Multi Agency Public Protection Arrangements

Humberside

Annual Report 2004-5

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 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
Introduction The Background to the Multi Agencies Public Protection Arrangements (MAPPA) Who does MAPPA deal with? How are offenders managed under the MAPPA? Who's Who in MAPPA? The Responsible Authority
The Strategic Management Board Report by the SMB Chair Humberside Police National Probation Service - Humberside The Prison Service - Yorkshire and Humberside Area "Duty to Co-operate" agencies Youth Offending Teams Jobcentre Plus Local Education Authority Local Housing Authority Registered Social Landlords Local Authority Social Services Health Services

Key Achievements over the past year
Prison Service. ViSOR MAPPA Co-ordinator MAPPPs held centrally Recall Procedures Strengthening of Police Teams

What do the Statistics tell us? Statistics Strategic Management Board Members Agency Contact Points

Introduction
We are pleased to present the fourth annual report on the Multi Agency Public Protection Arrangements in Humberside. This is the first year that this report has been the responsibility of three services, the Prison Service now joining the Police and Probation Services as the Responsible Authority. On a personal basis this is our first opportunity to lead on such a report for this area and we all wish to take the opportunity to confirm the commitment of our services to MAPPA at a strategic and operational level. This year has seen the development of the Prison Service as a full partner in the responsible authority for these issues, the introduction of an effective central Strategic Management Board and the positive impact of a full time MAPPA Co-ordinator. These advancements have seen an improvement in our processes and supported our efforts to manage the risk posed by relevant offenders. In an effort to further broaden the processes we have appointed 2 Lay Advisers to the Strategic Management Board and they will begin to participate in the near future. As can be seen from the content of the report this has again been a demanding year, with Humberside managing a number of cases with national implications, changes in legislation and the introduction of a national Sex Offender Database. Consistent with our joint aim of protecting the public we have responded by allocating staff, resources and training to meet these demands. In previous years we have only outlined the involvement of other agencies, however this report includes contributions from individuals in the agencies working together under the MAPPA. We believe the tenor of those contributions indicates the positive continuing 'multi agency' progress we are making. We believe this report contributes to the growing knowledge of, and confidence in, the MAPPA process, particularly for those who live and work within the community we serve.

Tim Hollis Chief Constable Humberside Police

Steve Hemming Chief Probation Officer National Probation Service - Humberside

Steve Wagstaffe HM Prison Service Area Manager Yorkshire and Humberside

The Background to the Multi Agencies Public Protection Arrangements (MAPPA)
Protecting the people of Humberside from the most serious offenders living in our community continues to be one of the highest priorities for the Criminal Justice Agencies in our area. The Multi Agency Public Protection Arrangements (MAPPA), quite simply, are arrangements based on knowledge and research which shows that the best way to manage and reduce the risk such offenders pose is for all agencies involved in working with them to share information and then work together based on that information. The formal basis for the arrangements is under Sections 325 to 327 Criminal Justice Act 2003 and the "arrangements" themselves are published by the Home Office in the form of a Guidance Document1.

certain sexual offences who are required to register with the police. Category 2: Violent and other offenders who generally have received a sentence of imprisonment of 12 months or more. MAPPA additionally applies to those individuals whose previous convictions and behaviour indicate they are capable of causing serious harm and there is a current concern about the risk they present which requires multi agency management. Referrals in regard to this type of offender can and do arise from any of the agencies involved in MAPPA. Again, the formal definition is; Category 3: Other offenders not in either of the above categories but who are considered to pose a risk of serious harm to the public. The inclusion of these offenders under MAPPA is based on two considerations. First it must be established that the individual has a conviction for an offence which indicates they are capable of causing serious harm to the public. Secondly it must be reasonably considered that they may cause serious harm to the public. The statistics at the end of this report show the number of offenders in the three categories we have in Humberside. Whilst any agency involved with MAPPA will respond to risk of harm when it arises it should be remembered that no agency can provide an absolute protection. Some potentially dangerous people are not known to any local agencies, including police or probation, prior to their offending.

Who does MAPPA deal with?
It is important to remember that the majority of people who commit offences never have any need to come into contact with MAPPA either because of the type of offences they commit or the risk of harm they pose to the public. MAPPA applies to certain categories of individuals who are currently being dealt with for a sexual or violent offence. In the main these offenders are registered sex offenders, i.e. those convicted or cautioned for certain sexual offences who are required to register with the police, or violent and other sex offenders who generally have received a sentence of imprisonment of 12 months or more and will be supervised in the community by the probation service or youth offending teams. These offenders fall into two categories formally defined as; Category 1: Registered sex offenders, i.e. those convicted or cautioned for

1

Multi Agency Public Protection Arrangements 2004. Home Office.

2

How are offenders managed under the MAPPA?
Risk management is defined as harm reduction either through the reduction of the likelihood of a risk occurring or the reduction of its impact should it occur. The structure of risk management under MAPPA is intended to enable resources to be deployed to manage the risks identified in the most efficient and effective manner. There are three levels of risk management used under the MAPPA. Although generally the higher the assessed level of risk the higher the level of management required this need not always be the case. The risk management structure is based on the principle that cases should be managed at the lowest level consistent with providing a defensible risk management plan. The three levels are; Level 1:Ordinary risk management. This is the level used in cases in which the risks posed by the offender can be managed by an agency without significantly involving other agencies. The majority of cases supervised by the police or the probation service come into this level. Level 2;Local inter-agency risk management. This level of management is used where the active involvement of more than one agency is required. In Humberside we use the acronym LRMM, for Local Risk Management Meetings for this level and LRMMs are held monthly in each of the four Divisions at Scunthorpe, Hull, Grimsby and Beverley. Level 3:Multi Agency Public Protection Panels (MAPPPs) This level deals with those "critical few" cases which are assessed as being a high or very high risk of causing serious harm; AND they present risks that can only be managed by a plan which requires co-operation at a senior level due to the complexities of the case and/or because of the unusual resource commitments required. Additionally cases which are exceptional because of the high media scrutiny or public interest and there is a need to ensure public
3

confidence in the criminal justice system is sustained are dealt with at this level. MAPPPs are held fortnightly at the National Probation Service - Humberside Headquarters in Beverley. The two levels of meetings held under MAPPA result in clear actions which feed into the risk management plans which lay down specific objectives for the management of the risk the offender presents. Responsibilities and tasks are clearly defined and firm timetables established. The plan needs to be able to deal with changing circumstances of the case and should ensure that all appropriate restraints on the offender are put in place. These restraints can be conditions attached to a Community Order by a court or attached to the "licence" of an offender coming out of prison. Those conditions could for example commit the offender to attend a programme of work on their offending behaviour or to see to a psychiatrist. They could lay down certain activities or contacts the offender must or must not do or make. Other controls can be applied if the offender's behaviour indicated that the risk they present is increasing. e.g. Sexual Offences Prevention Orders can be taken out at any time where it can be proved that the subject has been convicted of certain sex offences and there is reasonable cause to believe that the Order is necessary to protect the public from serious harm from the offender. There may, exceptionally, be some cases where management of an offender's risk in the community cannot be carried out without the disclosure of some information to a third party outside of the usual MAPPA agencies. This may be where, for example, an employer, voluntary group organiser or church leader has a position of responsibility or control over the offender and other people who may be at serious risk from the offender. Disclosure to them of certain information about the offender may be the only way to manage that risk. Wherever possible voluntary disclosure would be discussed with the offender. Great caution is exercised when making such a disclosure and it is seen as an exceptional measure as the disclosure may be to individual members of the public. If such a course of action is required it is always as part of a risk management plan, which has been agreed at either of the two highest levels of MAPPA management, i.e. LRMMs or MAPPPs.

CASE STUDY 1
An offender was sentenced to prison for a violent assault on his wife. Enquiries into the case revealed that this conviction and sentence was the culmination of domestic abuse which had been going on for 15 years and as well as physical assaults had included emotional and financial abuse. The woman wished to take advantage of her husband's imprisonment to make a break from the abusive relationship. The Probation Victim Liaison Officer established contact with the with wife of the offender and a number of issues were identified in regard to the woman's fear of reprisals following the offender's release and concerns about the children's behaviour as a result of the abusive environment. Risk assessments carried out by the supervising probation officer indicated that as well as the clear risk to the offender's wife - which increased significantly when he learned of her wish to end their marriage there was a risk to women in general and particularly those in authority who took a firm stand against the offender. Prior to the offender's release a referral was made to the Local Risk Management Meeting.At those meetings the supervising probation officer and Victim Liaison Officer presented a risk management plan which was supported by other agencies in attendance and resulted in; Agencies being advised that the offender presented a possible risk to female staff in confrontational situations. Social Services carrying out an assessment of the risk presented to the children by the offender and the ability of their mother to protect them. The children's "acting out" of violence to their mother which they had witnessed from their father was identified and work with the family arranged and undertaken by the NSPCC. A referral was made to the "Sure Start" scheme who supported the mother in parenting skills and worked to build up her confidence and self-esteem. The police Domestic Violence Unit maintained contact with the woman offering support and advice. A panic alarm was installed in the woman's home and the local policing

teams advised of the situation, particularly being made aware of the offender's release date. The offender was directed not to return to the home of his wife and children on release and conditions placed on his licence that he made no contact with his wife without the prior approval of his probation officer, that he initially had to reside in a Probation Approved Premises and that he did not enter a defined area around his wife's home. The offender had no recent experience of accommodation availability and therefore to assist him, and to support the supervising probation officer in formulating a move on plan from the probation accommodation an identified officer from the local Authority Housing Department became involved in providing assistance to the offender and liaison with other agencies at the Risk Management Meeting. The offender did not meet the Housing Departments criteria for any priority need but they did provided liaison with and advice on Housing Associations and the Private Rental sector always being mindful of the potential risk presented by the offender and of the area of accommodation excluded by his licence. Following release the offender did comply with all his conditions and the licence period passed without incident. The victim liaison officer reports that after what the offender's wife described as a " lifetime" of abuse she has found the strength and determination to break free of the offender and build a new, safe life for herself and her children. She stated that "words cannot express my gratitude to all involved".

Who's Who in MAPPA?
The Responsible Authority
The Criminal Justice Act 2003 charges the Police, the National Probation Service and the Prison service with responsibility for establishing the MAPPA and refers to the three services as "the Responsible Authority"

4

The Strategic Management Board (SMB)
The duties and obligations of the Responsible Authority are discharged through the Strategic Management Board. In the year prior to this report there were 4 SMBs in Humberside, one in each of the Unitary Authority/Police/Probation Divisions. To provide consistency and a central awareness a Humberside Area SMB was set up to replace the 4 local ones in April 2004. The current membership of the Humberside SMB is given at the end of this report. The broad brief of the SMB is to; "keep the arrangements [i.e. the MAPPA] established by it under review with a view to monitoring their effectiveness and making any changes to them that appear necessary or expedient." Overarching these activities is the role the SMB has to shape the MAPPA framework within the Area. This involves determining the role and representation of different agencies within the framework. It also includes brokering the protocols and memoranda of understanding which formalise those roles. While some margin of discretion in defining the role is left with Area, the following core features are common to all SMBs: (i) monitoring (on at least a quarterly basis) and evaluating the operation of the MAPPA, particularly that of the MAPPPs; (ii) establishing connections which support effective operational work with other public protection arrangements, such as Area Child Protection Committees, local Crime and Disorder Partnerships and local Criminal Justice Boards; (iii) preparing and publishing the Annual Report and promoting the work of the MAPPA in the Area; (iv) planning the longer-term development of the MAPPA in the light of regular (at least annual) reviews of the arrangements, and with respect to legislative and wider criminal justice changes; and, (v) identifying and planning how to meet common training and developmental needs of those working in the MAPPA.

Report of the Strategic Management Board
The Humberside Strategic Management Board, which oversees the Multi-Agency Public Protection Arrangements, has met four times in this financial year. This is the first year in which the Strategic Management Board has operated across Humberside. The Strategic Management Board has spent the first year making contacts with the duty to co-operate agencies as well as the four Local Authorities to ensure that there is both geographical and multi-disciplinary representation. The role of the SMB is to monitor and review the Public Protection Arrangements. This year has been a busy and challenging year for the Strategic Management Board in that there have been Local Risk Management Meetings at Level 2 in respect of 158 offenders. In terms of the management of the most dangerous cases at Level 3, there have been 70 meetings in respect of 27 individuals. This has included the nationally notorious case who was due to be released from a special hospital. Following a number of Multi-Agency Public Protection Panel meetings, a decision was taken by the CPS to prosecute him for two murders which occurred in 1963 for which he was convicted and received two life sentences. The Strategic Management Board consists of representation from the responsible authorities (Police, Prison and Probation) as well as representation from the four Local Authorities and the Health Service. The Board is about to be joined by two Lay Advisers who will give a view as ordinary members of the public in respect of the Multi-Agency Public Protection Arrangements in Humberside. In respect of the future work of the Strategic Management Board, training for members is seen as a priority with the new changes in legislation and practice. The resourcing of Multi-Agency Public Protection Panels will be subject to scrutiny this coming year as will the attendance at such Panels. The Strategic Management Board would like to take this opportunity to thank all those staff on the front line for the work that they have done this year which for some has been significantly beyond the call of duty. In order to improve the current arrangements, it is planned to involve offenders in the Multi-Agency Public Protection Arrangements. Angela Montgomery Chair Humberside Area Strategic Management Board

5

Humberside Police
A fundamental objective of any Police Service is the prevention and detection of crime. Humberside Police's contribution to the MAPPA process helps the service work towards meeting that objective by ensuring public safety and the prevention and detection of crimes of a serious sexual or violent nature. Dedicated Risk Management Officers attached to the Family Protection Team in each of its four Divisions focus on public protection and the management of high risk offenders in the community. They carry out risk assessments on Registered Sex Offenders using a Home Office approved procedure (Risk Matrix 2000) and then develop plans to manage that risk drawing in co-operation of other agencies through the MAPPA process as appropriate. Risk Management Officers are core members of the meetings held under the MAPPA and act as the conduit for the flow of information and required actions between MAPPA and colleagues in police operational and intelligence units.

The police are the lead agency in Humberside for ViSOR (The Violent and Sex Offender Register), the computerised database providing a national oversight of offenders subject to MAPPA. Humberside police jointly resource the post of MAPPA Co-ordinator. The local Operational Superintendents are regular attenders of meetings held under MAPPA and chair the Local Risk Management Meetings in the absence of the MAPPA Coordinator. The Detective Chief Superintendent responsible for the MAPPA jointly chairs Level 3 MAPPPS.
… within North Lincolnshire we have continually assessed what we do and how we do it with the emphasis being on ensuring that all the other agency representatives are fully involved in the meeting and the decision making. Our development has been held up as best practice and has seen the meeting develop into one of the best attended. I feel confident in the strength of commitment from a very focused group of professionals, my knowledge of other agencies and the way in which they work has increased dramatically and that in itself has given me greater understanding of where they fit in and can assist me in my role. We are now at the stage where a core panel has developed representing all relevant agencies. Meetings are professional and focused as the panel members are well briefed before the start and the available information allows for informed decisions to be made and questions asked from a position of strength. I do not think any agency is left to manage risk alone if it feels input is required from other agencies and I am confident that the solid risk management plans produced have reduced the risk and prevented re-offending in our community. Police Risk Management Sgt, Humberside Police

In North East Lincolnshire, I have found that over the past year MAPPA has significantly developed and moved forward. In 2004 a cocoordinator was appointed for the Humberside area. This has had a progressive and developmental effect with good practices across the force area being adopted in each area. The ability to have the same chairperson for all level 2 local risk management meetings has improved and standardised decisions making. The appointment of the clerical officer for LRMM and MAPPP has ensured quality minutes are now produced and action plans and points are formalized. I feel there is need to build upon the steps already taken and fully ensure that only the appropriate significant persons are referred to both the LRMM and MAPPP forums. The Local Risk Management Meetings have also given backing to several Sexual Offences Preventions orders that I have presented to the Local crown court at the time of conviction or/ sentence. Each application being ultimately successful. Risk Management Officer Humberside Police

6

National Probation Service Humberside
The National Probation service - Humberside's contribution to the workings of MAPPA is wide-ranging. It starts with the initial risk assessment of offenders who come before the courts for sexual or violent offences. The risk assessment process uses a Home Office approved procedure called the Offender Assessment System (OASys). The service then supervises and manages any such offenders placed on community orders, including action to return offenders to court if they fail to comply. As is perhaps to be expected the majority of offenders MAPPA works with are sentenced to imprisonment for their offences and the probation service carries out pre-release work with those prisoners and has responsibility for their supervision and management on licence following release. Again this would include requesting a revocation of the licence and a recall to prison if the offender failed to comply or the risk they presented became unmanageable in the community. In carrying out their responsibilities, supervising probation officers - offender managers - refer appropriate cases to MAPPA where a significant input is required from other agencies in achieving the risk management plan. Those officers would then attend any meeting called under MAPPA in regard to the offender. National Probation Service - Humberside delivers specialist accredited programmes to address offending behaviour, including a nationally recognised Sex Offender Treatment Programme. The probation service manages two Approved Premises in Humberside for offenders who need an enhanced level of supervision. As well as its work with offenders the probation service also has a statutory responsibility to contact all victims of sexual and violent crime where the perpetrator has been sentenced to 12 months or more in prison2 . In our area we have 3 specialist Victim Liaison Officers in the probation service covering the two geographical areas north and south of the Humber.
7

I believe that the victim contact units role is not only vital to the victims/survivors we work with but also crucial in respect to the risk management of offender.I feel privileged to represent the probation service as a VLO, the work can be challenging and difficult as the people we contact are often still experiencing the devastating impact that being a survivor of serious crime entails.At times though when you receive a call, as I did recently, from a victim who stated the following; " I don't know how my family or myself would have coped during the last three and a half years without your help, we all want to thank you so much" it makes you realise just how important our work with victims is, the families gratitude is reward enough. Victim Liaison Officer National Probation Service - Humberside

The Victim Liaison Officers are core members of the meetings held under MAPPA and advise agencies about any victim concerns relevant to the management of the individual offender
The main focus of the team's work involves visiting victims in their homes, communicating a victim's concerns and making appropriate plans for protection arrangements with case managers, the Prison Service, Parole Board and other statutory and voluntary agencies involved in public protection. Joint work with our partners in the MAPPA process has meant that victims of crime receive a more holistic service which helps to address their anxieties about an offender's release and supervision in the community, their fear of repeat victimisation and facilitates more effective risk management. They have direct contact with the victim liaison officers and the police risk management officers and this co-ordinated approach enables us to base risk management decisions on the most up to date information and respond quickly and effectively to concerns or changes in circumstances to either those of an offender or the victim and their family. Victim Liaison Officer, National Probation Service - Humberside

2

sect 69. Criminal Justice and Court Services Act (2000).

The Prison Service - Yorkshire and Humberside Area
The Prison Service plays an important role in protecting the public by keeping offenders in custody; helping them to address the causes of their offending behaviour; and by undertaking other work to assist their successful resettlement. There are four prisons within the Humberside Area, HMP Hull, HMP Everthorpe, HMP Wolds and HMP Full Sutton. Of course offenders from this area are also held in other prisons nationwide and are released to Humberside from them. The main focus of the Prison Service contribution to MAPPA is at an operational level and a number of measures are being put in place locally across the prison estate to ensure that this will be effective and result in:

"Duty to Co-operate" agencies
The principal responsibility for protecting the public from sexual and violent offenders continues to rest with the criminal justice agencies. However, the effectiveness of public protection often depends on more than just a criminal justice response. It is well known that other agencies play an important role in helping offenders to resettle and avoid reoffending. For example, research has shown that offenders with jobs have one-third to one-half lower rates of re-offending than offenders without employment. Re-offending among offenders who have stable accommodation on release from custody is similarly lower. The important contribution other agencies can make is also highlighted in cases where offenders have mental health problems or where they pose a risk of harm to children. In acknowledgement of the above The Criminal Justice Act 2003 imposed a duty on various organisations providing public services to co-operate with the MAPPA. Over the last year we have worked to develop the involvement of what are referred to as "Duty to Co-operate" agencies. These agencies include; Youth Offending Teams Jobcentre Plus Local Education Authority Local Housing Authority Registered Social Landlords Local Authority Social Services Health Services Enabling the co-operation of all those agencies, which work with MAPPA offenders, is therefore vital. Placing that co-operation on a statutory basis underpins the good practice that has already developed; and locates it clearly within the established framework of the MAPPA

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 and where appropriate attendance at those meetings by relevant prison staff. At least three months notification to police and probation of the expected release dates of those offenders who have been referred to the multi-agency public protection panel (MAPPP), and at least six weeks notification of those being managed at level 2 risk meetings (LRMMs) No changes to release dates or arrangements being made without prior consultation with police and probation

What must the "Duty to Co-operate" agencies do?
The legislation does not define the activities the duty to co-operate involves nor does it require the agencies on which it is imposed to do anything other than what they are already required to do. The purposes of co-operation are: to co-ordinate the involvement of different agencies in assessing and managing risk to enable every agency, which has a legitimate interest, to contribute as

• •

8

fully as its existing statutory role and functions requires in a way that complements the work of other agencies Agencies therefore participate through

now core members of the local risk management meetings - will refer them to MAPPA. As a new manager in the Youth Offending Team I have been attending Hull Local Risk Management Meetings since November 2004. This time coincides with the issue of a guidance document "Managing Risk in the Community3" from the Youth Justice Board. This paper clarifies the process of risk assessment and the link to local MAPPA systems for Youth Justice Officers. I predict that there will be an increased incidence of case notification at Level 1 from the Hull YOT in the coming months as we become more familiar with the new guidance. Team Manager Hull Youth Offending Team

the identification of MAPPA offenders and the agencies with a specific responsibility for, or a broader interest in, the offender; information sharing either specific to that offender or more general advice about an agency's role and the type of services it provides. This can helpfully involve advice about how those services can be accessed and provide a point of contact for other agencies. the formal assessment of risk and the contribution each agency can make to the interpretation of all the relevant information about an offender; and, co-ordinating the plans to manage the identified risks so that each agency performs its role in a way which at best complements the work of other agencies, or at the least does not frustrate or compromise their work.

Jobcentre Plus
Jobcentre Plus is an executive agency of the Department for Work and Pensions formed in 2002 when the Employment Service, which ran Jobcentres, and those parts of the Benefits Agency which provided services to people of working age through social security offices, were combined. Jobcentre Plus aims to provide work for those who can, and support for those who cannot, by : Helping disadvantaged people into work, as a route out of poverty; Providing financial support as a safety net for people of working age while they are out of work; Addressing inequalities of opportunity; Protecting the integrity of the benefit system; and Working with employers and partners to address market failure in the labour market.

Youth Offending Teams
Local authorities across England and Wales have a statutory duty to establish Youth Offending Teams (YOTs). YOTs are themselves Multi-agency partnerships in which police and probation play an important role but are regarded as performing a 'single agency' risk assessment and risk management role. YOTs are responsible for the supervision of young people on community orders and during their licence period following their release from detention. They have skilled, specialist staff who can manage risk effectively, whilst also addressing the vulnerability of the young people themselves Most of the young offenders for whom YOTs have responsibility will not, by virtue of the type and length of sentence they receive fall within MAPPA but with the minority that do present a high risk YOT managers - who are
9

• • • • •

All these activities underpin the Department for Work and Pensions' purpose of promoting "opportunity and independence for all". The priority customers, identified by the agency's performance target structures, are
3

Managing Risk in the Community, Edition 1 (2005) Youth Justice Board.

those at greatest disadvantage in the labour market. These customers include people with specific disadvantages, such as ex-offenders, refugees, homeless people, drugs misusers and people without basic skills. Helping them contributes to wider goals, including cutting crime and re-offending rates. Freshstart is an initiative that builds on the close working links between Jobcentre Plus and the Prison Service. Evidence suggests that employment is a key factor in reducing the likelihood of re-offending. Effective links between Jobcentre Plus and the Prison Service can help to make an impact by guaranteeing that offenders about to be released are put in touch with Jobcentre Plus staff at the earliest opportunity. This will be specifically through a work focussed interview where customers can begin to explore job opportunities and help available through New Deal or other Jobcentre Plus programmes. For those unable to work, through disability or illness, claims to benefit can be made. There may be cases where MAPPA decides there is a need to notify local Jobcentre Plus offices that restrictions should be placed on an offender's employment. In those rare cases only the identity of the offender and the nature of the employment from which the offender should be restricted will be disclosed to a senior manager and in most cases this would be done with the full knowledge and permission of the offender who would see the benefit of not being sent for interviews etc where wider disclosure of their offending may be required.

manage the risks the MAPPA offender poses. The LEA representative on MAPPA provides an insight into the workings of schools and the LEA and has some knowledge of child protection, information sharing protocols and current arrangements for risk assessment. The education service, particularly schools, can make a helpful contribution to the work of MAPPA because:

• •

• • •

Schools are able to provide their pupils with programmes of child protection awareness training. i.e. Stranger Danger etc. This training can be re-enforced at times when there is a particular local risk. School staff are well placed to be alert and aware regarding activities within the locality that could provide a threat to pupils. In particular situations, and with the authorisation of MAPPA through the Police, schools are in a position to warn individuals or groups of pupils, or staff, regarding possible danger. Schools are able to provide a safe environment during the daytime for children and young people. The local school is often the first port of call for parents who want to voice their concern regarding worrying activities in the area. Schools are often able to provide helpful information to assist the work of MAPPPs.

Local Education Authorities (LEA)
Broadly speaking the role of LEAs is four-fold: school improvement; special educational provision; access to education; and, strategic management of schools and the local education service. Their 'core business' does not therefore involve them directly with the assessment and management of MAPPA offenders and their most likely involvement in the MAPPA is in cases which involve, either: (a) a MAPPA offender aged under 18 and who is referred by the Youth Offending Team to the MAPPA at either Level 2 or Level 3; or (b) a case where a MAPPA offender poses risks to young people for whom the LEA has a responsibility/duty of care which may be affected by the arrangements to
10

Local Housing Authorities
The provision of accommodation for offenders released from prison presents a continuing challenge for those working in public protection. Close working ties, through MAPPA, are therefore invaluable in seeking to place offenders as sensitively and as safely as possible in their local communities. Local Housing Authorities have two functions that relate to the resettlement of offenders: the allocation of long-term accommodation and the provision of housing assistance for people who are homeless.

I have been involved in MAPPA activity since I took on my current role some four years ago. Prior to this I had a working relationship with Probation Personnel and also other agencies including Social Services, Police etc in my previous role as an Estate Manager My own views are that the MAPPA plays a critical role in dealing with high and medium risk people and is a practical way of progressing their need for placement and accommodation and attempting to avoid potential difficulties with the general public. The meetings can sometimes be long due to the number of cases that have to be discussed and sometimes my involvement/contribution can be minimal. However my feeling is that no matter how small the contribution it is always welcomed. As an accommodation provider the Housing department have a purposeful role to play. One of the difficulties sometimes is where we may agree to re-house an ex offender in a certain property type, in a certain area of the City and this can cause "challenges" from my colleagues on the Estates i.e. "why my area, not in my backyard" scenario. I guess I am the link between the MAPPA and the Estates but unless the Housing Manager is fully convinced that to house someone in his/her area is the right decision then difficulties can emerge. Finally, in my opinion there are many success stories to be had and these far outweigh any failures that have occurred within the MAPPA remit. Housing Rights & Services Manager Kingston upon Hull

The priority need groups are specified in legislation and include, among others a person who is vulnerable as a result of time spent in custody. Clearly, given the importance of accommodation in the resettlement of offenders and hence in the assessment and management of risk, local authority housing representatives can make an important contribution to the MAPPA. As indicated above, this will not necessarily mean that they have a specific duty to accommodate an offender but their advice about accommodation and the procedures by which it is allocated and the suitability of particular housing stock will provide a valuable contribution.

Registered Social Landlords (RSLs)
Registered Social Landlord (RSL) is the technical name for social landlords that are registered with the Housing Corporation most are housing associations, but there are also trusts, co-operatives and companies. Housing associations are run as businesses but they do not trade for profit. Any surplus is ploughed back into the organisation to maintain existing homes and to help finance new ones. Housing associations are now the main providers of new social housing. Most associations are small and own fewer than 250 homes. However, the largest seven per cent of associations - those with 2,500 plus homes - own 78 per cent of all the sector's homes. Some were founded centuries ago but many trace their origins to the 1960s and over the last decade, many new associations - such as Shoreline in Grimsby have recently been formed to manage and develop homes transferred to them by local authorities. Not all RSLs provide accommodation for MAPPA offenders, and it is only those which do that are required to co-operate in the MAPPA. MAPPA locally therefore only engages with those RSLs when they are giving consideration to accommodating a MAPPA offender or are asked for the provision of general advice in regard to accommodation.

Under homelessness legislation local housing authorities must ensure that advice and information about homelessness, and preventing homelessness, is available to everyone in their district free of charge. They must also ensure that suitable accommodation is available for people who apply to them for housing assistance where the authority is satisfied that those people are eligible for assistance, have become homeless through no fault of their own and they fall within a priority need group. This is known as "the main homelessness duty".
11

As one of the area's largest provider of social housing, I see Shoreline Housing Partnership's involvement with MAPPA as essential from all points of view, because we share MAPPA's dual role of assisting in the resettlement of offenders and protecting the public. Very often, a lack of housing is a major obstacle to that resettlement and we are able to help with general housing advice and information about the housing stock. The type and location of property can be crucial for the safety or well-being of either the client or the public and, dependent on stock availability, we can assist MAPPA to resolve a particular issue. It is sometimes necessary to affect an urgent move when a client's safety is threatened, be they a victim of crime or an offender subject to risk from others and this can be facilitated via a direct request from MAPPA. We do, however, have our failures; sometimes we have to refuse a client as a potential tenant when they do not meet the criteria for eligibility on the housing register. Equally, the best laid plans can come to nothing when the potential victim voluntarily seeks out the person from whom we have sought to protect them. Senior Applications Officer Shoreline Housing Partnership

My experience of attending the meetings and contributing to them is that all agencies have the opportunity to obtain a broad picture of how the subjects being discussed will impact not only on their service area and responsibilities, but also on those areas covered by other agencies. The added value of this model is that the discussion element allows expertise to be shared in an environment conducive to reaching consensus and relatively objective joint decision-making. The presence of key professionals ensures that all decisionmaking and planning takes account of relevant legislation and procedural requirements for all agencies. I have on more than one occasion now agreed to a particular course of action to be taken outside of the meeting that has involved working closely with another agency, usually probation, in order to progress a case to a satisfactory conclusion. A particular example of this has been some work conducted jointly with a probation officer to develop a management action plan pending the release of a convicted murderer into the community - with the intention of moving into a family environment. The officer and I achieved what we believed was a safe and workable plan that both safeguarded the children concerned and allowed the subject the potential to live a "family life" on his release. In the event the subject was not granted parole but the work remains on file for future use when release is eventually sanctioned. Child Protection Co-ordinator North Lincolnshire Child Protection Team

Local Authority Social Services Councils with Social Services Responsibilities
The links between the responsibilities of councils with social services responsibilities and the MAPPA are mainly in the area of child protection and safeguarding children. The MAPPA authorities are members of the Area Child Protection Committee (ACPC),soon to be Local Safeguarding Children Boards, and individual practitioners in police, probation and social services work together to manage the risk posed to children by particular dangerous offenders.

Local authorities have a duty, where they have reasonable cause to suspect that a child who lives, or is found, in their area, is suffering, or likely to suffer, significant harm, to make such enquiries as they consider necessary to enable them to decide whether they should take any further action to safeguard or promote the child's welfare. A 'reasonable cause to suspect' may arise because of the known presence of a dangerous offender in the area, and local authority staff work will with staff from the MAPPA agencies to manage the risk that person poses to children.

12

Since 2001 I have attended the MAPPA panels regularly, at first feeling apprehensive, feeling the weight of responsibility in making recommendations in order to safeguard children. As in all multi agency settings relationships have to be forged and trust in each others judgment built up. I find the panel to be truly multi agency, with shared responsibility and operates well in line with ' Working Together to Safeguard Children'. I see my role as advisor in managing the risk an offender may pose to either particular children or children generally, ensuring that information is shared with social service colleagues, following up referrals made to the department and feeding back to panel when required. 'Working Together to Safeguard Children' describes MAPPA and its processes as mirroring child protection conferences, but with the focus on managing the risk posed by the perpetrator which are central to the inter-agency approach. I enjoy sitting on the panel. I feel the child protection perspective is important, and I have learnt a lot about the importance of "joined up" working. Area Manager Children and Families Services Kingston upon Hull Social Services
4

MAPPA for the management of adult offenders in ways that will, through effective, multi agency risk assessment and management, reduce the risk of harm such offenders may present to children.
As a Child Protection Co-ordinator for East Riding and a member of the MAPPA meetings, I have found the MAPPA arrangements to be an important mechanism for inter agency working to safeguard children. For example, there have been instances whereby information has come to light at MAPPA meetings that a high risk offender intends to live with a vulnerable family. Members of MAPPA can agree actions to prevent this potentially dangerous situation e.g. by redirecting the offender, and Social Services are then also able to assess the situation further and provide the family with advice and guidance. These actions can take place without invoking the more formal child protection process or they can dovetail with the child protection procedure but whichever path is taken MAPPA has acted as an information sharing trigger to professionals to put protective plans in place for children .… the MAPPA task is often difficult with information that is sometimes not easy to listen to. However it is hard to imagine how the issues were addressed prior to MAPPA and it can only be concluded that the panel fulfils an important arena in the protection of the public with children included. I have always found the East Riding panel to be supportive and helpful which makes the tasks it has to complete that much easier. Finally the MAPPA enables professional relationships to be established that lead to good communication and child protection activity beyond the MAPPA panel. Child Care and Protection Co-ordinator East Riding of Yorkshire Social Services

Following the tragic death of Victoria Climbié Lord Laming stated; " The support and protection of children cannot be achieved by a single agency….Every Service has to play its part" 5. As legislation6 which has its roots in the report which followed the Victoria Climbié Inquiry comes into force there will be a greater expectation, indeed a duty, placed on other agencies to have regard to the need to safeguard and promote the welfare of children. In their position as principal point of contact in regard to concerns about the welfare of children it is anticipated that social or children's services will lean more towards
4

Health Services
MAPPA's interaction with health services is as diverse as any adult offender's contact with the service. It may be at the primary care level through for example a GP or pharmacist or at the secondary level through hospitals, consultants, etc. The "duty to co-operate" therefore whilst under the umbrella of a particular health Trust, operates at those various levels as needs arise.
5 6

Working together to safeguard children; a guide to inter-agency working to safeguard and promote the welfare of children. 1999. Dept of Health, Home Office, Dept of Education & Employment. HMSO.

Lord Laming in the Victoria Climbié Inquiry Report Children Act 2004

13

The Humber Mental Health Teaching NHS Trust has had a regular seat on the Local Risk Management Meeting for the East Riding area for the last year. This regular attendance has proven to be useful in that a significant proportion of the people who are subject to multi-agency public protection arrangements have a history of, or are currently using, mental health services. During the past year it has become apparent that while colleagues from the Probation, Police and Child Care do show a concern for the mental health of the people they work with, they find the organisation and operation of mental health services confusing. Therefore one of my roles as a member of the LRMM is to explain the operation of the mental health services in terms of appropriate referral routes and the availability and appropriateness of services for individuals being managed under MAPPA. While hopefully being able to develop the understanding of colleagues about mental health issues the LRMM also offers me the opportunity to learn and understand the role of Police, Probation and Child Care in relation to public protection and offender management. This understanding can then be fed back into the mental health system which often has similar difficulties understanding the role and function of the other agencies. Clinical Nurse Manager Adult Inpatient Services (East Riding)

• • •

where serious harm may occur to a third party where a doctor believes a patient to be a victim of abuse and the patient is unable to give or withhold consent where, without disclosure a doctor would not be acting in the overall best interests of a child or young person who is his/her patient and incapable of giving consent when, without disclosure the task of preventing, detecting or prosecuting a serious crime by the police would be prejudiced or delayed

The Forensic Mental Health Service is a specialist service within the delivery of mental health services in North East Lincolnshire. We work with mentally disordered individuals who offend, or have the propensity to offend, and our work covers all aspects of the criminal justice system including point of arrest and post sentence. We function as an integrated member of the MAPPA meetings, providing input direction and advice to all parties involved in risk management. We are able to visit and assess those referred to the MAPPA meetings and thereby provide individual assessments relating to mental health and risk management issues. … we offer a fully qualified staff group which consists of practitioners from both health and social service backgrounds who are able to offer a range of skills and experiences that will hopefully compliment the other disciplines within the MAPPA arena. We are committed to MAPPA to reducing risk through the MAPPA process. The team representative at these meetings will refer and receive referrals of cases where the mental health or behaviour of an individual is of concern, share information and provide advice on case management. Such individuals may be returning to the locality from penal or secure hospital establishments and may require housing, social care or clinical supervision from appropriate professional groups. The MAPPA forum provides our service with a valuable point of contact within the provision of services to mentally disordered offenders from the locality thus enabling a sharing of the expertise and judgement from within a multi - agency framework. Manager Forensic Mental Health Team, Grimsby.

Clearly there are particular issues about working with health professionals and the sensitivities of information sharing and cooperation because of the very different relationship they have with their patients. However, all the advice and published guidance indicates that clarity about roles and the legal principles which enable information to be shared in certain circumstances, will avoid misunderstanding and disagreement. Reference is made to those principles in the section on information sharing in the MAPPA Guidance. As with all MAPPA cases the consent of the offender is obtained wherever possible for information to be sought or passed on. However situations where patient information may be passed on without consent include ;
14

Mental Health Trusts are perhaps the most significant health bodies on whom the duty to co-operate falls because most instances will involve mentally disordered offenders. However, the duty does apply to all health bodies and representatives from the various disciplines are core members at meetings held under MAPPA.

I have represented the Community Mental Health Service (Scunthorpe) in the MAPPA since July 2003. The purpose of my representation is to provide general information to the group on issues that relate to offenders with Mental Health problems who may require MAPPA management and giving feedback on offenders who are known to the Community Mental Health Services in order to help the decision making process of the MAPPA group. My personal experience of attending MAPPA meetings have been very rewarding and has improved my knowledge of how difficult cases are managed with absolute confidentiality. I am most fascinated by the way people who pose great deal of risks are being managed with knowledge of people from different professional backgrounds. My perception of the group is of welldisciplined professionals who share a common goal of protecting the public. As a result of this, a robust risk management is always achieved which adds to the credibility of the MAPPA group and makes it a worthwhile venture. MAPPA group is a very useful forum in sharing information, and has brought about collaborative work, which makes our service more effective and more responsive. As a result, risks have become more manageable in terms of drawing up contingencies within our service. As a service we have therefore become more proactive rather than reactive. Community Mental Health Services North Lincolnshire

The involvement of the learning disability Service with MAPPA has been ongoing for a number of years and strangely it has always felt like a good idea, not that there are a huge number of offenders with Learning Disability managed through MAPPA, it just seems to work I attend the monthly meetings and view that responsibility as multi faceted. I provide expert opinion on individuals with whom I am working, often in partnership with other professionals. I can give a specialist opinion on individual offenders described as having a learning disability but who are being managed by other agencies and can offer background information on people with a learning disability who may be involved with those on the MAPPA agenda and as such be at risk or vulnerable… .….there is always the risk that liaison will come across as a bit limp, vague and thin, but in many respects it is the most important aspect of the Learning Disability Service link with MAPPA. The contacts, expertise and experience that our service can draw on, is invaluable in ensuring the safety of both individuals with a learning disability who offend and the community in which they live. Manager/Community Nurse Community Team Learning Disability North Lincolnshire

Key achievements over the past year
Prison Service.

The benefits for the health service for cooperation in MAPPA have been summarised as providing;

• • • •

a source of information about patients a conduit and framework for joint working a useful source of advice on appropriateness and implications of various medical treatments and interventions help in management of risk in complex cases.

One of the important ways in which the Criminal Justice Act (2003) strengthened the MAPPA was to make the Prison Service part of the Responsible Authority with police and probation in each of the 42 Areas in England and Wales in April 2004. The Prison Service was then given an enhanced role in recognition of the important part it As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs) in the 42 Areas. The Prison estate is configured differently from Police/Probation areas in that its establishments are contained within only 12 geographical areas and two functional

15

areas - the High Security estate, and Contracted Prisons. For this reason arrangements for Prison Service representation on SMBs vary across the country, but each Prison Service Area Manager has entered into an agreement with the SMBs on how the Service will contribute both strategically and operationally to the MAPPA. Playing an effective role in the multi agency risk management of MAPPA offenders requires good communication between criminal justice partners. Over the past year 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. With the ever increasing MAPPA population and the proportion of those received into prison likely to grow with the introduction of the new public protection sentences, the inclusion of the Prison Service as part of the Responsible Authority will continue to be vital in protecting the public.

MAPPA Co-ordinator
A MAPPA Co-ordinator was appointed at the beginning of the period of review. Whilst the responsibility for the operational management of the offenders subject to MAPPA remains with the field officers the co-ordinator works with those field staff to establish a consistency of approach in the way offenders are referred to, and handled by, the MAPPA. The coordinator chairs the Level 2 Local Risk Management Meetings and is accompanied by a minute taker who prepares and distributes the minutes centrally, again seeking to establish a consistency of practice across the area. The MAPPA Co-ordinator liaises with colleagues from the Responsible Authority and "Duty to Co-operate agencies developing and gate keeping the referral process, acting as a central point of contact for MAPPA issues both in the area and for out of area enquiries and arranging and delivering multi agency training on risk and the MAPPA process.

MAPPPs held centrally
Immediately prior to the period under review the Level 3, Multi Agency Public Protection Panels were held locally in the Divisions. However in order to bring a more consistent approach and help maintain a central overview of all high and very high risk offenders in our area they have, since April last year, been held centrally at Police or Probation Headquarters and chaired by the police or probation Senior Management Team member having responsibility for the MAPPA. This appears to be working well and has resulted in attendance at those meetings of the appropriate level of agency representation and facilitated the effective handling of cases where the offender travels across divisional boundaries in our area.

ViSOR
ViSOR is a new national computer based Violent Offender & Sex Offender Register and is set to play a vital role locally and nationally in monitoring sex, dangerous and violent offenders. The system went live in with Humberside Police in February of this year and all sex offenders and other offenders managed on a multi agency basis under MAPPA are now entered on the system. Liaison is ongoing with colleagues in other police areas to ensure the integrity of information, to merge information from different areas and ensure that only one file on the offender exists with clear indication of which officer in which area is managing that case. Because all police forces and eventually all probation areas and prisons will have access to the database, intelligence added by a police, probation or prison officer in one part of the country will become immediately searchable by officers in another. This means that offenders are better tracked making it more difficult for them to change appearance and re-emerge undetected to offend in another part of the country.

Recall Procedures
The steady rise nationally in the number of offenders sentenced to imprisonment has lead to an accompanying increase in the number of offenders on licence supervised by the National Probation Service. Additionally part of the Criminal Justice Act 2003 which came into effect in April of this year in regard to Dangerous Offenders means that prisoners will be supervised for longer periods in the community following their prison sentences.
16

CASE STUDY 2
A sex offender with a history of sexual assaults on children he sought out around local schools was released on licence to another area following a long prison sentence. Shortly after his licence expired he was again involved in indecency offences and placed on a Community Rehabilitation Order with a condition that he attended a sex offender treatment programme. He finished the programme but the tutors assessed him as still presenting a risk of serious sexual harm he was instructed to repeat elements of the work. Whilst repeating the programme he moved to our area to live with his parents and was almost immediately arrested and convicted of harassment of two girls and sentenced to a further term of imprisonment. The prison sentence was a short one which meant that on release he was not subject to a licence allowing probation to dictate where he lived but probation did have a reason for contact as the Community Rehabilitation Order was still in force on his release. The police also had an overview of him as he was required to register with them as a sex offender. Additionally, because the offender had used his car when committing the offence he was disqualified from driving. Prior to his release he was referred to MAPPA and dealt with at Level 3, the Multi Agency Public Protection Panel. A risk management plan was agreed and it was decided to advise him fully of this plan and involve him and his family as much as possible in its execution. Unfortunately his family did not view him as a risk but as a result of joint visits from police Risk Management Officers and his supervising probation officer they saw the advantage to everyone of steps being taken to ensure their son did not re-offend or put himself in a position where he could be accused of intending to offend. On that basis police

obtained permission from the offender to make certain disclosure to neighbours and schools It was agreed that head teachers of schools around his home needed to be aware of his presence and have a clear action plan if he was seen near to any of them. A complication with this was that living as he did on the border of another area two education authorities needed to be involved and this was achieved through the MAPPA process. Social services contacted the family living next door to him who had children and ensured that the parents were fully aware of the particular situation and the children knew what to do if ever approached by any single male in the street. Arrangements were made for him to attend a Sex Offender Programme in this area and through such participation his moods and behaviour were monitored. Police and probation officers agreed to each visit the family home every fortnight meaning that the offender was seen every week. His movements were discussed and he agreed to keep the police informed of any significant trips away from his home. Local police in this area and police in the neighbouring area were made fully aware of his situation and his description and vehicle details were circulated. To date the man has cooperated fully with the agencies supervising him and continues to attend the Sex Offender Programme. He has not to our knowledge re-offended.

Because of this the use of revocation of the licence and recall to prison can be used as a more flexible risk management tool. A new National Protocol was therefore introduced in January of this year to ensure that there is a more collaborative approach between police and probation to ensure supervision, monitoring revocation decisions and in appropriate circumstances a swift recall to custody. In our area the national agreement has been implemented to suit local circumstances such that police and probation work closely,
17

through MAPPA where appropriate, in setting any conditions it is felt need to be attached to a licence, share information of the offenders adherence to the licence and ensure that once a decision has been taken to revoke a licence the offender is returned to custody as speedily as possible in order to protect the public and prevent re-offending.

difficult. These "threats" were taken seriously by the prison and a Level 3 Multi Agency Public Protection Panel was called by the supervising probation officer in the community to plan for the offender's release. That meeting was attended by representatives from police, probation, housing authorities, forensic mental health services, social services, and the prison. A risk management plan was formulated which involved the victim being offered a house move by the local authority prior to the offender being released. The victim was loath to take up this offer as she had established network of friends and support where she lived. Alarms were therefore installed in her home by the police and the local policing team made fully aware of the situation. Licence conditions were agreed to include a direction that the offender did not contact or attempt to contact the victim, an exclusion zone was made around the victim's home and the offender was required to reside in probation approved premises on release. The offender was transferred to a local prison to facilitate easier monitoring of his movement immediately on release. It was felt there was no choice but to make the exclusion area around the victim's home but this of course indicated to the offender that she was living in the same place as when he had offended against her and he chose to see this as her enticing him further thereby increasing the risk he presented. It was noted that a further significant factor in the risk this man posed was a return to drug abuse. The offender was released and did go to the probation approved premises. Soon after release monitoring by the probation service revealed that he was again using an illegal class A drug and a decision was taken to revoke his licence and return him to custody where it is anticipated that his mental health can be assessed and treatment and support given as required.

Strengthening of Police Teams
In response to the move over the last year to a more consistent approach in managing high risk offenders across the area and the increase in collaboration required by legislation in supervising sexual and violent offenders in the community the number of police Risk Management Officers has been increased in each of the 4 police divisions in our area. These officers are working more closely with colleagues from social services and probation and often joint visiting offenders and their families or sharing supervision of offenders. Joint training with the probation service is being undertaken for supervisory and field officers in risk assessment and management.

CASE STUDY 3
A man with a history of violent assaults, criminal damage, offensive weapons and drug misuse and supply became obsessed with a woman whom he met socially but who did not wish to have a relationship with him. His behaviour in trying to make contact with her became such that he was eventually arrested near her home and sentenced to imprisonment.In prison he refused any help with his drug problem and continued to demonstrate violent behaviour, assaulting other prisoners and staff. As his release date approached it became clear to prison staff that his obsession with the woman was returning but now with the added factor that he saw her as the reason he was in custody. He began to make remarks about what he intended to do on release but these were made in such a way that legal action in regard to treating these remarks as "threats" was extremely

18

What do the Statistics tell us?
The statistical information published in this year's report is substantially the same as last year's. However, to capture a more accurate picture of the work being done under MAPPA figures on level 2 (Local Risk Management Meetings) activity in addition to level 3 (MAPPPs) are included as well as outcome measures from that activity. New civil orders introduced by the Sexual Offences Act 2003 which replace and build on the Sex Offender Order and Sex Offender Restraining Order are also included. There are currently 645 Registered Sex Offenders living in our area against a figure of 584 for the previous year. An increase in numbers over last year is inevitable at this stage because the numbers are cumulative as offenders are required to register for extended periods of time and currently the number of offenders who are required to register on conviction is greater than the number whose registration period has come to an end. However the national increase over last year is anticipated to be 15% and in our area it is just over 10%. During the reporting period 20 Registered Sex Offenders were cautioned or convicted for breaching the requirements of their registration. The number of Category 2 offenders, i.e. violent and other sex offenders, recorded as living in this area in the reporting period is 344. This number is significantly higher than that recorded last year. However it should be remembered that this is not the number of such offenders present on any one day but is the number who have lived in the area for a period, however short, at any time during the year. It is felt that this years figures are a reflection of the true situation now that the appointment of a MAPPA co-ordinator enables an area wide scrutiny of the figures. The number of Category 3 offenders dealt with during the reporting period is slightly down at 35 against 55 last year and such a

decrease was not anticipated. This is because there have been two significant influences on this figure over the last year. Firstly the criteria in regard to risk has been more stringently applied thereby ensuring that only those that were assessed as presenting a current risk of serious harm were considered. Secondly however more focus is now directed on offences involving domestic violence. At this time the sentences for offences involving domestic violence often do not meet the criteria for automatic consideration under MAPPA Category 2, Violent Offenders (a sentence of at least 12 months imprisonment is required) but nevertheless the offenders behaviour is such that there is still considered to be a current risk of serious harm to their victims - meeting the criteria for Category 3. For the first time we have included details of the number and categories of offenders dealt with under MAPPA at the Level 2 Local Risk Management Meetings (LRMMs) as well as the Level 3 Multi Agency Public Protection Panels (MAPPPs) 27 Offenders were managed by Level 3 Multi Agency Multi Agency Public Protection Panels at some stage during the reporting period. At 2.6% of the total MAPPA caseload in this area (1024) this is within the nationally predicted range of less than 5% but it is an increase on last years figure (8). A more detailed examination of the figures will be undertaken to ascertain to what degree the number of referrals was influenced by the availability for the first time of a central MAPPP coupled with the lack of resources in any particular division preventing the case being managed at a more local lower level rather than the level of risk presented by the offender driving the referral. There is no significant difference between the number of Category 1, Registered Sex Offenders (12) and Category 2, Violent and Other sex offenders (10) managed at Level 3. 158 offenders across the area were dealt with at the lower level of risk management, Level 2, Local Risk Management Meetings. This figure does not include those offenders who may have been managed at a higher level at some point, perhaps to access resources which could only be authorised at a senior management

19

level, and who then have been returned to local jurisdiction. It is anticipated that nationally cases managed at Level 2 will make up 20% of the total MAPPA caseload. In our area the figure at 158, (15.4%) is slightly lower than the predicted average. Again there is not a great difference between the number of Registered Sex Offenders (58) and Violent Offenders (70). 2 of the 27 cases managed at Level 3, Multi Agency Public Protection Panel and 17 of the 158 cases managed at Level 2, Local Risk Management, were returned to custody for breaching the conditions of their licence. Revocation of the licence and recall to prison should not be seen as a failure of the risk management process. Rather it is an indication that those managing the offenders are prepared to take swift, decisive action when, by re-offending or through their behaviour, an offender indicates that the risk they present to the public in the community is unacceptable. Following recall further work can be undertaken to address that behaviour or other risk management initiatives can be put in place, which will enable the consideration for further release when the risk presented by the offender is considered acceptable. As mentioned above the part of the Criminal Justice Act 2003 which came into effect in April of this year in regard to Dangerous Offenders means that prisoners will be supervised for longer periods in the community following their prison sentences and the use of revocation of the licence and recall to prison will be used more frequently as a flexible risk management tool. In March 2004, ie at the beginning of this review period, a notification, screening and review procedure for serious further offences committed by offenders currently being supervised by probation service was introduced nationally. The purpose of this is to ensure that a robust system of scrutiny is in place for these offenders so that any failures can be identified and rectified, but also that good practice, not withstanding the commission of a serious further offence, is recognised and supported. The trigger factor for this process is the seriousness of the further offence committed not the level of supervision or risk management being applied so this is not purely a MAPPA initiative.

However scrutiny of these cases should lead to learning and possible changes in service delivery relevant to all offenders including those managed under MAPPA. For these purposes a serious sexual and violent offence is defined as;

Murder; Attempted murder; Arson (where there is an intent to endanger life); Manslaughter; Rape; Kidnap/abduction or attempted kidnap/abduction; Any other very serious violent or very serious sexual offence, armed robbery (defined as robbery involving a firearm), assault with a deadly weapon or hostage taking, or; Any other violent or sexual offence where the offender/ offence is likely to attract significant media interest or which raises wider issues of national interest.

Of the 27 cases managed at Level 3 , Multi Agency Public Protection Panels, none were charged with any serious further offences whilst under that supervision. Of the 158 cases managed at Level 2, Local Risk Management Meetings, 1 was charged with a serious further offence whilst under that supervision. This case involved a man with a history of violence, including domestic violence, who was at that time being supervised by the probation service under a Community Rehabilitation Order given for the possession of drugs, possession of an offensive weapon and the breach of a previous Community Rehabilitation Order. The offences and sentence did not meet the criteria for automatic referral to MAPPA but the case was referred under the Category "Other Offender" by the supervising probation officer because of concerns in regard to the risk the man was beginning to present to his ex partner and her children. The split with his partner was recent and acrimonious and the man had reverted to drug and alcohol abuse. Appropriate action was taken in regard to the protection of the ex partner and children but then the man was arrested and charged for allegedly taking part in a serious group assault on others. Subsequently these charges were withdrawn. Sexual Offences Prevention Orders are obtained on application to a court. They place

20

restrictions on an offender to prohibit access to certain places (e.g. schools) and to certain groups of people (e.g. children). The Order remains in place for a minimum of 5 years. In Humberside 16 Sexual Offences Prevention Orders were applied for by the police during this review period. 11 have been granted and 5 are currently being processed. None have been refused. The orders were made both at point of sentence for a sexual offence following close liaison with police Risk Management Officers, police officer in the case and probation and as stand alone applications when concern has arisen about an offenders behaviour. 1 offender has been taken to court and convicted of breaching the Order and is currently serving a custodial sentence for that breach. The MAPPA process cannot guarantee absolute protection. Working with the type of offenders we do, even the most diligent efforts of practitioners cannot always prevent reoffending and serious harm. However we feel MAPPA continues to represent a significant strengthening of public protection in Humberside. We believe the statistics confirm that the development of our work under MAPPA in the assessment and management of risk is reducing re-offending and thereby significantly preventing further serious harm by the most serious offenders in our community.

21

Humberside Area MAPPA ANNUAL REPORT STATISTICAL INFORMATION
For the reporting period 1st APRIL 2004 - 31st MARCH 2005
Number of Offenders

1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)
i) The number of Registered Sex Offenders living in our Area on 31st March 2005.
This is information principally held by the police and is a snapshot of RSOs on 31/03/05. It does NOT include RSOs in prison.

645

ia) The number of Registered Sex Offenders in our Area 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 our Area between 1st May 2004 and 31st March 2005 a) b) c)

73

20 16 0 11

iv) The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in our Area between 1st May 2004 & 31st March 2005

a) b) c)

0 0 0

v)

The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in our Area between 1st May 2004 & 31st March 2005

a) b)

0 0

2. Category 2 MAPPA offenders: Violent and Other Sexual offenders (V & O)
vi) 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 our Area between 1st April 2004 and 31st March 2005
This figure includes only those Category 2 offenders who are living in our Area during the reporting period. They do NOT include those Category 2 offenders who are still in custody.

344

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)) living in our Area between 1st April 2004 and 31st March 2005.
This figure does not include any offenders who are included in either the Category 1 or 2 (i.e. (i) and (vi) above) unless they have left those categories and are still considered by the Responsible Authority to pose a risk of serious harm

35

4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management)
Level 3 Level 2

(viii) Number of offenders in each of the three Categories (i.e. (1)- RSO, (2)- V&O and (3)- OthO above) who have been managed through the MAPPP (level 3) and through Local Risk Management Meetings (level 2) in our Area between 1st April 2004 and 31st March 2005.
The level 2 figure does NOT include those offenders who have not been managed at level 3 at any point in the counting period.

RSO V&O OthO

10 12 5

58 70 30

(ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2004 and 31st March 2005 how many, whilst managed at that level:
Level 3 Level 2

(a) Were returned to custody for a breach of licence? a) (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? b) (c) Were charged with a serious sexual or violent offence? c)

2 0 0

17 1 1

These figures indicate the level at which the offender was managed at the time of their breach/further offence (e.g. if an offender was initially managed at Level 3 but goes on to commit a serious further offence after he has been moved to Level 2, they are recorded in the 'Level 2' column for question (c))

22

Strategic Management Board Members
Angela Montgomery Solicitor & Secretary to Humberside Probation Board Senior Manager for Risk National Probation Service - Humberside 21 Flemingate BEVERLEY East Riding of Yorkshire HU17 0NP 01482 867271 Angela.Montgomery@humberside.probation.gsx.gov.uk John Godley MAPPA Co-Ordinator Crime Management Policy Unit Humberside Police Headquarters Priory Road Police Station Kingston upon Hull HU5 5SF 01482 220248 john.godley@humberside.pnn.police.uk John Crosse Assistant Chief Constable Humberside Police Headquarters Priory Road Police Station Kingston upon Hull HU5 5SF 0845 60 60 222 John.Crosse@humberside.pnn.police.uk Det Chief Superintendent David Hunter Humberside Police Headquarters Priory Road Police Station Kingston upon Hull HU5 5SF 0845 60 60 222 david.hunter@humberside.pnn.police.uk Jon Mager Head of Lifelong Learning ERYC County Hall BEVERLEY East Riding of Yorkshire 01482 392000 jon.mager@eastriding.gov.uk
23

Nigel Richardson Director of Social Services Pittwood House Ashby Road SCUNTHORPE North Lincolnshire DN16 1AB 01724 296002 nigel.richardson@northlincs.gov.uk Jon Plant Acting Head of Service for Children and Families Brunswick House Strand Close Beverley Road HULL HU2 9DB 01482 616004 jon.plant@hullcc.gov.uk Julie Ogley Executive Director of Community Care N E Lincs Council Municipal Buildings Town Hall Square GRIMSBY DN31 1HU 01472 325456 julie.ogley@nelincs.gov.uk Allison Watson Head of Resettlement HMP Hull Hedon Road HULL HU9 5LS 01482 282418 Allison.Watson@hmps.gsi.gov.uk Neil Cowans Head of Security HMP Full Sutton Full Sutton YORK YO41 1PS 01759 475003 neil.cowans@hmps.gsi.gov.uk Mr Said Ali Operational Manager Humber Centre for Forensic Psychiatry Beverley Road Willerby HU10 6XB 01482 336200 Said.Ali@humber.nhs.uk

Agency Contact Points

Humberside Police Police Headquarters Priory Road Kingston–upon-Hull HU5 5SF 0845 60 60 222

National Probation Service – Humberside Head Office 21 Flemingate Beverley East Yorkshire HU17 0NP HM Prison Service Yorkshire and Humberside Area Office Marston House Audby Lane Wetherby LS22 7SD 01937 544500 01482 867271

MAPPA Co-ordinator c/o Crime Management Policy Unit Humberside Police Headquarters Priory Road Kingston-upon-Hull HU5 5SF 01482 220248

Victim Support Schemes
Hull Haltemprice & Holderness East Yorkshire Goole and Pocklington Grimsby and Cleethorpes Scunthorpe and North East Lincolnshire National Victim Support Line
24

01482 587666 01482 307284 01262 401689 01405 767070 01472 250251 01724 871324 0845 30 30 900