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Multi-Agency Public Protection Arrangements (MAPPA)

Annual Report 2004-2005
London MAPPA Annual Report 2004-2005

This report
This is a joint report of the Metropolitan Police Service, City of London Police, London Probation and HM Prison 1
Service London setting out how we manage the risks posed by sex offenders and other dangerous offenders
in London.

It covers the period from 1 April 2004 to 31 March 2005 and has been produced in accordance with s.326
of the Criminal Justice Act 2003. In addition to describing details of the Multi-Agency Public Protection
Arrangements for London, it provides some statistical data and contact points.

How to contact us
We welcome feedback and if you have any comments to make about the report they should be sent to:

Marketing and Communications

London Probation
71-73 Great Peter Street

Further copies of the report can be obtained from our websites:

The report can also be seen at your local main library. You may also write to us requesting a copy at the
address above or e-mail us at:


This report, how to contact us, further copies 1
2 Foreword by Baroness Scotland 3

Introduction 4

The Role of the Prison Service in MAPPA 5

MAPPA in London 6

What actually happens? 7

Duty to Co-operate 9

Strengthening the MAPPA 11

Victim Liaison - reducing crime, changing lives 12

Key Achievements 14

The Year Ahead 17

Victim Support Services and Helplines 18

Appendix A: Statistical Information 19

Appendix B: Commentary on Statistics 21

Alternative formats and languages 23

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 3
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

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

We are pleased to present this fourth annual MAPPA report on behalf of the Responsible Authority for London
which is: the Metropolitan Police Service, the City of London Police, London Probation and HM Prison Service -
London Area. The report sets out the contribution MAPPA is making to public safety, outlining our achievements
4 in the last 12 months and looking forward to the new projects that we will be undertaking.

We recognise that much of the offending described in this report is of a particularly disturbing nature, making
public debate difficult and highly charged. However, this is an opportunity to share with the public how we
manage risk and reduce reoffending on their behalf.

The articles, case studies and statistics in this report reveal an overall success story in terms of managing
the risks posed by some of the most challenging and dangerous offenders in the capital. However, we are
also mindful that any further offences, particularly those of a serious nature, committed by such individuals
are tragic events leaving no room for complacency and we will always strive hard to reduce reoffending still

The inclusion of the Prison Service as part of the Responsible Authority has helped greatly to ensure that there
is no interruption in the capacity to manage the risk posed by offenders when they are released back into the
community, on completion of their custodial sentences.

The rollout of the national Violent and Sex Offender Database (ViSOR) to all police public protection teams
will further improve our ability to track offenders. This will further increase when the system is delivered to the
prison and probation services. The new Sexual Offences Act has also allowed MAPPA partners to strengthen
public protection by taking advantage of new civil orders.

The previous annual report included data on the management of offenders at the highest level, the Level 3
Multi-Agency Public Protection Panel (MAPPP). This year, the report includes information about those managed
at Level 2, which is a much larger group of offenders. This will provide members of the public with a broader
view of MAPPA activities.

The statistical information demonstrates that the Responsible Authority in London took robust action where
offenders breached licence conditions or civil orders.

The increasing numbers of offenders that are the subject of management by the MAPPA is indicative of the
improved identification of such offenders. The increased willingness of agencies and professionals to refer
offenders to the MAPPA authorities and to cooperate with them is very encouraging. This willingness and
co-operation suggests that these arrangements will become even more effective in the future.

Commissioner James Hart David Scott, Chief Officer

City of London Police London Probation

Keith Munns, London Area Manager Ian Delbarre, Commander Territorial Policing Crime
HM Prison Service Metropolitan Police Service
The Role of the Prison Service in MAPPA
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 together with police and probation in each of the 42 Areas in
England and Wales. The Prison Service has been given this enhanced role in recognition of the important part
it plays in protecting the public by keeping offenders in custody; helping them to address the causes of their 5
offending behaviour and by undertaking other work to assist their successful resettlement.

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 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. The main focus of
the Prison Service contribution is at an operational level. A number of measures have been put in place across
the Prison estate to ensure that this will be effective and result in:

n Prompt identification of MAPPA offenders so that their details can be used in sentence planning
arrangements, including interventions to manage and reduce risk

n Regular monitoring of the behaviour of those assessed as presenting the highest risk and sharing
information with police and probation colleagues

n All relevant risk management information being provided to multi-agency meetings which help plan
an offender’s release

n 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

n No changes to release dates or arrangements being made without prior consultation with police and

Case Study
A prisoner, who was serving a five-year sentence for violent offences, was coming to the end of
his sentence. This individual had a reputation within his local community for running the estate
on which he lived through intimidation and fear. The prison sent a notification to the Police Public
Protection Unit (PPU) in his home area advising them that he would soon be released.

A Level 2 meeting was held in the prisoner’s home area, which was attended by the Deputy
Governor and the Senior Probation Officer from the prison. The subsequent close liaison between
the prison and the PPU enabled prison and probation staff to negotiate appropriate conditions for
the prisoner’s release on licence and resettlement into the community.

Playing an effective role in the multi-agency risk management of MAPPA offenders requires good communication
between criminal justice partners. The Prison Service has taken steps to ensure that there are dedicated
points of contact for public protection 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

6 With the ever increasing MAPPA population and 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 in London
Due to the size and complexity of London and the rich diversity of its communities, MAPPA has to be organised
in such a way as to ensure that there is consistency of practice in each borough but enough flexibility to meet
local situations.

To achieve this, each of the 32 boroughs and the City of London has its own set of Multi-Agency Public Protection
Arrangements in order to identify, assess and manage sexual, violent and other dangerous offenders.

The Metropolitan Police Service has a Public Protection Team in every borough and a central MAPPA Support
and Co-ordination Unit. These are dedicated MAPPA units which work closely with London Probation Public
Protection Teams, the Prison Service and the ‘Duty to Co-operate’ agencies such as Housing, Health and
Social Services.

City of London
The City of London is policed independently from the rest of London and is the financial centre of the
capital. The resident population of the City is approximately 7,000, but this rises on a daily basis to
in excess of 350,000. This makes the City unique in the crime committed and types of individuals
frequenting it.

The City of London Police currently monitors registered sex offenders resident in the Force area. However,
transient sex offenders and others subject to MAPPA restrictions are regularly stopped by officers patrol-
ling the ‘square mile’.

The City of London Police liaise closely with Public Protection Units across London and officers have
undertaken relevant training courses in order to fulfill this role.

The City hosts its own MAPPP which is held on a bi-monthly basis and is co-ordinated by a designated
Officer. One example of this work is an emergency MAPPP called to discuss a homeless, high-risk sex
offender. The MAPPP helped provide this individual with hostel accommodation, thus making it possible
to monitor him on a more structured basis.
What actually happens?
Each agency has its own contribution to make in the identification of MAPPA offenders to the Police/Probation
referral point. In addition, the Prison Service has a key role in identifying and managing MAPPA prisoners,
which includes an advance notification of release so that appropriate plans can be made in time for the
offender’s return to the community.
Information is then shared appropriately between relevant agencies in a way that balances a concern for
confidentiality and a duty to protect the public. Risk assessments will then be based on sound, accurate
and considered knowledge of the offender and their circumstances. The risk assessments use approved
tools and procedures which provide some clarity as to what the nature of the risk is, to whom and in what

Following this risk assessment, an agreement is reached about how the offender will be managed in order to
reduce the likelihood of their reoffending and to reintegrate them into the community successfully.

There is a three-tier MAPPA management system in order to ensure that resources are allocated according to
the assessed level of risk posed by each offender.

Level 1
Level 1 management is used in cases where the risks posed by the offender can either be mainly managed
by one lead agency such as the Police or Probation Services, or where there is another active risk manage-
ment process such as within the Health Service Care Programme Approach or the Youth Offending Service.
Generally Level 1 offenders will be assessed as a low or medium risk of causing harm. Just over half of MAPPA
offenders in the community in London are managed at this level.

Level 2
Every borough has a regular, usually monthly, Level 2 meeting chaired by a senior police or probation
representative. These meetings are where active and coordinated risk management is necessary to manage
those offenders who pose a risk of causing serious harm. Permanent representation from core agencies
including the Probation Victim Contact Unit, Housing, Health and Social Services contributes significantly to
robust risk management.

Level 3 - The MAPPP

Level 3 meetings are usually held when required to manage the highest risk offenders, known as the ‘critical
few’. Senior management representatives of each agency will attend so that any appropriate extraordinary
resources can be allocated in order to manage the risks involved. Last year 1% of MAPPA offenders in the
community were managed at this level.
Risks can and will change so it is important that there are regular reviews to ensure that each offender is
managed at the appropriate level. MAPPA provides the framework for managing the changes effectively and

All MAPPA meetings are confidential and are chaired with the aim of maximising participation. Records are
kept to document decisions made, the responsibilities for tasks allocated and timescales.

Risk management plans should balance the controls or restrictions that need to be placed on an offender with
treatment and help requirements to reduce the likelihood of offending and could include any of the following:

n Monitoring (including electronic monitoring)

n Intelligence sharing

n Accommodation requirements

n Prohibited behaviours

n Curfews

n Attendance at programmes

n Planning for limited disclosure to other relevant people

n Contingency arrangements
n Review.

Case Study
A sex offender convicted of rape and false imprisonment against his former partner and her new
boyfriend was due for release from prison. He had a very poor response to prison and failed to
complete any treatment programmes.

A Level 3 MAPPP meeting was held and the previous victims contacted. He was visited in prison
and was found to be un-cooperative and guarded about his intended activity upon release.

A London-wide briefing was circulated via the central Metropolitan Police MAPPA Support and
Co-ordination Unit. Alarms were installed at the previous victims’ addresses and the local officers
were alerted to the threats and risk he posed.

When he was released, the offender was required to live at a probation hostel so that his
movements could be closely monitored. Other conditions included: not to enter the boroughs where
his victims lived, not to attempt to contact the victims and to attend treatment programmes.
Duty to Co-operate
The Metropolitan Police Service, City of London Police, London Probation and HM Prison Service
- London Area is the MAPPA Responsible Authority. The following organisations have a statutory ‘Duty
to Co-operate’ with the MAPPA.

Youth Offending Teams

Whilst the majority of MAPPA offenders are adults, some will be young offenders aged under 18. They will be
under the supervision of the borough Youth Offending Team who can put intensive supervision arrangements in
place for juvenile offenders.

Jobcentre Plus
Jobcentre Plus can be notified if there are restrictions placed on an offender’s employment.

Education Services, and particularly schools, can make an important contribution to MAPPA
and child protection.

Permanent accommodation is extremely important to the assessment and management of the risks
posed by sexual and violent offenders. London has 13 Approved Premises (Hostels) that provide closely
supervised accommodation with strictly enforced conditions of residence and curfews.

Local Authority Housing and Housing Associations are also represented at MAPPA meetings as they have
an important contribution in advising on accommodation procedures and suitability.

Social Services
It is crucial that MAPPA and Social Services link closely in order to ensure that both children and vulnerable
adults are protected from dangerous offenders.

A significant number of MAPPA offenders will have health issues including mental health problems. There
is generally a Health representative at each MAPPA Level 2 and 3 meeting and effective links are being made
to ensure that appropriate assessments and treatment are provided.

Electronic Monitoring
Electronic Monitoring can provide an important service as part of a high-risk management plan.

Civil Orders
The Sexual Offences Act 2003 introduced four new civil orders, which are assisting the MAPPA to protect the
public, especially children and others who are particularly vulnerable to abuse.

10 Sexual Offences Prevention Orders

Restrict grooming or preparatory behaviour by convicted sexual offenders. For example, an offender
may be prohibited from entering childrens’ playgrounds or visiting swimming pools.

Notification Orders
Require offenders guilty of certain sexual offences committed abroad to comply with the notification require-
ments under the Sexual Offences Act 2003.

Foreign Travel Orders

Restrict travel by offenders convicted of sexual offences against children where it is considered
necessary to protect children abroad from being the subject of sexual offences.

Risk of Sexual Harm Orders

Restrict grooming or preparatory behaviour by persons thought to pose a sexual risk to children. For example,
this order could be used to stop an adult sending a child pornography or indecent text messages by mobile

Case Study
A sex offender who was due to be released to a London borough was serving his sentence in
another part of the country. Part of the risk management for the offender on release involved
applications by the police for a Sexual Offences Prevention Order. It was decided that it
would be easier for all concerned if the court hearings were in London. To facilitate this, an
arrangement was made to transfer the prisoner to a London prison.

As the offender was deemed to be a high risk, several Level 3 MAPPP meetings were
held and were attended by police, probation and prison officials. Prison staff were able
to supply police and probation with information that greatly assisted in their preparation
for the offender’s release and in formulating the conditions of his licence. A controlled release was
arranged and the offender is now being risk managed in the community.
Strengthening the MAPPA

The Duty to Co-operate - borough events

The Responsible Authority in London has always recognised the crucial role that non criminal justice 11
agencies have in public protection and welcomed the more formalised co-operation that came with the
new legal requirement.

In order for MAPPA to work effectively and realistically, it is essential that all agencies have a clear
understanding of each other’s responsibilities and boundaries so that expectations of potential contributions
are legal and realistic.

In the autumn of 2004, centrally co-ordinated events were held in the 32 boroughs and the City of
London. These events were attended by representatives of all the MAPPA agencies. They also provided an
opportunity to reflect and consolidate local working arrangements and to identify strengths and
challenges in the implementation of the Duty to Co-operate. Feedback showed that 99% of participants found
the events useful or very useful for their MAPPA work.

Most boroughs have a protocol or agreement which outlines roles and responsibilities in the local MAPPA
together with relevant contact points. Our challenge is to develop a meaningful overarching London-wide
protocol, which determines the basis for effective inter-agency cooperation, while recognising the difference
in multi-agency structures across the boroughs.

Prisons come on board

On 1 April 2004, HM Prison Service became part of the Responsible Authority. London Prison Area responded
to this by appointing a Public Protection Manager to oversee the implementation of the MAPPA procedures
by the eight London prisons. This implementation has been very successful and all these prisons are fully
engaged in the MAPPA processes, including full liaison with London Probation and the Metropolitan Police.

This extends to quarterly meetings of the Area Public Protection Manager for the London Prison Service,
the Metropolitan Police Central MAPPA Co-ordination and Support Unit, the London Probation Risk Unit and
MAPPA personnel from all London prisons. These meetings, known as the ‘3Ps Forum’, have been invaluable
in providing training, solving problems and sharing good practice.

The Strategic Management Board

The Strategic Management Board (SMB) for MAPPA in London has had a busy year since its relaunch following
the publication of new national guidance in April 2003.

Membership has been reconstituted in order to comply with the Duty to Co-operate provisions and now
includes mental health, local authority, youth justice and electronic monitoring representation in addition
to the Responsible Authority agencies (police, prisons and probation services). The recent appointment
of Lay Advisers to the SMB is a welcome and significant development.

The SMB is developing a more robust scrutiny of MAPPA provision in London so that we can be satisfied that
public protection arrangements are effective and provide value for money. Systems are being implemented to
audit our work so that we can build upon best practice.

We are enhancing our links with other public protection arrangements, such as community safety
partnerships, local criminal justice boards and area child protection committees, shortly to become local
12 safeguarding children boards.

A key commitment is to ensure that all staff working in MAPPA are receiving the necessary level of training and
development to discharge their responsibilities with confidence and to the highest professional standards.

The year ahead will build upon these achievements and the Strategic Management Board will continue to have
a central strategic role in maintaining the quality and consistency of public protection work in London.

Lay Advisers
The Criminal Justice Act (2003) requires the Home Secretary to appoint two Lay Advisers to each police/
probation area to assist in the review of the MAPPA. The Act makes it clear that the Lay Advisers will be
appointed to assist in the MAPPA review functions, not the operational decision-making. Therefore Lay Advisers
will operate as full members of the Area’s Strategic Management Board (SMB). This is a new and exciting
initiative, which will give a public perspective to the strategic management of MAPPA processes.

In London, the advisers were recruited from the general public via advertisements in the media. These adverts
were targeted to maximise access to all of London’s diverse population. Short-listed candidates underwent
a thorough assessment day, leading to the appointment of two successful candidates. They will now undergo
a weekend of training prior to becoming full members of the SMB. We are very much looking forward to them
joining us and are confident that they will assist in providing a new perspective to the MAPPA function.

Victim Liaison - reducing crime, changing lives

L ondon Probation has been working with victims of serious sexual and violent crime for many years.
The Victim Liaison Service provides victims of offenders sentenced to over 12 months imprisonment with
information about the offender’s release plans. Victims are also consulted for suggestions about specific
conditions in the offender’s licence to prevent unwanted contact.

Victims regularly express relief and gratitude that they have a Victim Liaison Officer (VLO) to talk to,
who can give them some understanding about the criminal justice system.

n Andrea had been falsely imprisoned and tortured by a former partner. Following contact from her
VLO she was able to take control of her life and thanked her “for helping me move to another flat
and feel safer”.

n John, who had been robbed of his wallet, car keys and house keys and threatened, told his VLO
that “no-one can understand the relief in having someone to talk to and explain the system”.
The Victim Liaison Service in London has been involved in Restorative Justice work for several years. This
process encourages offenders to acknowledge the impact of their actions and enables victims to have their
harm or loss acknowledged and amends made. The results of this work have been very positive:

n John, an offender who robbed an elderly woman, wrote to her apologising and gave her £50
n A victim of car crime who was seriously injured wanted to know that the offence was significant to
the offender. They met twice which caused the offender to completely change his attitude towards
crime, report to his Probation Officer regularly and begin full-time education. The offender and
victim found the whole experience “very positive”.

The service provided by Victim Liaison Officers is not only highly valued by victims but also has important
benefits in offender management and management of risk.

Case Study
Debbie had experienced ongoing domestic violence and harassment from her former partner who had
then violently attacked her current partner. The case was referred to MAPPA and the Victim Liaison
Officer succesfully arranged for a visit from the local Police Community Safety Unit. Measures were put
in place in preparation for her ex partner’s release. Debbie’s flat was fully alarmed and secured and any
phone call made to local police by her was prioritised, particularly in the period following release. The
offender is closely monitored by the Probation Service. There have been no further incidents or offences
against Debbie and her partner who are extremely grateful for the support that they have received.

Key Achievements

Violent and Sex Offender Register (ViSOR) - a shared solution

14 ViSOR, the Violent and Sex Offender Register, is a joint national computer database for
police and probation services to register, risk assess and manage sex offenders and
others who may cause serious harm to the public.

The benefit of ViSOR is that it facilitates the free flow of intelligence and information on
offenders of concern, so protecting the public and preventing crime. During the last year,
all public protection units across London plus other specialist teams have been given
access to ViSOR.

The tsunami and travelling sex offenders

Following the tsunami in South East Asia in December 2004, there was significant public and media interest in
the protection of children and particularly in the exploitation and trafficking of vulnerable persons.

Metropolitan Police Public Protection Units were concerned to do everything possible to allay media specula-
tion that sex offenders may be committing offences in the tsunami region. Borough teams were asked to
assess the risk of offenders travelling abroad to commit sexual offences.

A strategy was put in place to communicate with all registered sex offenders advising them not to travel to the
tsunami region, or elsewhere, to commit sexual offences. Home visits were made to those judged most likely to
do so. Registered sex offenders were also reminded that part of the police role is to protect them should they
come under increased scrutiny in their community and they were encouraged to communicate such concerns
to the relevant protection team.

The London approach was recognised as an example of good practice and was disseminated nationwide as
part of the coordinated response to the disaster.

A scheme known as Leisurewatch is being piloted in one London borough. Leisure services staff in this
borough have been trained in how to recognise suspicious behaviour by potential abusers and how to respond
to protect vulnerable children. A range of MAPPA organisations provide the training. Feedback from the staff
has indicated a greater awareness in public protection matters and better communication with police.

Working with health

In 2004-2005, a key objective for MAPPA in London was to promote joint work with health agencies to develop
realistic and effective joint procedures. This was the theme of the MAPPA regional seminar held in January
2005, which attracted over 100 delegates including senior managers and clinicians of London’s Mental Health
Trusts. The seminar also formed part of the ongoing consultation on the memorandum of understanding
between London’s Mental Health Trusts and other MAPPA agencies.
Specialist training for personnel engaged in public protection
We continue to provide bespoke training for agencies engaged in public protection work. This has included
mutli-agency training and specific courses for staff from each agency. Staff from various MAPPA agencies
have contributed to a new training programme for police officers working in the MAPPA arena.


Case Study
A woman was sent to prison for physically abusing one of her children. When she was sentenced,
she was considered to be at low risk of re-offending. However, her behaviour in prison gave cause
for concern; her behaviour was violent and she repeatedly tried to harm herself. The risk assess-
ment prior to her release stated that she was potentially a high risk of re-offending.

A Level 2 meeting recommended a full case conference with all parties concerned. This was
attended by prison probation staff as well as the offender herself, under escort. When she was
released, she went voluntarily into a mental health unit for assessment.

The offender continued to self-harm and was eventually sectioned under the Mental Health Act.
Her patterns of behaviour, along with further investigation into her partner, led social services to
apply to have her children taken into care for their own protection.

This illustrates the important role probation and prison officers can play in the risk assessment
process. On conviction the risk of harm may be low but close monitoring of behaviour patterns
whilst in prison can lead to this risk being reassessed. This information can then be shared with
outside agencies for them to take any appropriate action.

Rape Investigation, Child Abuse Investigation and Domestic Violence

We have recognised the need for all MAPPA partners, including police, engaged in public protection work to
significantly improve communication, information sharing and accountability with other relevant specialists
within the police service. The driving force of this initiative is to bring together all the relevant departments who
deal with crimes affecting vulnerable individuals and communities.
For example, Sapphire teams (who investigate offences of rape and serious sexual assaults) liase frequently
with their public protection collegues and share relevant information about offenders. In addition, they can
access the ViSOR database to assist in the investigation of serious offences, if required.

Police officers investigating domestic violence incidents make risk assessments in order to ascertain the
vulnerability of the victim, guide the investigation and to determine the appropriate level of intervention. Where
the risk posed by the offender is high, the investigating officers link up with the local police Public Protection
Team and the MAPPA partners to ensure the safety of the victim and their children and to effectively monitor
any risk that the offender poses to that victim or the wider community.

MAPPA activity in all the above areas has been invaluable in minimising the risks to vulnerable people and in
effectively managing offenders.

Case Study
A registered sex offender, well known to MAPPA, with a long history of offending against young boys
was suspected of downloading indecent images of children. A police operation began and he was
observed talking to young children in the street and taking photographs of them. As a result of close
joint working with the borough social services, the offender was arrested.

He was charged with indecent assaults on young boys and of making indecent images of children.
The probation service prepared a full pre-sentence report for the court and he was imprisoned for
a total of six years and six months, a higher tariff than normal due to his previous offending history.
He was also made subject to an indefinite Sexual Offences Prevention Order.

If you have any information about someone who you know or believe is
involved in any kind of criminal behaviour, particularly sexual or violent
crime, or if you have information about a specific crime, we urge you to
contact CRIMESTOPPERS on the above freephone telephone number.
You will not be asked for your name.
You could receive a cash reward.
The Year Ahead
Over the last four years, MAPPA has become firmly established in London and is achieving some impressive
results. It is important that we keep the arrangements under review and learn what works well and what needs
to be changed.
There has been some detailed national research into MAPPA which will inform further National Guidance.
London has been represented in this work and is actively planning the implementation of the recommenda-
tions concerning administrative processes, referral mechanisms and Level 2 procedures.

From 4 April 2005, those offenders who commit serious sexual and violent offences will be subject to new
indeterminate public protection sentences. This will mean that dangerous offenders could be kept in custody
for as long as they present a risk to the public and could be subject to extended sentences which could lead
to longer supervised prison licences.

There will be further IT developments including the use of ViSOR by other partners responsible for public

The year ahead will see us forging close links with the Crown Prosecution Service in London in order to
provide a consistent charging procedure in relation to sex offenders breaching their obligations under the
Sexual Offences Act 2003. We will also work with the Crown Prosecution Service to ensure that at the point
of conviction appropriate preventative orders are considered. As a result of working together these orders will
provide more effective monitoring and management, which will reduce the risks of reoffending and therefore
make communities safer.

We look forward to welcoming our new Lay Advisers to the Strategic Management Board as they will offer the
crucial public perspective to our work.

There will also be significant developments arising from the new National Offender Management Service
(NOMS) which is designed to ensure seamless management of offenders between prisons and the community.

Victim Support Services and Helplines

NSPCC Child Protection Southall Black Sisters
If you need help or advice, or are concerned that Services for black and minority ethnic women.
18 a child may be at risk.
020 8571 9596
0808 800 5000
Survivors UK
Victim Support For male victims of sexual abuse.
Free and confidential support for people affected by 0845 1221201
0845 30 30 900 National Domestic Violence Helpline
For victims of domestic violence.
ChildLine 0808 2000 247
For children, about any problem, at any time.
0800 1111 Inter Faith Network for the UK
Provides information and advice on inter faith issues
Mind as well as promoting good relations between the
faiths in this country.
For better mental health.
020 7388 0008
0845 766 0163

The Zito Trust GALOP

A registered charity seeking to highlight issues Third party reporting services on behalf of the
relating to mental health and the care of those Metropolitan Police Service. Support and advice
who are affected by it. to victims of homophobic and transphobic
incidents and crime.
01497 820011 0207 704 2040

The Suzy Lamplugh Trust

Broken Rainbow
‘The leading authority on personal safety’.
Support and advice to lesbian, gay, bisexual and
020 8876 0305 transgender people who experience domestic violence.
020 8539 9507
Rape and Sexual Abuse Support Centre
Male or female survivors of rape or sexual abuse
as well as friends, family and partners. There 4
08451 221 331 Confidential online advice for teenagers.
Appendix A: Statistical Information
1. Category 1 MAPPA offenders: registered sex offenders (RSOs)

i) The number of RSOs living in your Area on 31st March 2005 2657
ia) The number of RSOs per 100,000 head of population 36

ii) The number of sex offenders having a registration requirement who were either cautioned 150
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 43
(b) interim SOPOs granted and 18
(c) full SOPOs imposed by the courts in your Area between 1st May 2004 and 31st March 2005 36

iv) The number of

(a) Notification Orders applied for 10
(b) interim Notification Orders granted and 9
(c) full Notification Orders imposed by the courts in your Area between 1st May 2004 and 31st March 2005 10

v) The number of Foreign Travel Orders

(a) applied for and 1
(b) imposed by the courts in your Area between 1st May 2004 and 31st March 2005 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 1449
Criminal Justice Act (2003)) living in your Area 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)) 424
between 1st April 2004 and 31st March 2005

4. Offenders managed through Level 3 (MAPPP) & Level 2 (local inter-agency management)
viii) The number of MAPPA offenders in each of the three Categories Level 3 Level 2
(1)- RSOs 15 1288
(2)- V&O and 13 525
(3)- Other offfenders 11 314
The Level 3 figure is the critical few. The criteria for referring a case to the MAPPP are defined in MAPPA Guidance
as those in which the offender:
n is assessed under OASys as being a high or very high risk of causing serious harm; AND
n presents risks that can only be managed by a plan which requires close co-operation at a senior level due to
the complexity of the case and/or because of the unusual resource commitments it requires; OR
n although not assessed as a high or very high risk, the case is exceptional because the likelihood of media
scrutiny and/or public interest in the management of the case is very high and there is a need to ensure that
public confidence in the criminal justice system is sustained.
The Level 2 figure includes those offenders who have not been managed at Level 3 at any point in the counting
period and meet the criteria set out in the MAPPA Guidance.

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 8 190
(b) were returned to custody for a breach of a restraining order or sexual offences 1 3
prevention order
(c) were charged with a serious sexual or violent offence 0 3
For these purposes a serious sexual and violent offence is one of the following:
n Murder
n Attempted murder
n Arson (where there is an intent to endanger life)
n Manslaughter
n Rape
n Kidnap/abduction or attempted kidnap/abduction
n 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
n 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.
Appendix B: Commentary on Statistics

Registered sex offenders - Category 1

The figure of 2657 registered sex offenders across London is an increase of 17% on last year. This is an 21
expected increase due to the number of offenders remaining on the register from previous years together with
those that are added to it each year. Moreover, the Sexual Offences Act 2003 has increased the number of
offences that are the subject of the notification requirements.

Convictions of registered sex offenders for failing to comply with the

notification requirements
There was a significant increase of 51% in the number of offenders convicted for failing to make appropriate
notifications under the Act. This is a reflection of both the increased MAPPA offender population and a more
proactive working relationship with MAPPA partners. It is also a reflection of the continuous improvements in
communication and the exchange of information between all the relevant agencies.

Violent and other sexual offenders - Category 2

This figure represents a 1.9% increase compared to the same period last year. The majority are violent
offenders on licence to Probation, but it also includes relevant Health and Youth Offending Team cases.

Other offenders - Category 3

This is a 6% increase on the figure last year which is consistent with improved identification processes from
the Duty to Co-operate agencies.

Use of orders
There has been a significant increase in the number of applications for civil orders. In particular the number of
applications for Sexual Offences Prevention Orders (SOPOs), which replaces the old Sex Offender Order, has
substantially increased by 258%. SOPOs imposed by the courts, which include applications commenced last
year, have increased from 5 to 36, an increase of 620%. As part of the active management of offenders there
were 18 Interim SOPOs granted, an increase of 200% over that of the equivalent Interim Sex Offender Orders
of last year. An Interim Order is an effective risk management tool prior to the full order being granted.

These significant increases are attributed to a number of factors including court awareness, increased
confidence in their use as an effective risk management strategy by MAPPA partners and the successful
implementation of the Metropolitan Police public protection practitioners’ training course.

Two new civil orders were introduced this year as a result of the Sex Offenders Act 2003, which impact on
the MAPPA arrangements. These are the Notification Order and the Foreign Travel Order. The London public
protection units have embraced the use of Notification Orders. This means that MAPPA partners will be able to
more effectively monitor the 10 offenders against whom such orders were granted.

There was only one application for a Foreign Travel Order, which has yet to be heard in court. It is anticipated
that these orders will be used infrequently due to the complexities of gaining the necessary evidence and the
fact that such orders last for a maximum of six months before a further court application has to be made. The
abuse of persons abroad by travelling sex offenders is of concern and steps are being taken to address this

Level 2 and Level 3 MAPPA Management

There has been a 30% increase in the numbers managed at the Level 3 MAPPP, but this figure represents less
than a total of 1% of MAPPA offenders managed in the community. This is partly because of the strength and
effectiveness of current Level 2 arrangements which means that a referral to Level 3 is often not required. Due
to the extraordinary level of resourcing required, it is important that Level 3 is reserved for the ‘critical few.’
Level 2 offenders represent 47% of those managed in the community.

Breach of Licence
The data on breaches of licence demonstrate robust enforcement practice which is a crucial element of risk
management which has been achieved as a result of MAPPA partners working together proactively.

Failing to comply with civil orders issued under the Sexual Offences Act
One person who was managed at Level 3 was arrested for failing to comply with a civil order issued under
the Sexual Offences Act 2003. Three offenders who were being managed at Level 2 were also arrested for
breaches of such orders. There were no offenders arrested for breaches of Sex Offender Orders (issued under
the Sexual Offences Act 1997) during the year 2003-2004. The increase in the number of arrests for failing
to comply with these orders reflects the significantly greater number of orders imposed by the courts and the
increased proactivity of MAPPA partners.

Offenders charged with Serious Further Offences 1

It is a testament to the success of the MAPPA in London that for the second year running there have been no
serious further offences committed by offenders who have been managed at Level 3.

This is the first year that statistics relating to serious further offences by offenders managed at Level 2 have
been collated for the MAPPA Annual Report. Only three of the 2127 offenders managed at Level 2 committed
serious further offences. This amounts to just 0.14% of those managed at such a Level in London. This is lower
than the national average and covers a greater proportion of offenders managed under MAPPA.

Although one should never underestimate the personal tragedy of any serious further offences, the number of
serious offences committed by offenders managed at this level appears to represent a low re-offending rate
when one considers that many criminals responsible for serious offences have a high propensity to commit
serious further offences.

Any serious reoffending will result in a review of practice and procedures so that improvements can be made
in risk management strategies.

We will remain vigilant and not complacent as a result of our previous success.

1 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.

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.
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