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HEAD OF OFFENDER
MANAGEMENT HMP HAVERIGG
CUMBRIA
Multi-Agency Public Protection Arrangements
Annual Report 2004 - 2005
02 ANNUAL REPORT 2004 - 2005
This Document
How to contact us
This is a joint report of the National Probation Service Cumbria,
Cumbria Constabulary and Her Majesty’s Prison Service North We welcome feedback and if you have any
West setting out how we manage the risks posed by sex comments to make about this report they should
offenders and other dangerous offenders in Cumbria. be sent to one of the addresses below:
CONTENTS
Other Legislation/Developments
In addition to this work to strengthen the MAPPA, the Advances in information technology are important in
Government has also begun to strengthen other statutory supporting public protection work so that information can be
provisions, the most significant of which are the Sexual shared swiftly and efficiently.2004- 2005 has seen the
Offences Act 2003 and measures, due to commence in April introduction nationally of an advanced database for sexual
2005 which introduce new `Public Protection` sentences for and violent offenders, known as VISOR (Violent and Sex
`dangerous` offenders which will keep them in custody until Offender Register). VISOR provides agencies with a national
they no longer pose a serious risk to the public. database to register, risk assess and manage sex offenders.
The system is currently being managed by the Police and is
The Sexual Offences Act 2003 overhauled many antiquated due to be rolled out for use to the national Probation Service
sexual offences, strengthened the sex offender registration in due course and will also include violent offenders and
requirement and introduced new civil orders, with stringent others who may cause serious harm to the public.
conditions to help prevent further offences being committed.
In Cumbria we have already used many of the new tools
provided by the Act enthusiastically to deal with the risks
posed by sex offenders.
Victim Focus
In addition to the MAPPA work
to tackle offenders, greater
emphasis continues to be placed
on meeting the needs of victims.
Victims of sexual offending are
identified as a priority group We recognise that the nature of much of the offending described in this report is of a
within the National Victims and particularly disturbing nature, making public debate difficult and often highly charged.
Witnesses Strategy which aims to Although sexual and violent offences comprise a small proportion of all recorded crime,
improve support and protection it is not surprising that they cause the greatest concern. We therefore believe that it is
for victims and witnesses. vital that communities understand the size, nature and complexity of the problem and
This work is part of the Domestic what we do to manage risk.
Violence, Crime and Victims Actl
which creates a new Public protection is a high priority for every agency involved with MAPPA.We are pleased
independent Commissioner for with progress made thus far and hope that this report will inform you and reassure you
Victims and Witnesses to be a that MAPPA in Cumbria are developing and working effectively to make Cumbria a safer
champion for victims of crime place for all who live, work and visit here.
and a new statutory Code of
Practice which will consolidate
existing procedures.
MIKE MAIDEN MICHAEL BAXTER DI LOCKWOOD
Chief Probation Officer Chief Constable Assistant Director of
National Probation Cumbria Constabulary HM Prison Service
Service Cumbria
THE ROLE OF THE PRISON SERVICE IN MAPPA -2004/5
ANNUAL REPORT 2004 - 2005
07
One of the important ways in which the Criminal Justice Act Prompt identification of MAPPA offenders so that their
(2003) strengthened the MAPPA was to make the Prison details can be used in sentence planning arrangements,
Service part of the Responsible Authority with police and including interventions to manage and reduce risk
probation in each of the 42 Areas in England and Wales. The
Prison Service has been given this enhanced role in recognition Regular monitoring of the behaviour of those assessed as
of the important part it plays in protecting the public by presenting the highest risk, and sharing information with
keeping offenders in custody; helping them to address the police and probation colleagues
causes of their offending behaviour; and by undertaking other
work to assist their successful resettlement. All relevant risk management information being provided to
multi agency meetings which help plan an offender’s release
As part of the Responsible Authority the Prison Service is now
represented on each of the Strategic Management Boards At least three months notification to police and probation of
(SMBs) in the 42 Areas. The Prison estate is configured the expected release dates of those offenders who have been
differently from Police/Probation areas in that its referred to the multi-agency public protection panel
establishments are contained within only 12 geographical (MAPPP), and at least six weeks notification of those being
areas and two functional areas – the High Security estate, and managed at level 2 risk meetings
Contracted Prisons. For this reason arrangements for Prison
Service representation on SMBs vary across the country, but No changes to release dates or arrangements being made
each Prison Service Area Manager has entered into an without prior consultation with police and probation
agreement with the SMBs on how the Service will contribute
both strategically and operationally to the MAPPA. The main
focus of the Prison Service contribution is at an operational Playing an effective role in the multi agency risk management
level. A number of measures have been put in place across the of MAPPA offenders requires good communication between
prison estate to ensure that this will be effective and result in: criminal justice partners. The Prison Service has taken steps to
ensure that there are dedicated points of contact for public
protection at both Area level and in every prison
establishment, and that these are published together with
police and probation contacts to ensure better communication
across the Responsible Authority.
Staffs from Haverigg prison and the local MAPPA team have
established regular Public Protection meetings which are held
at the prison. High risk prisoners are identified early and
interventions put in place to manage and reduce the risk such
individuals present to the public on release.
Level 1 risk management is used in cases in which the risks posed by the offender can be managed by one agency without
actively or significantly involving other agencies. Typically the lead agency will be police, prison, probation or Youth
Offending Teams. Generally offenders managed at Level 1 will be assessed as presenting a low or medium risk – the largest
proportion of all MAPPA offenders are managed at this level.
Level 2 local inter-agency risk management is used where the active involvement of more than one agency is required. The
agencies involved are agreed locally and determined by the characteristics of that case. A permanent representation from
core agencies contributes significantly to violent risk management.
Level 2 management usually requires a monthly meeting to reassess the risks an offender presents and amend the risk
management plan accordingly.
Level 3 MAPPP meetings deal with offenders who present a high or very high risk of causing serious harm and who present
risks that can only be managed by a plan which requires close co-operation at a senior level due to the complexity of the
case and/or because of the unusual demands it creates or, if not high risk, the case is exceptional because of the likelihood
of media interest and/or public scrutiny. These cases are often referred to as the ‘critical few’ and most frequently relate to
offenders being released from prison or hospital
12 ANNUAL REPORT 2004 - 2005
MAPPA meetings in Cumbria are confidential and chaired by Senior Managers from either the probation
service or the police.
The meetings work to an agenda drawn up in advance and are generally attended by staff from the
police and probation services, victim services, health, social services, youth offending teams, prisons, local
authority housing and other agencies who might have involvement, for example specialist mental health
services and the NSPCC. Agencies share information and develop risk management plans, based on the
assessed risk the offender presents. Agreement is reached about the level of risk management so that
only the ‘critical few’ most dangerous offenders are referred to the MAPPP (Level 3), which is convened
when the needs arises.
A record of the meeting is kept which documents any decisions made and who is responsible for any tasks
agreed. A date is set to review each case at an appropriate interval, unless circumstances demand an
earlier meeting.
A countrywide protocol sets out how and when the MAPPA meet and how referrals take place. In
addition, there is a Memorandum of Understanding between the ‘Duty to Co-operate’ agencies which
sets out how agencies will work together to protect the public and a protocol regarding the Exchange
of Information, agreed by all the key agencies.
Risk Management Plans are tailored to the individual circumstances and focus on the risks identified in
each case, and the steps needed to protect the victim. There is a balance between the need to impose
conditions and controls on the offender with the provision of treatment through programmes and
services to reduce further offending.
The following case studies illustrate this approach:
ANNUAL REPORT 2004 - 2005
13
Case Studies
A is a male offender with convictions for kidnap and rape B is a male offender with a long history of general
of a young girl for which he was sentenced to a 13 year criminality and violence. He had a history of self-harm and
term of imprisonment. involvement with mental health agencies. He also had an
Prior assessment by the MAPPA resulted in a number of addiction to drugs and a propensity for abusive and
strict conditions being imposed upon him at the point of offensive behaviour towards Probation Service Staff, which
his release into the community, including a condition not raised concerns for his acceptance on licence to reside at the
to have any unsupervised contact with children. location Probation Service Hostel.
A was subject to both probation supervision on licence,
and police supervision as a requirement to sign the sex B had previously been subject to public protection meetings
offenders register. and whilst in custody the MAPPA designed a very detailed
Very quickly concerns were reported to the MAPPA that A release plan involving Probation, Police, Primary and Mental
was suspected of having unsupervised contact with the Health Care Services. B was directed to reside at the
children of a neighbour. Probation Hostel with strict licence conditions and a support
A denied this and the MAPPA secured resources to enable package was developed to ensure the health and safety of
agencies to gather specific information which secured the hostel staff.
evidence to prove that A was in breach of his licence
conditions. It was expected that B would re-offend almost immediately
on release and there where real concerns for his mental
The Social Services Department and Children and Adult health. However, due to the support of the agencies and
Protection Unit of the Police (CAPU) supported the family practitioners involved in the MAPPA, B has had the longest
with whom A had been in contact with and felt reassured offence free period in the community of his adult life. He
that no actual criminal offences had occurred. has responded well to all agencies involved particularly
A’s licence was revoked as a result and he was returned to engaging with Mental Health Services, which has resulted in
prison. a more accurate assessment of his needs and hence more
appropriate treatment options.
Early assessment and a robust risk management plan,
including intensive monitoring and swift enforcement As a result of an improvement in his general behaviour he
action reduced the opportunity for A to commit further has been able to remain resident at the hostel whilst he
offences. secures more suitable independent accommodation in the
locality, assisted by an ongoing package of support and
supervision from various agencies.
14 ANNUAL REPORT 2004 - 2005
The two Lay Advisors, who were recruited in 2002 sit on the
SMB Board and have continued to provide a valuable
perspective to the work of the MAPPA. The Lay Advisors
encourage a greater transparency in the work of the MAPPA
and promote public accountability. Not only do they provide an
opportunity to question what is being done and why, but also
bring community views to the development of the MAPPA.
“I wholly support the involvement of Lay Advisors in the work of the MAPPA and would
encourage others to come forward to participate when our term of office ends. I feel privileged
to be part of such important work and am keen to contribute whenever appropriate”.
“The arrangements for agencies to cooperate which are now in place should re-assure the public
that their protection is taken seriously and is, in Cumbria, well managed as a result”.
16 ANNUAL REPORT 2004 - 2005
STATISTICAL INFORMATION
Information provided to the Public Protection and Courts Unit The number of Registered Sex Offenders has risen due to the
of the Home Office is contained within the Annual Report’s successful arrest rates from local Police Operations targeted at
Statistical Information. sexual offenders, such as Operation Ore which focussed on
Child Internet Pornography offences.
The presentation of statistics has developed from previous
years and it is important to remember that generally the total The last 12 months has seen the number of offenders assessed
number of violent and sexual offenders is a very small as Level 3 `critical few` offenders within the county significantly
proportion of the general public as a whole. reduced. This is predominantly as a result of changes in the
MAPPA risk assessment procedure of offenders which has
The MAPPA in Cumbria has actively sought to use new resulted in a more accurate and robust assessment of risk with
legislation to increase controls over Sex Offenders living in the resources, aimed at protecting the public being targeted at the
community considered to present a high risk to the public, by highest risk offenders.
the imposition of Sexual Offences Prevention Orders (SOPOs). 4
SOPOs have been successfully imposed and further Orders are It is also worthy of note that of all the offenders subject to
in various stages of application. Such orders place greater MAPPA proceedings (i.e. Levels 2 and 3) none were charged
restrictions on the behaviour of offenders which is likely to with a serious sexual or violent offence during this report
result in criminal proceedings being taken against them if they period. This must be regarded as a successful outcome.
fail to comply.
MAPPA Annual Reports Statistical Information
ANNUAL REPORT 2004 - 2005
17
Reporting Period 1st April 2004 – 31st March 2005
Level 3 Level 2
RSO 0 26
V&O 1 31
Otho 0 3
ix) Of the cases managed at Level 3 or 2, the number, whilst managed at that level who
were:
a) Returned to custody for a breach of Licence
b) Returned to custody for a breach of Restraining Order or Sexual
Offences Prevention Order
c) Were charged with a serious sexual or violent offence
Level 3 Level 2
a) 0 5
b) 0 0
c) 0 0
ANNUAL REPORT 2004 - 2005
19
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