Planning to Protect

Reporting on the Multi-Agency Public Protection Arrangements in Essex
MAPPA Annual Report 2004 - 2005

From the Minister: 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 offenders within MAPPA continues to grow as expected, there is clear evidence that the Responsible Authority, that is the local police, probation and the Prison Service, is addressing these additional demands by strengthening local 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 to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA, this collaboration, together with the scrutiny of policy and practice, must become the hallmark of these arrangements. Similarly MAPPA 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 advisors to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public, these lay advisors represent a diverse, able and committed group of people who are now helping the statutory 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.

Baroness Scotland Minister of State for Criminal Justice and Offender Management

contents
We are pleased to introduce this year's report of the Multi Agency Public Protection Arrangements (MAPPA) operating in Essex. MAPPA has gone from strength to strength and is a further example of the close co-operation and ever developing partnership between the Probation Service in Essex, Essex Police, the Prison Service and other statutory agencies. There have been three years of continuous work to establish MAPPA as a potent force for public protection in the county. This report highlights the further initiatives that have recently been implemented, and demonstrates the effectiveness of the arrangements in managing dangerous offenders. As a result of the Criminal Justice Act, in April 2004 HM Prison Service joined Probation and Police as a 'Responsible Authority' within MAPPA. The Act additionally placed a “duty to co-operate” on all partner agencies that have a role to play in ensuring the best possible management of dangerous offenders in the community. Also required under the Act is that each Area appoint Lay Members to the MAPPA Strategic Management Board. The two members of the community recently appointed in Essex will bring a welcome public perspective to the task of monitoring the effectiveness of the arrangements. In addition to playing an important role in the management of dangerous offenders, Essex MAPPA has maintained a clear commitment to dealing sensitively with the interests and issues of victims of serious violence. It has long been recognised that those who experience domestic abuse are at a significant risk of re-victimisation. Serious abusers are now being referred to MAPPA in order to manage the risk they pose. This year's annual Essex MAPPA Conference powerfully highlighted the question of domestic abuse and offered participants some important strategies to combat the potential risks and prevent recurrence. This report provides information on how MAPPA operates locally. It also demonstrates our strong commitment to continuous improvement in our task of protecting the public in Essex.
Mary Archer Chief Officer of Probation David Stephens Chief Constable Nigel Smith Governor HMP Chelmsford

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Achieved this year
Domestic Abuse programme Protecting children Criminal Justice Act New Duties Lay Advisors

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Conference
New methods

10 MAPPA in Essex 11 What risk? level Deciding which
A typical plan New bodies join in

Essex contributes nationally

14 Moving offenders 16 Case Study
15 Case study
away

13 A MAPPA review

18 The contributing agencies to Probation, Prisons, Police, and 22 Learning YouthSocial Care, Housing, Offending 23 Registering Offenders 26 Case Study
Contacts

17 Case Study

19 Case Study

Services

25 Case study

MAPPA: the panacea?

27 Strategic Management

Achievement

What was achieved this year?
THE CRIMINAL JUSTICE ACT
became law in April 2004, and helped to strengthen the work of Essex MAPPA.
It made the Prison Service part of the 'Responsible Authority', alongside the Police and Probation
Working relationships with colleagues from Chelmsford Prison have been excellent and their commitment to the MAPP process and public protection has been consistently high throughout this first year as a "Responsible Authority". In addition to providing information and attending Local Risk Management Meetings in Essex, the Prison Service is also represented on both the MAPPA Strategic Management Board and the MAPPA Planning Group.

NEW DUTIES
The CJA imposed a 'Duty to Co-operate' on those agencies which make an invaluable contribution to managing risk and preventing re-offending:
o o o o o o o Housing Education Social Services Health Service Bodies Jobcentre Plus Youth Offending Teams Registered Social Landlords who accommodate MAPPA offenders Electronic Monitoring Providers.

It provided for the appointment by the Home Office of two members of the public as 'Lay Advisors' in each Area, to assist in monitoring the effectiveness of MAPPA. An element of public scrutiny of this often complex and sensitive area of public protection has been introduced nationally after a pilot project demonstrated its value. Essex has recently appointed two Lay Advisors to the MAPPA Strategic Management Board. They will play a vital role in scrutinising and questioning MAPPA in the county.

“I look forward to ”

o

Many of these Agencies were already signatories of the Essex MAPPA Protocol. The 'Duty to Co-operate' formalises arrangements that had existed for some while. It enables the all-important sharing of information, through which the risk posed by MAPPA offenders is identified, weighed, and managed.
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contributing where I can, and hope my life experience, community interest and enthusiasm will be of value in this John Blaize work.l

bring a wealth “ Iofhope I canexperience and business skills in dealing with complex problems to support MAPPA in its important John Downing role.l

DOMESTIC ABUSE: NEW PROGRAMME, NEW MAPPA INVOLVEMENT
Many of these people pose a significant risk of re-offending, with the potential for devastating and life-threatening consequences. The likelihood of re-victimisation is sometimes very high indeed. The Probation Service has introduced the Integrated Domestic Abuse Programme (IDAP) for offenders under their supervision following conviction for violence against a spouse. All 'IDAP' offenders are also now routinely referred to MAPPA prior to making a start on the programme, so that there can be a full exchange of information amongst agencies. Where needed, the resulting management plan utilises the best of MAPPA’s combined expertise aimed at preventing reoccurrence. Arrangements for the sharing of information about the perpetrators of domestic abuse are well established between Police and Probation in the county. Early indications suggest that this could significantly increase the number of referrals to the Essex MAPPA: an issue to be monitored by the Strategic Management Board.

PROTECTING CHILDREN AT PLAY

LEISUREWATCH
The idea of Leisurewatch came from The Derwent Initiative in Northumbria, an independent charity promoting an inter-agency response to sexual offending. Aiming to reduce the risk of sex offenders frequenting leisure venues and targeting, grooming and abusing children, it brings together trained staff in leisure facilities and police officers responsible for community safety.

In Southend the NSPCC has taken a lead in implementing the scheme, in partnership with the Police, Leisure Services, Southend Borough Council, Probation and Social Care. The majority of the staff in the five council-owned leisure centres have received training so that they are aware of important issues about the safety of children, they are observant and know what to do if they see behaviour which is a cause for concern. Clear protocols have been established between the Police and Leisure to ensure that individuals of concern are dealt with appropriately.

The scheme, endorsed by Southend Area Child Protection Committee, provides a structure through which MAPPA can share information with the Leisure Centres, where required for public protection. The aim is to extend the project to other Leisure venues. Currently work is being undertaken with the private companies that own Adventure Island and Adventure Sealife on Southend seafront so they can achieve Leisurewatch status.

SPREADING THE WORD

Throughout the year, the Probation Lead Officer for public protection and the MAPPA Manager have given a significant number of presentations to the contributing agencies, highlighting the way MAPPA works, and their own responsibilities within it.
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NEW METHODS, BETTER PROTECTION

The annual MAPPA conference in Essex has become an important component in the year’s training effort, giving professionals a valuable opportunity to share ideas, learn of new work and hone skills.
Innovation This year’s theme “Innovations in MAPPA” offered news of methods currently under development; challenge to MAPPA thinking about sharing information and work with outside partnerships, and examples of best practice with Domestic Abuse cases. New methods to improve safety New techniques in electronic monitoring, aimed at enhancing surveillance opportunities; innovations in Lie Detection techniques with sex offenders, new legislation offering further curbs on offending, and a new programme to deal with Domestic Abuse perpetrators, demonstrated the concentration of effort nationally on making work with dangerousness as good as it can get. Domestic Abuse reduced with ‘MAPPA’ techniques Representatives from Police and Probation in South Wales described what is possible when Domestic Violence perpetrators are dealt with under a ‘MAPPA’ umbrella. MARAC (Multi-Agency Risk Assessment Conference) in South Wales has had some impressive results. While re-offending is endemic in Domestic Abuse cases, under MARAC, 63% of victims interviewed had not experienced further abuse. Drama seeks the answers The excruciating drama of a combined Domestic Abuse and Sexual Offending case, presented by Geese Theatre, asked serious questions of all conference participants, experienced or otherwise: Risk to whom? When? Where? What is needed? Who will do what? When?

Conference

MAPPA’s task
The answers to similar questions are regularly sought and found by MAPP meetings across the county, on behalf of the people they seek to protect.

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Achievement

Achievement

ESSEX MAPPA SHARES ITS TRAINING SKILLS
The Essex ‘MAPPA in Action’ training pack was requested by other MAPPA areas across the country this year. A video demonstrates a typical case to be planned for by the MAPPA group; questions are asked which headline the areas needing to be addressed. The answers, available on CD, point up the key issues for each section and explain the context. The pack easily adapts for use with community groups.

....AND CONTRIBUTES TO NATIONAL AWARENESS
Attendance at the national MAPPA conference for police and probation personnel confirmed that Essex MAPPA was headed in the right direction. Research done so far by Professors Hazel Kemshall and Gill MacKenzie on the workings of MAPPA gave us valuable indicators with which to judge practice in this county. Essex MAPPA’s work with the media was presented to the conference, and the follow-up conference summary was prepared as a newspaper by Essex for national distribution.

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MAPPA in Essex
The most powerful protection from sexual and violent offenders is provided when all the relevant statutory and voluntary bodies - and it could be private sector too combine to work a case.

During this year, many agencies have joined Police, Probation and Prison Services to work together under the MAPPA, either as fully signed up members of the Protocol or on an individual basis with a particular case.

• Learning & Social Care Services - Essex, Southend & Thurrock • Youth Offending Teams - Essex, Southend & Thurrock • North East Essex Mental Health Trust • South East Essex Mental Health Trust • Job Centre Plus • Southend Unitary Authority • Thurrock Unitary Authority • Local Authority Housing Services • The NHS Trusts and the Regional Health Authority

We thank all of these groups and individuals for their commitment and hard work

how it works ...
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The MAPPP (Multi Agency Public Protection Panel)

What risk?
Guidance issued by the Home Office influenced the setting up of a three-tier system for managing risk in every area. Its purpose is to ensure that the most dangerous offenders receive the greatest degree of scrutiny and oversight, and that other less serious offenders are correctly filtered out.

Reserved for those 'critical few' offenders assessed as being at a high or very high risk of causing serious harm and presenting risks that can only be managed by a plan requiring close cooperation at senior level.

Local Risk Management Meeting
Applies to the management of high risk and requires the active involvement of more than one agency in the risk management process.

Single Agency intervention
The offender can be managed by one agency without actively or significantly involving other agencies. The vast majority of all offenders referred to MAPPA in Essex are managed at this level.

Deciding which level
A key process of the Essex MAPPA is the screening of virtually all cases through an initial Multi Agency Information Exchange meeting. This process enables the identification of the cases – the vast majority – to be managed safely at Level One (Single Agency Management) whilst simultaneously pointing up those requiring a higher level of Multi Agency intervention at Level Two or Three. By adopting this method and applying a strict criteria for Level 3 cases, we have ensured that risks are managed appropriately, and importantly there is no log jam at any level within the process. Once an agency has identified a case for inclusion in the process, the MAPPA then provides for the co-ordination, assessment and management of offenders at the three levels.

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3

2

Multi Agency Public Protection Panel Meetings are convened on a 'needs' basis to attend to those 'critical few' offenders who represent the highest risk of harm to the public, where the risk is considered to be imminent and requiring additional resources to manage the risk in the community. Chief Officers of each major agency attend. Very few offenders in Essex are likely to progress as far as a full MAPPP During this year only six offenders met this criteria. . All six were identified through the IE process as being offenders scheduled for release into the community where a high-level plan was needed.

LRMM While Level 2 Local Risk Management Meetings are scheduled monthly at the six locations, cases needing more urgent attention will always receive it. Chaired by the MAPPA Manager, they are always attended by the key agencies, alongside all those other organisations having contact or involvement with the case, for example mental health or housing agencies. Where the offender is about to be released, the Prison Service will attend or provide written information to aid discussion. The Probation Service Victim Contact Unit presents information about the views of past victims. Where speed is important Cases are normally discussed at an IE meeting prior to be referred to a LRMM. However in exceptional cases, or where speed counts, cases can be referred direct.

1

IE (Information Enquiry/Exchange) Each agency identifies 'relevant offenders' and checks with other agencies whether that offender is known to them. So, for instance, Probation becomes aware of those offenders due for release from prison or convicted by the courts and made subject to community supervision; the Prison Service identifies 'relevant offenders' on reception into the prison system or those who are scheduled to be released back into the community. The Police hold the Sex Offenders Register. Other Agencies may also be aware of offenders and will wish to refer them to the process. Monthly schedule Offenders are referred to the MAPPA Manager for discussion. Monthly Information Exchange (IE) meetings are held at the six county locations. The core group includes Probation, Police, Social Services and Probation’s Victim Contact Unit, but other agencies also attend on a case-bycase basis. Level 1; Level 2; Level 3? The purpose of the IE is to identify the level of risk and to determine whether the management of the offender requires the active and significant involvement of more than one agency. If the risk is high, and more than one agency is involved, the case is referred to a Level 2 Local Risk Management Meeting or, in the case of the critical few, to a Level 3 Multi Agency Public Protection Panel Meeting. Majority at Level 1 The vast majority of MAPPA referrals remain at Level 1. A date will be set to review the issues and if there is no escalation of risk, or other agency involvement, the referring agency will manage the offender, referring the case back to MAPPA for review when necessary.

Of the 431 offenders referred to MAPPA this year, 337 (78%) were dealt with at IE without the need for further MAPPA involvement

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Planning to protect

A MAPPA review is about to happen. What are the components?

Whatever the level of the meeting, risk is assessed using well-researched tools and procedures. Specific risk - of what might happen, to whom, when and where - is identified, and then plans are made to intervene. The Risk Management Plan made for each case will specify action by each individual agency or worker. It will indicate who will do what and by when.

A typical plan
This will include many of the following: • A programme of intervention • An initial supervision plan • Regular checking on the offender’s behaviour and attitudes • Surveillance and monitoring methods • An application to the Courts for an order to prohibit certain behaviours (for instance a Sex Offender Prevention Order) • Intelligence and information sharing across agencies • Accommodation planning • Contingency plans • Public disclosure planning • A review period. At every review, agencies acknowledge the importance of safeguarding the confidentiality of the meetings and the notes that come from them.

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GIVE AND TAKE
The MAPP Arrangements provide the opportunity to remove a dangerous offender from the county, in the knowledge that they will be under similar surveillance in another MAPPA area. This reciprocal understanding, ensuring extra protection when needed, must be carefully prepared for. MAPPA personnel will often visit another area, to discuss, explain and help set up the management strategy.

Moving an offender from one county to another to enhance safety: it reduces the risk, shares out the responsibility.

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MAPPA working

A continuing case
John S, a white male, has a history of offending dating back to 1990.
He received a 3 year prison sentence for attempted kidnapping and the attempted choking of an adult female. His offences have included the indecent assault of an 8-year-old girl, for which he served a short period of custody.

He was also in the habit of contacting stores which sold children's clothes and informing them that he is masturbating and abusing children. He has been assessed by mental health services on a number of occasions, and has attended sex offender treatment programmes. He admits that he is sexually deviant, fantasising particularly about women and children wearing white socks.

He moved to Essex in 2000 to live with his teenage girlfriend, and she soon became pregnant. Child Protection proceedings followed and the child was removed.

Multi-agency protection meetings have been held on him since his move to the area, and have continued since the creation of the MAPPA process. He continues to cause concern and has recently been subject to further investigation by the police, both in Essex and another county, in relation to indecent images and abusive communications via the internet.

The MAPPA process has been invaluable in drawing together information from these investigations, and in developing a strategy to monitor his activities, including police visits, referral to the Community Mental Health Team, ensuring that Child Protection issues are covered through Child Protection Proceedings. This has included the progression of evidence towards obtaining a Sexual Offences Prevention Order (SOPO), to prevent him from having anyone under 16 years old on his premises, and from visiting places where they are likely to congregate: parks for instance. Although his order is due to expire during 2005, he will remain subject to MAPPA, due to the continued risk he poses.

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Merlin P has a history of offending since 1991. In the past (1991, 92, 97) his offences have included indecent assaults on young women and girls but in more recent years he has been compulsive in sending obscene text messages amounting to harassment.

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In 2000 and again in 2001 he was sentenced to short terms of imprisonment without the benefit of a pre sentence report. Because they were only short sentences, he was not subject to any supervision within the community on release.

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Obscene texts
supervise him in the community and reduce his obsession with such activity. This view was reflected in the Pre Sentence Report and consequently the Community Rehabilitation Order was extended by a further 18 months. He was also made subject to an Anti Social Behaviour Order (ASBO) preventing him from sending obscene text messages.

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Following this subsequent conviction the MAPPA Risk Management Plan was reviewed and MAPPA sought the help of the Mental Health Community Rehabilitation Team in providing therapy to deal with his compulsivity.

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Mr. P re-offended in 2002 and was again convicted on a number of counts of harassment and sentenced to an 18 month Community Rehabilitation Order. Early in his supervision it became apparent to his probation officer that there were psychiatric issues linked with learning difficulties and at that stage he was referred to the MAPPA process.

3

A Management Plan to try to stop Mr. P re-offending included intensive monitoring by both police and probation. A housing support group was brought in to help improve his ability to cope within the community.

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Other aspects of the Management Plan include intensive monitoring by both Probation and Police particularly in relation to his ownership of mobile phones.

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He still gets assistance from the housing support group in the basic skills of running his home. Although Mr. P was considered for inclusion in the sex offender treatment programme, his learning difficulties prevented him participating.

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Unfortunately the extent of Mr. P’s compulsion to send indecent text messages was not fully known until the police received further complaints about his behaviour. This subsequently led to another appearance at court. Although there was a serious risk of Mr. P again being sent to prison it was the view of MAPPA agencies that it would be better to

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A one-to-one programme of work has been developed for him and is being delivered by his probation officer.

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The effects of the ASBO and the intensive monitoring and support that Mr. P is receiving in the community appear to have been effective. There have been no further incidents reported. Reviews of the Management Plan take place quarterly and will continue for the foreseeable future.

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MAPPA working

NURSE’S ATTACKER RELEASED
A fifteen-year-old who attacked his nurse in a furious frenzy when she rejected his advances was released from prison after 16 years. The young man had become friendly with Imelda R during a spell in hospital. His disappointment led to anger, resentment and then violent fantasies, culminating in an attack with a hammer which left her scarred for life and blind in one eye. Unsafe As a juvenile he was ordered to be detained in a place approved by the Home Secretary, for life. While in custody, his violent fantasies increased, particularly in relation to those responsible for his care, notably women. For some while psychiatric assessments deemed it unsafe for him to be released into the community. Essex MAPPA contacted During the early part of 2004, The Parole Board decided that Darren X should be released on licence. They asked Essex MAPPA to hold a Local Risk Management Meeting to put together a plan for his safe management in the community Delivering the plan First, short periods of supervised resettlement leave gauged his abilities and tested his behaviour. The Probation Victim Contact Unit traced his previous victim. Stringent licence conditions were laid down, preventing him from contacting or approaching either her or her immediate family, or from entering the area in which she lives.
By our staff reporter

MAPPA DECIDES: regular checking

• MAPPA still retains oversight of this offender. The case is reviewed quarterly as a matter of routine, and thus far there are no reasons for disquiet. In the event of any concern, any agency can re-agenda.

He was made subject to Probation supervision, and monitoring visits by Essex Police. Both supervision and a whole range of licence conditions would continue for an indefinite period. He would know he must also disclose any developing intimate relationships with women to his Probation Officer. In this event, MAPPA would be in a position to disclose his past in order to protect the woman concerned. The Community Mental Health team also became involved. Coping Despite his lengthy imprisonment, it became clear that Darren was by no means institutionalised. He began to cope with life outside, and eventually moved into his own rented accommodation.

“People who meet under the MAPPA umbrella are aware that
they are constantly dealing with other people’s tragedies: the victims and their families; also the perpetrators and their relatives. The task is to take a long cool look at what is most likely to prevent any recurrence of offending, and to make calculated decisions on behalf of the community. ” Allan Taplin, MAPPA Manager
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DAILY

MY HUSBAND IS
Amelia Eckersley, aged 55, remains supportive of her husband Don after his imprisonment for indecent assault. Mrs. Eckersley plans to consult solicitors and friends before taking further steps towards an appeal. Eckersley, aged 69, had been a private teacher for many

Exclusive

White male, aged 69, sentenced to 3.5 years imprisonment for committing a number of indecent assaults on young girls.
A retired teacher, he would advertise his services as a private tutor for special needs children. The Police Child Protection Unit received a number of allegations that he had assaulted a number of his pupils. Further complaints were made that he had returned to the victims’ homes offering inducements for them to withdraw the allegations. In addition to imprisonment, he was banned from teaching or advertising to teach children, and given a 5-year extended licence. A Local Risk Managment Meeting was arranged 3 months prior to his release date, to put in place a risk management plan. He had remained in denial for most of his sentence (and while he has made some progress in this area, he still minimises the impact on the victims and blames them). He indicated that he wished to return to live at home with his wife. A home visit by his supervising officer revealed that the lady remained supportive of her husband and convinced of his innocence. It was also discovered that while no young children live there permanently, young grandchildren frequently visit.

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MAPPA decides The offender could not return directly to the matrimonial home until a thorough risk assessment could be completed by Social Services. He was released to Probation Approved Premises for an indefinite period. He remains there still. Strict licence conditions include that although he may visit his wife, he does not stay overnight. He is also prevented from living in the same household as anyone under the age of 16. The court also imposed a Restraining Order preventing him from teaching for life. He will be on the Sex Offender Register indefinitely and will be subject to regular police monitoring visits when living back in the community.

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The Probation Service
The Probation Service in Essex makes a wideranging contribution to the work of MAPPA, by: Funding Together with Essex Police, jointly funding the MAPPA Manager and MAPPA Administrator Posts. Assessment Preparing assessments of offenders who come before the courts for offences of sex or violence. The process uses a standard procedure called the Offender Assessment System (OASys) and will include judgement of an offender's suitability for a sex offender treatment programme. Supervision Supervising and managing offenders who are subject to sentences in the community. Enforcement Taking action to enforce the courts’ orders and return to court those who fail to comply. Programme delivery Delivery of specialist accredited programmes which target specific offending behaviour, including the nationally recognised 'Thames Valley' Sex Offender Treatment Programme and more recently the Integrated Domestic Abuse Programme. Licence supervision Pre-release work with prisoners and supervising and managing offenders on licence following release from prison, including taking necessary recall action when appropriate. 24-hour supervision Providing accommodation in National Probation Service Approved Premises for offenders who need an enhanced level of supervision. The victim’s voice Working with victims: one of the most important tasks involving the MAPPA is to ensure that past victims are not again put at risk when an offender is released. Victim issues are looked at as part of every risk management plan and in this respect the Probation Service Victim Contact Unit play a vital role in ensuring that the voice of the victim is heard at all MAPPA meetings.

MAPPA agencies the contributing
Help for Victims The Probation Service Victim Contact Unit offers individual face-to-face contact with the victims of offenders sentenced to 12 months or more for crimes of sex or violence. A Victim Contact Officer will consult the victim about their wishes: do they want to provide information to influence the conditions placed on the offender when released? Would they like to be informed about the planned conditions? The VCO will listen to their views or concerns about the prisoner’s release and pass them on to those making decisions. As well as giving information about the sentence and the prison process, they will contact the victim if any important changes take place, such as an appeal against sentence or conviction. Where necessary, referrals are made to others who could help, for example the Victim Support, Rape Crisis, and Survivors organisations.

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MAPPA agencies the contributing
The Prison Service
The Essex MAPPA Protocol, agreed on behalf of Chelmsford Prison, ensures the timely exchange of information and participation by prison staff in the community-based meetings, or within the prison itself when appropriate. This shared work helps to ensure a controlled and properly planned release of prisoners into the community. The work with the prisons has taken on a new focus following their inclusion as a Responsible Authority for the MAPPA.

“MAPPA is a great avenue

through which the prison can feed out information to other areas about inmates giving cause for concern, who may not originally have been MAPPA cases. Our observation of their behaviour helps build the full picture. l”

Mark Mellors Public Protection Manager

A Public Protection Review in prison, held by the Public Protection Manager, will include representatives from the Probation Service, the Security Department, Police Liaison, and other departments when needed. Decisions taken are then relayed to outside MAPPA areas, Probation and Police staff as necessary.

A white male offender, MAPPA Level 3, was serving 15 years’ imprisonment for Robbery and GBH. The Probation Service had recalled him to prison twice already. He was now due for release without licence. Risk issues He had several previous offences of violence using weapons: knives both inside and outside the prison, and against a female partner, along with an imitation firearm. The robbery was committed at a time when he was not coping with life. The prisoner was already expressing anxiety about managing on release and it was known that he previously reoffended within 2 months

Violent prisoner due for release without supervision
of release from prison. His discipline record in the prison was poor, and included assaults on other prisoners. The concerns were that as there was no Licence, there would be no supervision on release. He had no support network to go to. The Approach: a Public Protection case review was attended by the Public Protection Manager, Probation, Psychology, Daycare and the Suicide Prevention Co-ordinator in response to concerns raised by the Psychology Department and Daycare. Information was shared, including the fact that he was previously known to MAPPA in another county. There had been some previous mental health problems. CARATS were working with him in the prison. Initial Action An Early-Warning Notification form was sent to the Public Protection Unit in London. Contact was made with the previous MAPPA co-ordinator to both inform and glean further information. Planning for release Further meetings were held, also involving CARATS, Healthcare, Security and a Governor, to prepare the action plan, which included checking out release address options; checking on who was visiting him to see if he did have useful links or support;

and confirming his release date. A wing Personal Officer was allocated to provide specific support towards his release. A new psychiatric assessment was completed by the Prison Healthcare Department. Both the Essex and the previous MAPPA co-ordinators were kept briefed. The prisoner was included in some of these meetings. Success Finally a supervised Langley House Trust placement was found, the prisoner interviewed in the prison and accepted. Supported transportation from the prison was arranged. Later, the CARATS team were notified that he had settled well into the hostel regime.

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Essex Police
Essex Police contributes to the work of MAPPA through a number of key actions. These include:
Officer provision

2000) to prioritise registered sex offenders and carry out monitoring visits to their homes in accord with agreed policy.
Managing the Sex Offender Register

Siting Sex Offender Monitoring Officers in each territorial Police Division, to focus on public protection and the management of Registered Sex Offenders.
Assessing and monitoring risk

Using a nationally agreed risk assessment procedure (Risk Matrix

Holding a central Register of Sex Offenders at Police Headquarters and co-locating the Registration Officer with the MAPPA Manager to ensure prompt and effective information sharing.

Investigating crime Crimes that come to light through the information-sharing activities of the MAPPA are investigated and appropriate action taken. Board responsibility With Probation, jointly chairing the Strategic Management Board. Funding With the Probation Service, jointly funding the post of MAPPA Manager and MAPPA Administrator.

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MAPPA agencies the contributing
Learning and Social Care
The Essex MAPPA links to the services provided by three separate authorities: Essex County Council and the Unitary Authorities of Southend-on-Sea and Thurrock (the Social Care Department in Southend-on-Sea is also a joint Housing Department) –- all committed to creating safer communities through their partnership work with agencies. Full participation in planning Representatives from each council attend all MAPPA meetings in their area, and participate fully in discussions held by the Responsible Authority to formulate management plans. risk Where issues arise which concern schools, council representatives can also co-ordinate important contributions from colleagues in their education services.

Highlighting risk Learning and Social Care are able to identify information they hold which highlights specific risks posed by an individual. This could include information relating to the offender, his/her family, adults receiving a service from the elderly or learning disabilities teams, or information and knowledge of the local community in proximity to the offender.

Training and event management In addition, each council has provided personnel or resources to assist in the delivery of MAPPA training to a range of professionals across the county. They also contribute to the organisation of the annual MAPPA conference.

Health Services
The involvement of health care professionals is often highly beneficial to the work of MAPPA. High level representation Both the North East Essex and South East Essex Mental Health Trusts have signed up to the protocol and are frequently represented at Level 2 (LRMM) and Level 3 (MAPPP) meetings. Mental Health care The involvement of mental health services is proving invaluable in putting together management plans for those MAPPA offenders who need mental health care and services. While Primary Care Trusts (PCTs) are not individual signatories to the protocol, they are represented on the Strategic Management Board. A process is in place to ensure their participation in MAPPA on a case by case basis. GP involvement Information is sent to GPs when it is necessary to warn them of particular risks regarding patients who are MAPPA offenders. There is excellent communication between the local GP practice and those responsible for offenders in Approved Premises provision.

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Statutory and Voluntary Housing
One of the most challenging issues surrounding public protection is providing the right accommodation for released prisoners. Move-on provision While serious offenders could be initially released to National Probation Service Approved Premises, places are limited and in high demand, and there must be a move-on provision. A great deal of work is undertaken to place offenders as sensitively and safely as possible in carefully chosen local accommodation. Decision-making Housing providers, making informed and responsible decisions on behalf of the community, are assisted a great deal by reports provided through the MAPPA.

Youth Offending Services
Youth Offending Teams operate throughout the county with the primary aim of preventing youth offending amongst 10 - 17 year olds. Mixed membership Police, Probation, Health and Voluntary Sector services provide members for each team, who deliver programmes of supervision and support to young offenders both in prison and out in the community. Young MAPPA offenders Only a few young people are referred to the Essex MAPPA, but those that are will have difficult and complex needs.

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Registering offenders a continuous task
No matter how minor the case: everyone must register
Category 1 MAPPA offenders: Registered Sex Offenders (RSOs))
i.

The number of Registered Sex Offenders living in Essex on 31 March 2005

680 42

The number of RSOs per 100,000 head of population The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between April 1 2004 and March 31 2005 The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for, (b) interim SOPOs granted and (c) full SOPOs imposed by the courts between April 1 2004 and March 31 2005 The number of (a) Notification Orders applied for, (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts between May 1 2004 and March 31 2005 The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts between May 1 2004 and March 31 2005 Category 2: 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 Essex between April 1 2004 and March 31 2005 Category 3: Other Offenders (OthO) The number of other offenders (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003) living in Essex between April 1 2004 and March 31 2005 MAPPP cases The number of offenders in each of the three categories above: (a) RSOs, (b) violent and other offenders and (c) other offenders, who have been managed through the MAPPP (Level 3) and through local inter-agency risk management (Level 2) between April 1 2004 and March 31 2005.

23 (a) 1 (b) 0 (c) 8 (a) 0 (b) 0 (c) 0 (a) 0 (b) 0

210

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Level 3

Level 2

(a) 5 (b) 1 (c) 0

(a) 45 (b) 25 (c) 14

Of the cases managed at Level 2 or 3 between April 1 2004 and March 31 2005, how many, while managed at that level:
Level 3 Level 2

were returned to custody for breach of licence were returned to custody for breach of a restraining order or sex offences prevention order were charged with a serious sexual or violent offence

2

21

0 0

0 1

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There has probably never been such a concentration of energy and thought on individual cases as that provided by the Multi-Agency Public Protection Arrangements. With thorough, regular checking of cases, pooling of thinking and expertise, and co-ordinated planning, it provides an assurance of care like never before. However, it would be unrealistic to expect that it could guarantee to prevent every serious offender from committing further crime. The facts speak for themselves nonetheless. Of all the 431 cases which have come to MAPPA’s attention this year, one has seriously re-offended. People regularly involved in MAPPA are likely to become its strong advocates, recognising that its cool, careful work on behalf of the community represents plain common sense.

MAPPA: the complete panacea?

More court cases, so more registrations
Inevitably as court cases occur each year, the numbers of registered offenders will rise incrementally. The number at 31 March 2005 was 680, compared with 542 at the same time last year. A significant number of the new registrations were a result of successful prosecutions following Operation Ore, the national initiative to tackle the trading of child abusive images via the internet. Registered Sex Offenders who pose a significant risk of harm are monitored and managed under the Multi Agency Public Protection Arrangements but additionally all offenders have restrictions placed on their liberty and are monitored in accord with their risk.

Compliance Remains High
Registered Sex Offenders are subject to many restrictions on their liberty but despite this, the compliance rate remains very high and only 3.4% have had to be dealt with for failing to comply with the legislative requirements.

Getting the right balance
There is a substantial number of offenders who fall within the legal categories of ‘Registered Sex Offender’’ and ‘Violent and other Sexual Offender’, but very few of these pose a substantial risk of harm. Those whose offences are of less seriousness are progressively filtered out and given a level of scrutiny and intervention proportional to the risk they may pose.

Sex Offender Prevention Orders
In the past year greater use has been made of recent legislation allowing for Sex Offender Prevention Orders (SOPOs) to be imposed at point of conviction. Successful applications to the Crown Court were made on nine occasions, thus preventing convicted sex offenders from ever again having unsupervised access with children. The penalty for breaching these Orders can be imprisonment for a maximum of 5 years. Offenders are monitored to ensure compliance.

Managing Risk: recalling to prison
Agencies with responsibility for the supervision of offenders carry out detailed risk assessments on all cases and then refer to MAPPA. The Multi-Agency Information Exchange meetings identify those cases to be reviewed at levels 2 and 3. This year 337 were managed at level 1, 88 at level 2 and only 6 at level 3. Of the 88 offenders managed at Level 2, 21 were returned to prison following MAPPA involvement, for being in breach of their prison release licence conditions. Recall to prison is swift, and although occasionally regarded as a harsh response to possibly minor breaches, this ensures that the message to offenders is clear.

The 'Critical Few'
Out of a total of 431 cases referred for inclusion in the MAPPA process, only 6 cases met the stringent requirements of the 'critical few' most dangerous offenders. Of these cases two offenders have moved out of the Essex area and their cases have been transferred. A further two offenders were returned to prison for breaching their licence conditions. The two remaining Level 3 offenders are being successfully managed by MAPPA.

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MAPPA working
David M, a white male, was convicted of sexually assaulting young children on two separate occasions, and the second time received a 4 year prison sentence.
Both occurred in the same way: he was looking out of the window of his house, saw young children playing in the street and immediately approached them and committed the offences. He could therefore be properly described as a predatory paedophile. He became eligible for release in November 2001, and although this pre-dated the formal MAPPA process by some 6 months, existing processes within Essex enabled us to plan for his release. Mr. M was considered to pose a significant risk of re-offending and consequentially of causing serious harm. Being allowed to live independently in the community immediately was not an option. A place was found in Probation approved premises. He was made subject to stringent licence which included curfews keeping him inside when children were likely to be around, and conditions preventing him going out unescorted during any other time. All of this ensured that during his stay in approved premises he posed no risk at all to the public. However, he was on a relatively short licence which expired in June 2003, so these restrictions could not last indefinitely.

Still working, four years later.....
In view of his learning difficulties, it was clear that he would not be able to take a full part in the group sex offender treatment programme. Instead, a programme of one-to-one work was delivered by his case manager.

The need to ensure careful re-integration into society was also apparent. A team was put together of suitably qualified volunteers to teach him life skills, taking him him on escorted trips where necessary. During the early part of 2003, the Essex MAPPA started to consider when Mr. M should be allowed to live independently within the community. Liaison was ongoing with a number of Local Authorities, to identify suitable accommodation where any risk to the public could be reduced or eliminated. At the same time Mr. M was allowed structured unescorted outings during which his movements were monitored.

... still managing the offender
All agencies worked together to identify a management plan proportionate to the risk posed: • The Police obtained a Sex Offender Prevention Order (SOPO) preventing Mr. M from approaching or speaking to any children. • Local Authority housing was found in a (high rise) self-contained flat, thus preventing direct view and access into the street. It also involved the screening of other residents to ensure that there were no potential victims living in the immediate vicinity. • Police, Probation and Housing Support Staff set up a programme of monitoring visits so that he would be seen almost daily. • Probation continued to supervise Mr. M on a voluntary basis after his licence expired, for a period of 3 months.

Consistent, careful checking

Mr. M was allowed to move into his flat in June 2003 just as his period of statutory supervision was coming to an end. Since that time the Police have continued to monitor him and he remains subject to the restrictions of the SOPO. He will remain on the Sex Offender Register for the rest of his life and be subject of Police monitoring and supervision. The Risk Management Plan remains in place and is subject to periodic review, when agencies come together and share information about him. To date there is no indication that he has re-offended or breached the terms of his SOPO.

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Domestic Abuse is a concern for MAPPA....
Mr G, a 38-year-old Asian Male, was convicted of the common assault of his wife after an altercation at the family home.
His wife, of a similar ethnic origin, had suffered domestic abuse for approximately 5 years prior to the index offence. There were young children in the home, so the Child Protection services then became involved and a conference was convened. Major contributory factors in these offences were excessive gambling and alcohol misuse. Mr. G’s case was brought to MAPPA as a result of his planned attendance on the Integrated Domestic Abuse Programme (IDAP). When information was shared, it soon became clear that other public protection matters were also present in this case, including the fact that he had been employed in some capacity at a health establishment. Concerns were raised that he might pose a risk to vulnerable people due to his drinking and violent behaviour. Communication with the establishment followed and information was shared to ensure that patients were not put at risk. Mr. G continues to be monitored by Probation and through IDAP. The child protection issues are being dealt with under local procedures, which include Social Services, Health, Police and Education.

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Strategic Management
The Strategic Management Board is jointly chaired by an Assistant Chief Officer of Probation and an Assistant Chief Constable. The SMB meet quarterly, and are supported by a MAPPA planning group, which takes forward detailed planning of developmental work and also makes recommendations to the SMB.

The SMB task:
To evaluate the operation of MAPPA in Essex. To ensure robust links for information-sharing are established with key agencies and structures (for instance the Area Child Protection Committee) so as to enhance MAPPA's performance. To monitor information-sharing processes. To secure appropriate resources which ensure the multi agency public protection arrangements can be delivered to a consistent and high standard. To review local arrangements to make sure they reflect any wider legislative or criminal justice or public protection developments. To approve and publish the MAPPA Annual Report and also to confirm a supporting media strategy. To take forward the development and delivery of a long term MAPPA training strategy in conjunction with the Eastern Region. To review cases considered at Level 2 or Level 3 under MAPPA, where a serious further offence takes place. Thereafter to identify the learning and action points to ensure that multi-agency working and the public protection arrangements are continually improved and reviewed. To review the quality of delivery of MAPPA, ensuring adequate information is available to offenders, service users and the public, taking into account ethnicity, gender, disability, sexuality, class and age.

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Contacts

Allan Taplin, Essex MAPPA Manager 01245 452767 Allan.Taplin@essex.pnn.police.uk Alex Bamber ACO National Probation Service - Essex Area 01376 501626 Liam Brigginshaw ACC Essex Police O1245 491491 David Watts Essex Social Care and Learning Services 01245 492211

The members
Assistant Chief Probation Officer Assistant Chief Constable Essex Police Director of Intelligence Senior Officer to represent Social Services (Essex, Southend or Thurrock) Senior officer to represent YOT (Essex Southend or Thurrock) Two lay advisors (appointed March 2005) A representative of the Essex Housing Officers group The Directors of North Essex Mental Health Partnership NHS Trust and South Essex Partnership Trust (Providers of Mental Health Services) Senior Manager Essex Job Centre Plus A regional Prison Governor Regional Manager, Essex Victim Support Two co-opted members representing Essex PCTs

Links between the SMB and other public protection structures are well established. In addition to his commitment to MAPPA, the Assistant Chief Officer of Probation is a member of the three Area Child Protection Committees, the Crime and Disorder Partnerships and raises MAPPA issues to be discussed at the Essex Criminal Justice Board. The MAPPA Manager also attends the ACPCs and is a member of the Sexually Abusive Behaviours Forum which manages risk posed by young offenders.

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Notes