys assessment device. Any offenders assessed as “Very High Risk of Harm” must be referred to the MAPPP Manager for discussion at a formal meeting (generally Level Two, occasionally Level Three).

Police also use Risk Matrix 2000 to assess all sex offenders required to register with them. All sex offenders who score as “Very High Risk” are referred to the MAPPP Manager as a matter of policy, with “High Risk” being considered with the local inspector as a potential for referral.


“The panel meetings enable partnership members to share information under our confidentially agreements. This prevents an offender trying to play one agency off against another. We are all fully informed. I know that our joint work is having a positive impact on offenders’ lives and reducing the risk to the public.”


This first case shows how the agencies worked together to reduce the risks posed by Offender A who was nearing the end of a seven year sentence for manslaughter. He was initially dealt with as a Level Three MAPPP case.
Concern about Offender A increased as he came to the end of his sentence. His behaviour had been aggressive and non-cooperative towards prison staff and other prisoners. A direct assault on a governor and reports of threats towards family members led to a referral to the prison psychiatrist who said Offender A had a Paranoid Personality Disorder. The recommendation was that he should be closely monitored on release. There was no release address for Offender A and a further Level Three MAPPP meeting was called. Members agreed that an element of his behaviour could be linked to his anxiety about release. Offender A and his victim had been involved in the drug scene, and there was the real threat that he could be the victim of a revenge act. Police and Probation undertook a joint visit and discussed this issue with him – which began to secure his cooperation. A Consultant Forensic Psychiatrist visited Offender A who assessed his need for medication and ongoing mental health care in the community. The Consultant Forensic Psychiatrist also arranged a referral to community drug services. Offender A was told he was the subject of information sharing and risk management at Level Three. On his release Offender A stayed briefly in bed and breakfast accommodation before one of our housing partners offered a temporary one bedroom flat in an area some distance from the victim’s family and associates.

The threats to his family had no substance, and in fact the family was subsequently able to offer some practical support. On his release the Police assisted in getting Offender A several appointments with relevant professionals, and Offender A began to co-operate with them. The Police built on this co-operation by visiting his new address and keeping him under a form of surveillance. After reviewing the situation, the MAPPP decided that the work so far had reduced the imminent risk of serious harm that he posed. Offender A’s case was moved to Level Two monitoring, where ongoing information sharing ensured that any concerns could be dealt with promptly. He has not re-offended.

Most cases do not need to be referred to a Level Three MAPPP even when they pose considerable risk issues. Even serious sex offenders can be dealt with successfully at the Local Risk Management Meetings especially when the Police make full use of Sex Offender Prevention Orders. Offender B is an example of a sex offender who is being successfully managed in this way.
Offender B has an offence of Indecent Assault against his stepdaughter for which he served a sentence of imprisonment. Whilst on licence he completed a Sex Offender Groupwork Programme to target his offending behaviour. Offender B has a degree of learning difficulty and although he attended and participated in the programme, there were concerns that he had not fully understood the issues, and could not see how the new approaches could control his behaviour. Offender B left his partner and became involved with the wife of another sex offender who had children. She became pregnant. Social Services were heavily involved with both families, and it became apparent that although he had agreed to restrictions on contact, he was breaking them with the connivance of the new partner. This lead to an arrest for failing to register his address (as a Registered Sex Offender) and a referral to the MAPPA. Social Services commissioned a major assessment on Offender B that concluded that the risk of further sexual offending against children would be high. Through the activities of the MAPPA, the Police have enough information to apply for a Sex Offender Prohibition Order. Included in the conditions are: - Not to seek or initiate contact or communicate whether physical or verbal, directly or indirectly with any female under the age of 16 - Not to associate or befriend a female under the age of 16 - Not to visit or reside in any private dwelling where a female under 16 is present - Not to befriend or become involved with any female who is the parent or guardian of any female under 16. There are also specific conditions in relation to the children of both families. Offender B continues to be monitored and if he breaches any of these conditions of the Sex Offender Prevention Order, he risks receiving a maximum prison sentence of 5 years.


In some cases repeat offending is very likely and the surveillance and supervision is planned accordingly. The third case history updates a report that was featured in last year’s Annual Report, and illustrates how the work of the MAPPA sometimes involves on-going monitoring over a number of years.
Last year we reported how Offender C became obsessed with a girl who did not want a relationship with him. Over time his behaviour became more and more threatening until he was charged with harassment and a Restraining Order was issued. Breach of the order led to a prison sentence but he refused to cooperate with licence conditions and again tracked her down. He broke into the home where she was temporarily living. Offender C was sent back to custody, and was referred to the MAPPA at Level Two. A plan was put in place for his subsequent release that involved a major protection package for his victim, and included work to engage with him, and help Offender C to see how damaging his actions were. Once again he ignored licence conditions on release, and after a general alert in the relevant area, he was arrested and charged with a further breach of the Restraining Order. A Psychiatric Report was requested and the Consultant Psychiatrist asked for a remand into a secure medical unit to observe him and do a full assessment. The professional view was that Offender C did not have a mental illness, but he could be helped if he would agree to cooperate. Although Offender C took the first steps towards discussion of his problems, he would not agree to further work. He thought that prison would be an easier alternative in relation to continuing to live where he wanted. He was given a two year sentence and monitored throughout his sentence.

The prison shared information about his continuing refusal to discuss the problem, and his patterns of behaviour such as pacing up and down his cell. A Probation Officer visited Offender C and he indicated an increased willingness to co-operate on his release. His agreed licence conditions included living in Approved Premises, avoiding specified exclusion zones, and his victim was given protection. Offender C managed to comply for a couple of weeks but a failure to return to the hostel at curfew time led to an immediate recall. He was seen near his victim’s home and the Cambridgeshire Police helicopter used its night vision camera to locate him - and he was arrested.

international experts in the field of sex offender research. This programme has been designed to meet the needs of sex offenders living in the community who are subject to supervision either directly from the court or following release from prison. The TV-SOGP is essentially for males over the age of 21 who have committed any sexual offence, including internet offences. The treatment programme is based on structured work in a group setting, with additional work being undertaken with individual offenders where necessary. TV-SOGP uses cognitive behavioural methods to challenge how the thoughts, feelings and emotional responses of offenders link to their abusive behaviour. Key elements of the programme include: - Risk assessment and management - Making sex offenders aware of the damage caused to their victims - Challenging denial by encouraging offenders to take full and active responsibility for their sexual offending behaviour.

The Thames Valley Sex Offender Groupwork Programme (TV-SOGP) has been developed by


STATISTICS – what do they show about the work of the MAPPA in Cambridgeshire?
The three case examples give a snapshot of how offenders are monitored through the MAPPA. They show how practical and focused the work has to be, and how quickly actions are taken. The There were 13 “other offenders” identified by the agencies as having a conviction for an offence that indicated they were capable of causing serious harm, and referred to the Level Two Meetings. In total there were 558 offenders (as opposed to 540 in the previous year) who came under the totality of the MAPPA of whom a relatively small number - 98 (17.6%) were considered to pose a significant risk of harm that merited referral to the formal procedures for discussion and risk management. Nearly all of these offenders were dealt with at Level Two. There were only three Level Three cases. The statistics show that 15 sex As for Offender B, in the case examples, these can be used to set specific conditions to prohibit behaviour that in the past has led to offending. Eight of these orders were applied for and seven interim orders were obtained - all of which are expected to eventually result in full orders being made. A new notification order

number of offenders dealt with is predicted to rise year on year, in line with the overall growth of the number of registered sex offenders. Many sex offenders are registered for life so there will be a cumulative effect to the total. The following

section of the report gives a detailed breakdown between cases managed at Level Two (the Local Risk Management Meeting) and Level Three (the Multi - Agency Public Protection Panel). This year the figures show that the number of Registered Sex Offenders in Cambridgeshire, who all come under the MAPPA, stands at 353 as opposed to last year’s total of 322. The number of those (excluding Registered Sex Offenders) who had a 12 month plus sentence for a sexual or violent offence, and who were released into the community, was 192 – almost identical to the previous year (190).

enables the Police to apply for registration in this country of an offender who has committed a sexual offence abroad. One offender is now registered in this way. In the last year 20 offenders, out of the 98 managed through the MAPPA, were recalled. The number was just over 20% - and no one committed a serious sexual or violent offence. Our aim is to manage risk as actively as possible, and to remove offenders from the community when justified to prevent the commission of further offences. Overall the work of the MAPPA can be shown to have made an important contribution to “Keeping Communities Safe”.

offenders were prosecuted for breach of their requirement to register. They also demonstrate that recall is used to remove offenders from the community for behaviour that has breached their licence conditions – such as non compliance with a hostel curfew. On May 1st 2004 Sex Offender Prevention Orders (SOPOs) were introduced which replaced the previous Sex Offender Orders.


No. of Offenders
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i. The number of RSOs living in Cambridgeshire on 31st March 2005. i(a) The number of RSOs per 100,000 head of population. ii. 353 43 15

The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1st April 2004 and 31st March 2005. The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in Cambridgeshire between 1st May 2004 and 31st March 2005. The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in Cambridgeshire between 1st May 2004 and 31st March 2005. The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in Cambridgeshire between 1st May 2004 and 31st March 2005. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act 2003) living in Cambridgeshire between 1st April 2004 and 31st March 2005.


(a) 8 (b) 7 (c) 5


(a) 1 (b) 1 (c) 1


(a) 0 (b) 0

2. vi.



No. of Offenders
3. Category 3 MAPPA offenders: Other Offenders (OthO) the Criminal Justice Act (2003)) between 1st April 2004 and 31st March 2005. 13

vii. The number of ‘other offenders’ (as defined by Section 325 (2)(b) of

4. Offenders managed through Level 3 (MAPPP) & Level 2 (local inter-agency management) viii.The number of MAPPA offenders in each of the three Categories (i.e. (1)- RSOs, (2)- V&O and (3)- OthO above) have been managed through the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2004 and 31st March 2005. ix. The number of the cases managed at levels 3 or 2 (a) who were returned to custody for breach of licence (b) who were returned to custody for breach of a Restraining Order or Sex Offender Order (c) charged with a serious sexual or violent offence. a) b) c) Level 3 1 1 1 Level 2 48 35 12


V&O OthO

Level 3 1 0 0

Level 2 19 3



The original steering committee set up to develop the MAPPA was formally reconstituted as the Strategic Management Board in October 2003. The meeting is jointly chaired by Margaret Lowe, Assistant Chief Probation Officer, Detective Superintendent Garry Swaine for Cambridgeshire Constabulary and Martin Lomas, Governor HMP Whitemoor. The function of the Board is to: - Monitor (on at least a quarterly basis) and evaluate the operation of the MAPPA, particularly that of the MAPPPs - Establish connections with other public protection arrangements such as Area Child Protection Committees, local

Crime and Disorder Partnerships and Local Criminal Justice Boards that support the operation work at the MAPPA - Prepare and publish the Annual Report and promote the work of MAPPA in the area

- Plan the longer term development of the MAPPA in the light of regular reviews of the arrangements and with respect to legislative and wider criminal justice changes - Identify and plan how to meet common training and developmental needs of those working in the MAPPA. Membership of the Strategic Management Board includes Senior Managers from Health, Mental Health Services, Housing, Adult Social Care Services, Children’s Services, Jobcentre Plus, Electronic Monitoring Services and Youth Offending Services as well as Police, Probation and the Prison Service. We also have representatives from Education and from Victim Support and have recruited two Lay Advisors (members of the public) in line with national developments.



Cambridgeshire Multi - Agency Public Protection Arrangements National Probation Service, Cambridgeshire Matthew Ryder Assistant Chief Probation Officer Probation Headquarters 1 Brooklands Ave Cambridge CB2 2BB 01223 712345 Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564 Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP 0845 4564564 HMP Whitemoor Longhill Road March Cambs PE15 OPR 01354 602350

Carol Ashford Multi - Agency Public Protection Panel Manager Cambridgeshire Constabulary Garry Swaine Detective Superintendent

Prison Service Martin Lomas Governor



Victim Support – information and contact details CAMBRIDGE & ELY VICTIM SUPPORT Unit 4 Dales Brewery Gwydir Street Cambridge CB1 2LJ FENLAND VICTIM SUPPORT March Business Centre Old School Buildings Dartford Road March PE15 8AN PETERBOROUGH VICTIM SUPPORT 252a Lincoln Road Millfield Peterborough PE1 2ND HUNTINGDON VICTIM SUPPORT Primrose Centre Primrose Lane Huntingdon PE29 1WG

Tel: 01223 329000

Tel: 01354 658231

Tel: 01733 349897

Tel: 01480 417600

All general pictures featured in this report have been used to give a pictorial representation of the work of the MAPPA in Cambridgeshire. No person shown in street scenes or pictures of buildings are connected with the MAPPA.