Hertfordshire Multi Agency Public Protection Arrangements Annual Report 2004-2005 What is MAPPA and how does

it operate locally? The national picture Key achievements in Hertfordshire


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Foreword Ministerial Foreword by Baroness Scotland What is MAPPP? How MAPPA operates locally What does MAPPA assess? Maintaining contact with victims Case study – Mark* The national picture The involvement of the prison service Lay adviser recruitment A changing environment Key achievements in Hertfordshire The audit Training and procedures Lay advisers Case study – Brian* Hertfordshire Multi Agency Public Protection Panel Membership Case study – Andrew* MAPPA Annual Report statistical information

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*names have been changed


...we are recruiting lay advisers to bring a community focus to our work...


The management of risk is a critical area for probation, police and prison services nationally. Not surprisingly, there is an ever increasing national spotlight on how we deal with high risk individuals in our community and how we protect the public. The Multi Agency Public Protection Panels (MAPPP) were put in place to ensure that we continue to monitor people in the community that we consider to be a risk to others or a risk to themselves. MAPP Panels meet regularly throughout the county to look at high risk cases and to put in place arrangements to reduce the chance of these individuals offending or re-offending. However, without the procedures in place to support their work it is unlikely that any arrangements will work effectively. With so many different organisations involved, ranging from the voluntary sector, local authorities and health as well as the three statutory MAPPA members (probation, police, prisons), we are in danger of something ‘slipping through the net’ unless we have robust and regularly audited procedures for how we deal with our cases. The past year has been devoted to this task. A thorough, independent audit has been carried out and as a result we have developed an action plan to improve our processes still further. It's also been a year of achievement. More emphasis has been given to training staff in risk assessment and management and we have made enormous progress in how we manage the issue of domestic violence. We are on the verge of appointing two new posts dedicated to MAPPA and the associated issue of women's safety. This is also the first year that the prison service has been a statutory partner in MAPPA. We are fortunate in Hertfordshire that there has long been a close working relationship between the MAPPP and HMP The Mount. As inevitably some of the individuals on the MAPPP caseload will have already served time in custody, the prison service input at the most strategic level has been invaluable. The forthcoming year will be another challenging one in which we will continue to work together, and with our other MAPPA partners, to improve safety across Hertfordshire.

Richard Baldwin
Chief Officer Hertfordshire Probation Area

Frank Whiteley
Chief Constable Hertfordshire Constabulary

Stephen Rodford
Governor HMP The Mount


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 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 advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public these lay advisers 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 reassuring to local communities. The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.

Baroness Patricia Scotland Minister of State for Criminal Justice and Offender Management


What is MAPPP?
The UK’s criminal justice system works hard to protect the public and, thankfully, serious crimes are still relatively rare.
However there are few serious offenders that can be kept in custody indefinitely and at some stage they will be released into the community. In a small number of cases there is a concern that they will re-offend and commit an equally serious or more serious offence. In cases where the supervising authorities believe this to be the case, the individual may be monitored and managed by a MAPP Panel. The panel is made up of representatives of the probation, police and prison services. These are known as statutory responsible authorities. Each panel also has representatives from other agencies whose involvement may assist in monitoring an offender. These are typically representatives from social services, health authorities and victim support organisations. The panel may also monitor individuals who have not committed a crime but are also thought to pose a risk to themselves or to others e.g. people with mental health problems or drug/alcohol dependencies. MAPPA is also responsible for monitoring the sex offenders register. Although the procedures can never completely eliminate the risk posed by a dangerous individual, it has a proven track record of successfully preventing many individuals from committing serious crimes and creating further victims. The panel members, who are usually directors or senior managers, will share information and work together to draw up a risk management plan for each individual. The top tier is the Strategic Management Board that sets overall policies and procedures for the other panels to work to and also oversees cases that need review.

What does MAPPA assess?
For each case, the risk assessments carried out by either the LRMP or MAPPP must look at: • The imminence of the event causing serious harm • The degree of harm which the incident is likely to cause • Whether individuals or specific groups of people or communities are likely to be victims of such an event. Each offender is screened to assess the risk that they pose. The screening is based on the probation and prison service Offender Assessment System (OASys). Sex offenders are screened using the police system Risk Matrix 2000. Other agencies have their own risk assessment methods and may use these to alert the panel to a person posing a high risk. Following the assessment, the LRMP has three options for dealing with a case: • Referring an offender to MAPPP if it feels that the case poses a high level of risk to the public • Managing the case itself if the offender is not a high risk to the public • Referring the case back to the probation service or other relevant agency if it is felt that there is no sufficient risk to warrant a multi-agency approach.

How MAPPA operates locally
Hertfordshire has three levels of MAPPA. The third tier deals with offenders that are considered a risk, but less of a danger than those monitored by the second tier. This third tier panel is known as a Local Risk Management Panel (LRMP). Panel members usually consist of operational managers from each agency. If it is felt that the offender poses a high level of risk, the case will be referred to MAPPP – the second tier. MAPPP is reserved for the most dangerous offenders.


After the cases have been placed with the appropriate tier (MAPPP or LRMP), an action plan will be developed for each offender. The panel will consider the risks that the individual poses to: • The public • Specific groups of people • Staff supervising the offender • The individual involved The action plans are regularly reviewed and all new information is considered as part of the decision-making process. Of course risk levels can change over time and the agencies will maintain close contact over the cases.

Maintaining contact with victims
The probation service victim contact unit maintains a link between the criminal justice process and the victims/families of victims of serious violent offenders or sex offenders. The unit will explain the sentence to the victims and what it will mean in terms of how and when they are eventually released into the community. The victim unit will relay any concerns that the victims may have about the release of an offender, for example about where they may live or are allowed to visit. They will ask the authorities responsible for the offender’s release to take these views into account and they will liaise with the victim when they know the date of the eventual release. Although the unit does not provide counselling, it maintains good links with other support schemes locally who are also represented on MAPPP.

“The father of the family became quite upset and very angry when he talked about his son’s murder. I was very aware that the family were still suffering from their loss, and had lots of question that had never been addressed. All you can do in this situation is listen and allow the family to express all their emotions concerning their loved one and the circumstances surrounding their death. They told me about their son and what sort of boy he was, they told me about the offender who was known to the family and had even visited their home. The father advised me that he thinks about his son every day. He felt my visit had helped them to discuss openly how they were still feeling and also it addressed the fears that they all had concerning the offender’s eventual release.”
Victim contact officer


Mark* is a 21 year old male in custody awaiting release on parole licence, having received a lengthy custodial sentence whilst a juvenile for sexually assaulting two teenage girls. Prior to his release the MAPPP panel worked together to gain a clear picture of any risks he might pose to the community once released and steps which could be taken to protect the public. Prison service personnel from the custodial establishment where he was held attended all MAPPP meetings, providing up to date information on his behaviour. The prison service also agreed to fund a forensic psychiatric report which was progressed by colleagues from mental health agencies. The report highlighted that Mark posed a very serious risk of harm to young women which was imminent and could be acted upon after release. He was due for release on parole licence. Assistance was sought from the Public Protection Unit at the Home Office who provided advice and funds to enable Mark to be placed in a locked therapeutic environment on release from custody. The prison service made specific arrangements with the probation service for his release and he was escorted in a vehicle direct from the prison gate to the locked environment to allow him no opportunity to offend. At the therapeutic community he was assigned an officer to be with him 24 hours day. Even so, Mark attempted to use a computer to obtain the address of a female member of prison staff over the internet. Immediate action was taken to revoke Mark’s parole licence and he was immediately returned to custody to serve the full term of his prison sentence. Whilst he remained in custody, police colleagues applied to a court for a sex offender order which will place restrictions on his movement and empower police monitoring for the full duration of his life. He remains in custody and work is ongoing to assess the potential for accessing any treatment or intervention which could reduce the risk he presents to the public. *names have been changed


case study

The national picture
The involvement of the prison service
The year 2004/5 has been an exciting one to be involved in MAPPA. The new Criminal Justice Act has brought the prison service into the process as a member of the ‘responsible authority’ which was previously comprised of the police and probation services. This has been a welcome move given the important role that it plays in protecting the public by keeping offenders in custody, helping them address the cause of their offending behaviour and subsequently in resettlement. The prison service is now represented on all 42 MAPPA strategic management boards. The prison service establishments are only actually contained within 12 geographical areas but each prison service area manager has entered into an agreement as to how the service will work strategically and operationally with MAPPA. The main focus of the prison service contribution will be at operational level. A number of measures have been put in place to ensure that this will result 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 multi-agency 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 MAPPP and at least six weeks notification of those being managed at level 2 risk meetings • No changes to release dates or arrangements being made without prior consultation with police and probation. The prison service has also taken steps to ensure that there are dedicated points of contact for public protection at both area level and in every prison and that these are published together with police and probation contacts to ensure better communication across the responsible authority.

Lay adviser recruitment
Nationally there has been a drive to recruit lay advisers to strategic management boards. Recruitment has been open to people within all sectors of the community and the opportunity has been taken up with enthusiasm in many areas of the country. The drive to recruit such advisers demonstrates the commitment to be responsive to public concerns and underlines the MAPPA aim to be accountable to the public.

A changing environment
In a changing environment there will be even greater opportunities for agencies involved in public protection to work together. The police respond positively to issues of public concern, the probation and prison services are working closely together following the creation of the National Offender Management Service, and Children’s Trusts are being developed to play a key role in protecting children from offending.


Key achievements in Hertfordshire
Hertfordshire has undertaken a considerable amount of work on risk during 2004/5, particularly in the area of domestic violence and in training staff throughout the agencies on the MAPPA procedures.
The work has proved very effective and has resulted in considerable improvements. However in order to ensure that the process is working as effectively as possible, an independent audit of the Local Risk Management Panel and Multi Agency Public Protection Panel was undertaken in autumn 2005. This has resulted in a clear direction for further improvements over the coming year both within the MAPPA process as a whole and for individual agencies to undertake within their own organisations.

The audit
The audit was carried out by Beverley Cohen, an expert in risk and in particular, on child protection. As a result of her report, an action plan has been developed and the following are some of the improvements that will be carried out over the year: • The recruitment of a Multi Agency Public Protection Manager to act as ‘custodian’ of the MAPPA database and the quality of MAPPA work across Hertfordshire • Consideration of a separate MAPPA style structure that will deal purely with domestic violence cases. This system, know as a MARIC, already operates successfully in Wales • A review of all cases to ensure that risk management plans are consistent. A common risk management template will be used for all panels • Consideration of a new post for dealing with victim issues and ensuring that victim views and concerns are communicated to the panels.

“For me personally, the experience of reviewing the operation of MAPPA systems in Hertfordshire was both rewarding and humbling. Effective risk management requires and depends upon the courage and perseverance of those who deal with the most dangerous and worrying of offenders. It is perhaps too easy for those working with such criminals to take their own bravery and perseverance for granted. These are qualities I found in ample supply at all levels of the MAPPA structure. Clearly reviews in themselves cannot resolve problems. The Action Plan approved by the Hertfordshire MAPPA Strategic Management Board in response to the Review demonstrates their commitment to addressing the issues identified in my report. I wish them every success in this endeavour.”

Beverley Cohen
Independent Auditor of Hertfordshire MAPPA systems


Training and procedures
The MAPPA procedures were revised and relaunched during summer 2004. A series of training events for staff across all of the agencies was carried out to ensure awareness. Staff not directly involved in MAPPA process were included in the training to raise awareness throughout the organisations. Following the inclusion of the prison service as a responsible authority, a further training session was undertaken in April 2005 at HMP The Mount. Training has also been undertaken with probation service managers who are responsible for managing staff that work with dangerous offenders. The training looked at many issues including the new risks posed by the internet, the importance of victim impact information and preventing confusion between violent offenders and domestic violence offenders. It also looked at defensible decision-making when managing high risk offenders. Although MAPPA is extremely successful at reducing the chances of serious re-offending, it cannot completely eliminate risk. Working with the strategic management board will be an extremely interesting experience for anyone with an interest in public protection and community issues. We will require people who are happy to bring new ideas and, in some cases, challenge existing working practices. Anyone that is interested in applying for a lay adviser post can contact: Lisa Mathews Director of Operations National Probation Service (Hertfordshire) Graham House Yeomans Court Ware Road Hertford SG13 7HJ tel: 01992 504444

Lay advisers
Hertfordshire has been actively attempting to recruit lay advisers to the strategic management board as part of the national drive to increase public awareness and accountability of the MAPPA process. Despite extensive advertising it has not been possible to appoint to the two vacancies so far. The lay advisers do not need any previous experience of working within the criminal justice agencies but will work alongside the MAPPA Board to look at policies and panel working practices. The advisers will not work on individual cases but may, on rare occasions, be asked to review a panel’s handling of a case.


Brian* is a 45 year old man who has previous convictions for harassing women. Six years previously he attempted to murder his female manager after she had sacked him. He had stalked her for a prolonged period and eventually called at her house where he stabbed her in the head and body with a knife that he had brought along for the purpose. There were indications at the time that he may be subject to an anti-social personality disorder. MAPPP became involved when he was coming to the end of an 18 month prison sentence for persistently harassing a 14 year old girl and her mother. He had exhibited bizarre behaviour in the local community, including putting up posters describing himself as a butcher and going out at night dressed as a Japanese Ninja. The probation officer correctly identified him as a high risk to the public. Before he was released from prison, inter-agency work was done with the prison service, Victim Support and social services and attempts were made to gain his co-operation in a risk management plan. This involved placement in approved premises and a psychological testing. He refused to co-operate and the MAPPP Chair involved the Public Protection Unit. As a result he received a placement at a special facility in the North of England. It was not believed that Brian would co-operate with the placement and arrangements were made through the MAPPP for him to be arrested by the Police quickly if he refused to do so. He did refuse to co-operate and he was immediately re-arrested. Additional work has taken place whilst he was in prison to address his offending and he is again to be referred to the facility and if he fails to co-operate action will be taken to immediately protect the public. *names have been changed


case study

Probation Officers are trained to recognise when offenders may commit further crimes...

Hertfordshire Multi Agency Public Protection Panel Membership
Strategic Management Board
ORGANISATION NAME Lisa Mathews Director of Operations ADDRESS Hertfordshire Probation Area Graham House Yeomans Court Ware Road HERTFORD SG13 7HJ Hertfordshire Constabulary Crime Management Dept. Police HQ Stanborough Road Welwyn Garden City AL8 6XF As above CONTACT NUMBERS tel: 01992 504444 fax: 01992 504544 email:
lisa.mathews@ hertfordshire.probation.gsx.gov.uk



Acting Detective Chief Superintendent Chris Miller Chief Superintendent Fiona Gaskill

tel: 01707 638421 fax: 01707 354608 email:

Sue Tassell

tel: 01707 354662 email:

Adult Care Services

Cathy Kerr

Adult Care Services Herts County Council County Hall Pegs Lane HERTFORD SG13 8DP Adult Care Services Herts County Council Mount Pleasant Mount Pleasant Lane Hatfield HERTFORD Adult Mental Health Services Centenary House Grammar School Walk Hitchin HERTFORD SG5 1JN Child Protection Unit Children, Schools and Families Herts County Council Room 17a County Hall Pegs Lane HERTFORD SG13 8DF

tel: 01992 588820 email:

John Bishop

tel: 01707 280653 email:

Hertfordshire Partnership NHS Trust, Mental Health

Andrew Thiedeman

tel: 01462 438151 fax: 01462 438157 email:

Children, Schools and Families and Area Child Protection

Carol Taylor, Head of Child Protection

tel: 01992 556935 fax: 01992 556946 email:



NAME Darren Welsh

ADDRESS Welwyn Hatfield Council 51 Bridge Road East Welwyn Garden City HERTFORD AL7 1JR HMP The Mount Molyneaux Avenue Bovingdon Hemel Hempstead HERTFORD HP3 ONZ Youth Justice Herts County Council County Hall Pegs Lane HERTFORD SG13 8DF Victim Support C/O Hertfordshire Constabulary HQ Stanborough Road Welwyn Garden City HERTFORD AL8 6XF

CONTACT NUMBERS tel: 01707 357660 email:

Local Authority Housing

Prison Service

Stephen Rodford Governor

tel: 01442 836359 email: (PA)


Tom Rees Assistant Director

tel: 01992 556324 email:

Victim Support

David Padgett Chief Executive

tel: 01707 354626/7 email:

Crime Reduction Unit (Domestic Violence)

Jim Nicholson

Herts County Council County Hall Pegs Lane HERTFORD SG13 8DE

tel: 01992 588737 mob: 07795 120786 email:

MAPPA Manager


Hertfordshire Probation Area Graham House Yeomans Court Ware Road HERTFORD SG13 7HJ

tel: 01992 504444 fax: 01992 504544


Sharing information makes the task of monitoring offenders easier


Andrew* received a 12 month Community Rehabilitation Order on 10 June 2004 for an offence of Common Assault. When studying the CPS documents and previous convictions his probation officer was alerted to the fact that the recent charge of common assault indicated a sexual element and was against an elderly and vulnerable man. She also noticed that in the past he had several violent offences against family members and a schedule one offence against a partner’s 6 month old baby. He was referred to the Local Risk Management Panel (LRMP following liaison with Children’s Schools and Families (CSF)) who had a list of allegations against his children in which that they thought Andrew had some involvement. Andrew was informed about the risk management process and how information could be shared with other agencies. Due to the amount of agencies involved in supporting him and his children he was open to such a process and was able to see the benefits. On first hearing at LRMP he was assessed as imminently high risk. CSF had concerns regarding sexual abuse towards his daughter and his threatening behaviour towards them, as an agency. The case was then directed to MAPPP where the risk management plan was discussed in detail. His probation officer was advised on steps to take to minimise risk of harm to his partner. This involved a meeting with her and intensive work on domestic violence in supervision. His partner was also informed to call the office at any time if she was in fear. Andrew was happy for this and a help line number was passed to his partner after assessing how he might react to such a move. The MAPPP advised that Andrew receive more than intervention from the Community Drug and Alcohol Agency and Probation due to the imminent risk of his anger. More intensive interventions were investigated and Andrew was referred for a Forensic Psychiatric Assessment with a view to implementing a package of intervention. MAPPP decided that all agencies receiving referrals should be alerted to the volatility and anger presented by Andrew, especially when intoxicated through alcohol or drugs. This was adhered to and Andrew was constantly updated on the need for sharing information with other agencies. This helped him have an insight into his own behaviour and eventually appeared to motivate him to make changes. He continued to be very angry towards CSF as they had now stopped any contact with his children, but he was encouraged to look at the reasons why this happened. Andrew was offered a detox programme before any intervention could take place, he accepted and has been alcohol free for 16 weeks. He is having regular counselling. Supervised contact with his children began last week due to the changes in his attitude and behaviour but MAPPP is still involved in the case as risk could be increased for some time whilst he initiates further contact with the children and has increased involvement with CSF towards whom much of his anger was directed. *names have been changed

case study


The needs of victims are important in deciding how to work with offenders


MAPPA Annual Report statistical information
Hertfordshire Probation Area
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i The number of RSOs living in Hertfordshire on 31st March 2005 328 31 5

i.a The number of RSOs per 100,000 head of population ii. 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 iii. The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for b) interim SOPOs granted and (c) full SOPOs imposed by the courts in Hertfordshire between 1st May 2004 and 31st March 2005 iv. The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in Hertfordshire between 1st May 2005 and 31st March 2005 v. The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in Hertfordshire between 1st May 2004 and 31st March 2005

a) 3 b) 1 c) 1 a) 0 b) 0 c) 0 0

2. Category 2 MAPPA offenders: Violent offenders and Other sexual offenders (V&OS) vi. The number of violent and other sexual offenders (as defined by Section 327 (3),(4) and (5) of the Criminal Justice Act (2003) and living in Hertfordshire between 1st April 2004 and 31st March 2005) 3. Category 3 MAPPA offenders: Other offenders (OthO) vii The number of ‘other offenders’ (as defined by Section 325 (2) (b) of the Criminal Justice Act (2003) between 1st April and 31st March 2005) 317 244

4. Offenders managed through level 3 (MAPPP) and level 2 (local inter-agency management) viii) Identify how many MAPPA offenders in each of the three categories (1) RSO (2) VSO and (3) OthO have been managed through MAPPP level 3 and through inter-agency risk management (level 2) between 1st April 2004 and 31st March 2005 RSO VSO OthO ix) Of the cases managed at level 3 or 2 (ie viii) between 1st April 2004 and 31st March 2005 how many, whilst managed at that level: a) b) c) were returned to custody for breach of a licence were returned to custody for breach of a restraining order or sexual offences prevention order were charged with a serious sexual or violent offence

Level 3

Level 2

17 40 55

87 234 262

2 0 4

10 0 0