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WORKING TOGETHER TO PROTECT THE PUBLIC

Norfolk Multi-Agency Public Protection Arrangements (MAPPA)


THE 4TH ANNUAL REPORT 2004-5

THE 4TH ANNUAL REPORT 2004-5


WORKING TOGETHER TO PROTECT THE PUBLIC

Contents

Foreword 2

Introduction 3

How MAPPA operates locally 4

Referrals 5

Key achievements in the Norfolk MAPPA within the last 12 months 6

Duty to Co-operate 8

Lay Advisors 9

New legislation 10

The protection of victims 11

Disclosure of information 12

Promoting the work of MAPPA 12

MAPPA management in Norfolk 13

Data collection and information sharing 13

Strategic Management Board 14

Final Thoughts on MAPPA 15

MAPPA annual reports statistical information for Norfolk 16

Comments on statistics 18

Agency Representatives in the Norfolk MAPPA 19

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MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS WORKING TOGETHER TO PROTECT THE PUBLIC

Foreword Introduction
Ministerial Foreword by Baroness Scotland

The work being undertaken to improve the safety of with the public more effectively. Without a growing sense of The Multi-Agency Public Protection Arrangements (MAPPA) measures we have in place to enhance the protection of the public.
communities through the Multi-Agency Public Protection public knowledge and confidence about this work much of the exists to identify, assess and manage those offenders in the
Arrangements (MAPPA) is vitally important and a priority for benefits of the public protection arrangements will be lost. community whose previous offences or current behaviour suggest The increased role of the Prison Service in these Arrangements,
government. The annual reports for 2004/5 provide evidence of that they could pose a risk. for example, will serve to ensure a continuity of assessment and
that active engagement. Violence and sexual abuse are I hope this annual report will be useful, informative and planning as high-risk offenders move from custody to the
unacceptable wherever they occur and it is evident that through re-assuring to local communities. The agencies and individuals Working together, key agencies across Norfolk are involved in community.
MAPPA such offenders are identified and better managed than who have contributed to the achievement of MAPPA locally are putting in place robust plans to prevent an offender causing
to be commended. further harm either to their victims, to the professionals they work Moreover, we will be joined by two Lay Advisors recently
ever before. As the number of offenders within MAPPA appointed to the Strategic Management Board that oversees the
continues to grow as expected there is clear evidence that the with, or to other members of the public.
MAPPA. Acting as “critical friends” the Lay Advisors will bring a
Responsible Authority, that is the local Police, Probation and the The business of the Norfolk MAPPA is the protection of the public fresh perspective to the way that MAPPA operates and present
Prison Service, is addressing these additional demands by and this, the 4th Annual Report, details the progress that we have the voice and concerns of the ‘ordinary person’ in challenging the
strengthening local partnerships, using new statutory powers to made in better protecting the public from the harm that can be professionals in the assessments and decisions that they make.
restrict the behaviour of offenders, returning offenders to Baroness Scotland - Minister of State for Criminal Justice
and Offender Management caused by dangerous offenders.
custody where they breach their licence or order, and using the Further, we will be looking to the Strategic Management Board to
findings of research and inspection to strengthen national The MAPPA first began operating in April 2001. Through formalise its arrangements through Joint Agency Protocols,
guidance and local practice. legislation a duty was placed on the Police, the Probation Service internal inspections of practice and engagement with the wider
and, more recently, the Prison Service (the Responsible public that it serves.
Although it is never possible completely to eliminate the risk Authorities) to jointly assess the risk that individual sexual and
posed by dangerous offenders, MAPPA is helping to ensure violent offenders pose and manage that risk through inter-agency In progressing this, the 4th Annual Report provides us with an
that fewer people are re-victimised. cooperation. This is particularly the case for those offenders who opportunity to reflect on our work over the last year and to outline the
give society the greatest cause for concern, the “critical few”, contributions that MAPPA has made to the protection of the public
The active implementation of the Criminal Justice Act (2003) across Norfolk. We hope that by doing this we are able to go some
during the last year has clearly enhanced the ability of a number whose behaviour presents an immediate risk to the public, but
also those whose profile suggests that their risk might escalate if way to reassuring the public of our commitment to their protection.
of agencies including health, social services and housing to
work collaboratively with the Responsible Authority in assessing not addressed through the multi agency arrangements that we
and managing those sexual and violent offenders in our have in place in Norfolk.
communities who pose the highest risk of serious harm. For the The identification and management of risk is not restricted to
continued success of MAPPA this collaboration together with offenders who are subject to supervision by Norfolk Probation Martin Graham - Chief Officer, Norfolk Probation Area
the scrutiny of policy and practice must become the hallmark of Area or involved with the Norfolk Police. In carrying out their
these arrangements. Similarly MAPPA must integrate with other function the Responsible Authorities have long been supported by
public protection mechanisms dealing with child abuse, other agencies in Norfolk who are concerned with criminal justice,
domestic abuse and racial abuse. public protection or offender rehabilitation and resettlement.
Indeed it is the increasing integration of the work of criminal Carole Howlett - Temporary Chief Constable, Norfolk Police
For me one of the most exciting developments in this arena in
the last 12 months has been the appointment of lay advisers to justice agencies with social care agencies and other statutory
assist the Responsible Authority in the oversight of the bodies that has been the theme for the last year and will continue
arrangements. As ordinary members of the public these lay to provide the context for our work over the coming year.
advisers represent a diverse, able and committed group of Whilst we are pleased with the developments that have made James Shandley - Governor, HMP Norwich.
people who are now helping the statutory agencies to oversee been we are not complacent and will ensure that over the next
the work being undertaken through MAPPA and communicate year we continue to monitor, review and improve upon the

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MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS WORKING TOGETHER TO PROTECT THE PUBLIC

How MAPPA operates locally Referrals

MAPPA in Norfolk is overseen by a Strategic Management Category 3 Offenders Many of the cases referred will be statutory Probation cases; in Probation Officer, Superintendent Police Officer, Area Manager
Board (see later) with the day to day operation coordinated by a addition to any offenders who fall into the above category we will from Social Services, and the local MAPPP Manager. All level 3
MAPPA Manager and a Deputy Manager. These do not fall into either category 1 or 2 by virtue of the also MAPPP all offenders subject to the Integrated Domestic cases are reviewed at least every 3 months or at key times when
offence they have committed or sentence received but they still Abuse Programme, that is those offenders who have been intervention is needed. Level 2 offenders are those whose risk is
What is MAPPA? (Multi agency public protection pose a risk of serious harm to society. They are identified sentenced to a Community Order with a Requirement to attend considered as high and where more than one agency is involved.
arrangements) according to two criteria. Firstly it has to be established that the this programme. These offenders would probably not fall into the
person has committed an offence which indicates they are Level 1 cases deal with these who present the lowest risk to the
This is the locally based arrangement for assessing and managing normal remit for MAPPP, but it is a requirement of the programme public and can be dealt with largely by one agency.
capable of causing serious harm to the public. Secondly that it
the risks posed by sexual and violent offenders. The purpose of that they are looked at by a multi disciplinary panel so that a full
must be reasonably considered the person may cause serious
MAPPP (Multi-Agency Public Protection Panels) is to assessment of risk can be made as well as ensuring their victims This allows risks to be identified and managed properly and targets
harm to the public.
are safe and given the support they need. finite resources effectively. The system is not infallible but it is
• Bring together and analyse, in a multi disciplinary setting,
How do we assess risk? designed to ensure risks are managed in a logical and responsible
the information that has led to concerns about the offender Once the person has been referred the MAPPP Manager, the
way. The decisions taken must be defensible, reasonable and
To make the most effective use of resources there are three Deputy Manager and a senior Police officer will screen them for
• Make informed judgements about the likely risk the offender must be well documented. One of the strengths of the MAPPP
separate but connected levels at which risk is assessed and suitability for the MAPPP process. A decision will be reached as
poses to the public managed. Generally the higher the level of risk the higher the process is that decisions are made collectively, agreed at the
to whether the offender falls into level 2 or level 3 of the criteria
level of management required. The level a case is managed at is outlined above. The MAPPP Manager then convenes the MAPPP meeting and there is accountability to ensure actions are carried
• Decide what future risk management plans are needed to
dependant on the nature of that risk and how it can be managed. and the appropriate agencies are invited. out. Each agency’s Manager or supervisor has responsibility to
reduce or manage that risk.
Risk is not static, it is dynamic, offenders can move between ensure that priority is given to those cases where people are
The panel does not assume responsibility for the cases, the different levels of risk according to differing circumstances. Multi-Agency Public Protection Panels meet to discuss cases in assessed as high risk.
responsibility remains with the agency making the referral, but the three centres in Norfolk: at Kings Lynn, Great Yarmouth and in
• Level 1 – ordinary risk management Norwich. Level 3 meetings are always held in Norwich and CASE STUDY – VIOLENT OFFENDER
MAPPP process helps to ensure that other agencies co-operate.
happen on a monthly basis to consider new referrals and/or
There are 3 categories of cases managed by MAPPA: This is where the risks posed by an offender can be S.D. a level 3 MAPPP subject, had been sentenced to 11 years
reviews of existing cases, whilst Level 2 meetings are held in the
managed by one agency with close liason with other in prison for violent offences which resulted in the victim being
Category 1 Registered Sex offenders area that the offender resides and generally happen fortnightly.
agencies as necessary. Generally such offenders are blinded in one case and left with permanent damage to the nerves
The identification of such offenders lies primarily with the Police. assessed as low or medium risk, many MAPPA offenders Those professionals who attend can include Police, Probation, of their face in another. He was assessed as presenting a very
Although such offenders can be on statutory supervision to the are managed at this level. Social Services, Housing, Health and any relevant agency that high risk of causing serious harm, which could happen at any time.
Probation service, it is necessary to liaise with the Police holds information on the person concerned. He had been released previously, but been returned to prison and
• Level 2 – MAPPP (Multi-Agency Public Protection Panel)
regarding assessment and management issues. was due for release again. He was subject to MAPPP in another
Each agency shares the information they have on the offender and
This is for offenders where risk assessment is a complex county but was being transferred to Norfolk Approved Premises
Category 2 Violent and other sex offenders a decision is then made whether to register the person as at risk
issue or needs more than one agency to properly manage due to concerns relating to his previous victims.
of causing serious harm, or not.
Whilst category 2 offences do not attract any requirement to the risk. Cases will be discussed at a round table MAPPP
meeting so that information can be exchanged, proper risk Decisions are made using reliable risk assessments and A robust risk management plan was agreed, including a stringent
register with the Police, all offenders will be under the statutory
assessments undertaken and plans agreed. professional expertise. Level 3 is the highest level of risk and is curfew and reporting arrangements together with close liaison with
supervision of the Probation service, with the exception of a
used for these people considered to be at risk of causing the public the Police. It was learnt that he had developed a relationship with
small number of offenders sentenced prior to the Criminal • Level 3 – MAPPP (Multi-Agency Public Protection Panel)
serious harm with some imminence, or where there is likely to be a vulnerable female who matched the profile of his previous
Justice Act 1991.
These are the “critical few”, the highest risk cases which, major public or media interest due to the nature of the case. Such victims. An emergency MAPPP was called where it was agreed
because of the seriousness of the offence or the notoriety cases usually require significant resources and are often referred that the risk of serious harm to the woman was considered so
of the offender, or the very high level of risk, need to be to as “the critical few”. High-level representatives attend these great that immediate and urgent recall was essential. Recall
managed at the highest level. cases from the relevant agencies for instance, Assistant Chief happened within a matter of hours.

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MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS WORKING TOGETHER TO PROTECT THE PUBLIC

Key achievements in the Norfolk MAPPA within the last 12 months

“This last year has been about strengthening the collaboration planning and procedures that prisoners will be subject to CASE EXAMPLE – DOMESTIC VIOLENCE
between the agencies in Norfolk and building on the hard work during their sentence.
of colleagues across the community” - J.W. MAPPA Manager J.T. was referred to the MAPPP by the Domestic Violence Unit
2001-November 2004. • Assessment of offender’s needs and risks and accessing of the Police. J.T. and his partner K.L. were both known to
prison based intervention and resettlement programmes to Social Services and Probation, but only J.T. was subject to
The Prison Service reduce risk. current involvement through a Community Rehabilitation Order.
The Domestic Violence Unit had received numerous calls from
During this last year the Prison Service has joined Norfolk • Sharing information with community based public protection K.L. who had, over a period of time, received numerous injuries
Probation Area and Norfolk Constabulary as the Responsible agencies so that they are able to provide holistic from J.T. Whilst K.L. had made official complaints in the past
Authority group. This is the group that under Statute is tasked assessments and risk management plans for the prisoner’s she had refused to give evidence that would support a
with the overall responsibility for the setting up, monitoring and release. prosecution. The Supervising Probation Officer had worked
development of the Multi-Agency Public Protection
The Governor of HMP Norwich represents the Prison Service with J.T. regarding his domestic violence, but despite
Arrangements for the management of high-risk offenders and
on the Strategic Management Board. Clearly HMP Norwich acknowledging his behaviour had not made any real changes to
others. The recent legislative changes (the Criminal Justice Act
works with high-risk offenders from outside Norfolk as well as his behaviour, which seemed to be impulsive and related to his
2003) that have brought about the involvement of the Prison
those returning to Norfolk, and as such the Governor has a role overall home situation.
Service at this level reflect the important role that it has in
protecting the public through: in ensuring that MAPPA in other counties are also supported It was confirmed that the Domestic Violence Unit and Social
and that practices and processes are consistent. Services had both tried to work with K.L., but despite this she
• Keeping offenders in custody
“Whilst the focus of the MAPPA is on the management of risks always allowed him to return home after a day or two.
• By helping offenders to address the causes of their offending posed by offenders in the community the Prison Service in At the MAPPP meeting all agencies expressed concerns that at
• Assisting offenders in their resettlement plans. Norfolk is committed to contributing to this through the work times K.L.’s behaviour aggravated the situation, this coupled
it does with prisoners pre release” - James Shandley, with J.T.’s impulsive and violent responses meant that the risk
The most important contribution that the Prison Service makes Governor, HMP Norwich. of harm was high. Due to the lack of motivation for either K.L.
to the work of the MAPPA, however, is in ensuring a continuity or J.T. to engage in focussed work or make changes, it was
of assessment, planning and intervention in the management of agreed that a “Positive Prosecution Policy” be adopted.
high-risk offenders. As offenders return from prison into the Following a further violent incident, K.L.’s children were
community or when they enter prison from the community there deemed to be at risk of harm and were removed from the home.
can be a break down in communication between the agencies At this point K.L. decided that she had had enough and evicted
tasked with their management and rehabilitation. By involving J.T. from the home. K.L. now has another partner who is not
the Prison Service in the multi-agency public protection violent towards her. J.T. was successfully prosecuted.
arrangements, Norfolk is seeking to strengthen the risk
management assessments and plans that it makes.

More specifically, the Prison Services contribution comes


through:
• Identifying MAPPA cases at the point of reception and
calculating their release date to ensure that agencies in the
community can prepare for this.

• Advising community based colleagues on the sentence

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MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS WORKING TOGETHER TO PROTECT THE PUBLIC

Duty to Co-operate Lay Advisors

It has long been understood that in order to protect the public, working together to address these factors. For instance we Last year the Home Office piloted the introduction of Lay views on how it can communicate its work to the local
agencies concerned with managing the offender and reducing know that people are less likely to offend if their accommodation Advisors to certain Strategic Management Boards throughout community and as part of this, next years Norfolk Annual Report
the risk of harm to the public, do so best by working together in needs, employment/training and health care needs have been the country. The idea was that the Lay Advisors (members of will include a review by the Lay Advisors themselves.
sharing information and cooperating together. met. Likewise the contributions made by agencies concerned the general public) would act as “critical friends” of the MAPPP
with mental health and child protection are often crucial in process, challenge the professionals that sit on the Board in a “I’m looking forward to gaining a greater understanding of the
The 2003 Criminal Justice and Court Services Act embeds reducing the risks that individual offenders present. In practical constructive manner, and question what is being done and why. three main Criminal Justice Agencies and to working in
these principles of good practice in law and places key agencies terms this involves bringing the agencies together in round table The pilot studies were evaluated and it was found that the Lay collaboration with other partner agencies involved in community
under an actual “Duty to Cooperate” in the management of ‘panel meetings’ (or Multi-Agency Public Protection Panels – Advisors made a significant contribution to the process. We are development and public safety. This increased awareness will,
offenders who are subject to MAPPPs. MAPPPs). Or attendance at the Strategic Management Board currently actively seeking another lay Member of the Strategic I’m certain, enable me to ask the “why” questions of the
meetings. These face to face meetings of professional Management Board, we hope to attract someone from a professionals involved, and to offer constructive criticism where
Those agencies who have “signed up” to the Duty to Cooperate necessary. I believe that it is vital to share the thinking behind
are Youth Offending Teams, Social Security (including Child practitioners and senior Managers ensure the sharing of advice minority ethnic background.
about the assessment and management of cases from their the lay initiative with the public that MAPPA serves. I believe
Support, War Pensions and Employment & Training), Education, In Norfolk we advertised for members of the public to take up this will go a long way to reassuring the public that they have
Local Housing Authorities and Registered Social Landlords, agencies perspective and the development of strategic plans to
address risk management. the post of Lay Advisors in February 2005. A number of people a voice where decisions are taken that affect their safety.”
e.g. Housing Associations, Social Care Services with a were interviewed from a strong and eclectic pool of candidates - P.S. Lay Advisor
particular emphasis on child and vulnerable protection, Local “Given the importance of accommodation in the resettlement of and one was selected to sit on the Strategic Management
Health Authorities and Primary Care Trusts, the providers of offenders and therefore in the management of their risk it is vital Board. She will commence her training and induction into the
electronic tagging equipment, and a new member Jobcentre that the Norfolk Housing Authority and Registered Social MAPPP process in the Spring/Summer of 2005 and will
Plus. Many of the above were already involved in public Landlords are able to contribute to MAPPA”. - Daryl Smith thereafter take up her seat on the Board. We are currently
protection arrangements but this has now been strengthened, Housing Authority representative. seeking a further lay member for the Strategic Management
as you will see below. Board. The appointment of the Lay Advisors seeks to ensure
CASE STUDY - MENTAL HEALTH PROBLEMS that a community interest is represented on the Strategic
There are three important features of the Duty to Co-operate:
The Community Mental Health Team referred S.D. to the Management Board. Coming with a wealth of experience from
1. The establishment of shared arrangements to assess and MAPPP. She was known to a number of agencies including ‘non-professional’ backgrounds they will play a key role in
manage the risk posed by offenders subject to the MAPPP Police, Probation, Mental Health, Housing, and a number of bringing a different perspective to the review and monitoring of
process. voluntary agencies. Her behaviour was such that she had been MAPPA. The Lay Advisors will not be involved in operational
banned from a number of agencies. She was diagnosed with a decision-making, but will assist in the review of MAPPP
2. The confirmation that such arrangements are as important functions.
and comparable with any other statutory function of the agency. mental illness as well as a personality disorder. To some extent
she was compliant with treatment, but when stabilised would Crucial to this is their role in challenging the views of agencies
3. The development of “memorandums of understanding” with draw from treatment, stop taking her medication and and professionals so as to ensure that the concerns and issues
drawn up by the Duty to Co-operate agencies and the relapse, causing worries over her behaviour and about the risk of the wider community are reflected upon in developing the
Responsible Authorities clarifying their respective of harm she posed to herself and others. Treatment and Arrangements. The professionals engaged in the MAPPA are
responsibilities. response had become a “revolving door”. Her psychiatrist and diligent and rigorous but, on occasion, it can be difficult to bring
others involved in her care considered she required long-term to bear the ordinary persons point of view alongside their
Whilst the main focus of some of the Duty to Co-operate treatment in a secure environment, which would necessitate a
agencies may not, on the face of it, be concerned with public professional judgement. This is where the Lay Advisors play a
placement in a non - NHS hospital. Through the MAPPP part: in asking pointed questions of the SMB and commenting
protection, it is clear that public protection is often on the meeting the Primary Care Trust member agreed to the full
coordination of work that key agencies undertake with an on the way that the Board delivers on its core activities.
funding necessary to secure successful treatment for her.
offender. Public protection is enhanced and strengthened by Further, the Lay Advisors will be expected to offer the SMB their

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New legislation The protection of victims

The last 12 months have been a time of change and challenge CASE STUDY - SEX OFFENDER The primary focus of MAPPP meetings is the risk assessment These initiatives will help to improve public confidence in the
for the Norfolk MAPPP. The introduction of the Criminal Justice and management of the offender. However, part of the Criminal Justice System. The Domestic Violence, Crime and
and Court Services Act (2003) has meant many changes and a B.B., a registered sex offender and a level 3 MAPPP case, management of an offender is to ensure that all practical steps Victims Bill will create a new independent post of Commissioner
strengthening of MAPPP. In particular the inclusion of the was sentenced to a period of custody for breaching a are taken to reduce the risk of further victims being created and for Victims and Witnesses to be a champion/voice for all victims
Prison Service as part of the Responsible Authority and the requirement of his Sex Offender Registration, because he to protect existing victims from re-victimisation. of crime and a new statutory code of practice will be built on to
Duty to Cooperate protocols have embedded in Law a duty for failed to notify the Police of a change of address. However, the existing victims charter, setting out the responsibilities that
agencies to work together, sharing information as well as risk he continued to behave in a risky way and a Sex Offender The risk an offender poses to vulnerable people, such as each criminal justice agency and Victim Support must provide to
assessment and risk management of the offenders included in Prevention Order was obtained. The publicity surrounding children, those with learning disabilities or the elderly requires victims.
the MAPPP process. this led to concerns that B.B. may be at risk of harm from effective co-working between the Responsible Authorities
members of the community. His neighbours presented the (Police, Prison and Probation) and other agencies such as “Victim Contact Unit work with these cases helps to empower
The Sexual Offences Act (2003) overhauls much of the housing authority with a petition demanding he be moved Social Services or mental health professionals. victims at a vulnerable time in their lives. They are kept
antiquated sex offender legislation, plus many of the “loopholes” from the area. The Public Protection Unit in London was informed of key stages in the sentencing process, they have
in existing law. It strengthens the law on rape and sexual kept informed of developments as they occurred. There are three reasons underlying the importance of victim knowledge of the supervision imposed on the offender post
offences against children. It introduces new offences such as focus in MAPPP meetings. release and are able to request release license conditions such
“sexual grooming” and extends the protection from exploitation Matters were then further complicated by the pregnancy of as “No contact with victim”, and/or a geographical exclusion
his partner. The baby was due to be born around the same 1. The Probation Service has a statutory duty to consult with
in relation to prostitution or pornography to children up to the and notify victims of sexual or other violent crimes about the zone around where they live and work. Victims have frequently
age of 18. For the first time it will be an offence to buy sexual time as B.B. was released from prison and an earlier child expressed their view that having a Victim Liaison Officer
protection conference had decided the baby should be release arrangements of the offender, where they are
services from a child below this age, thus targeting those who sentenced to 12 months or more. represent their interests in the minefield of the Criminal
abuse children this way. It also strengthens the Sex Offenders should be removed from her at birth to safeguard it. Justice System, has been a positive experience coming from
Register and introduces civil orders (Sex Offender Prevention Various agencies all worked very closely together on this 2. The Responsible Authority owes a “duty of care” to existing an otherwise traumatic ordeal”. - J.K. Probation Victim
Orders or SOPO’s) to prevent further offences being case and the Public Protection Unit of the Home Office was victims and should take all reasonable steps to protect people Liaison Officer
committed. This helps the Police to monitor convicted sex regularly updated. A contingency plan in case of public from re-victimisation.
offenders in our area. It will also involve MAPPP in a lot more CASE EXAMPLE
disorder when B.B. was released was arranged. The Police 3. Victims can make a contribution to the assessment and
meetings to share information and discuss the way forward press department was kept fully informed and had an A young woman was the victim of a violent attack from her ex-
when assessing and monitoring sex offenders. management of risk, as they know the nature of the risk
agreed press release should it be needed. However, imposed by the offender. This is particularly important where partner. He was sent to prison for 18 months. She feared he
matters were successfully concluded with the unborn the offender has been in an abusive relationship with family would attack her on his release. It was decided at a MAPPP
child’s safety being secured, and the offender released members or in other forms of domestic violence. meeting that there should be conditions on his licence
from custody without complication or repercussions from preventing him from contacting his ex-partner and an exclusion
the public. Victims of sexual offending have been identified as a priority zone was put around the area in which she lived which
group by the National Victims and Witness Strategy, which was prevented that offender from entering the area. This helped the
“The MAPPA process opens up channels to other relevant published in July 2003. It aims to improve support for victims victim to feel much safer.
agencies when we are dealing with some of the most and witnesses by
difficult offenders in the County. It allows for frank and
appropriate exchange of views, a real measure of risk • Reducing the adverse effects of crime on victims and
and will also put in place an effective Management witnesses, preventing secondary victims
Plan with a contribution from all agencies.” - M.A.,
Detective Inspector Public Protection Unit, Norfolk • Encouraging more victims and witnesses to come forward
Constabulary. • Offering more options to victims and witnesses, including
alternatives to Court attendance.

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MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS WORKING TOGETHER TO PROTECT THE PUBLIC

Disclosure of information Promoting the work of MAPPA MAPPA management in Norfolk Data collection and information sharing

Information about individuals is shared at MAPPP meetings and There is clearly a need to bring about consistency in both Recently there has been a change of MAPPP Manager as the Up to now the Police and the Probation service have relied on
is confidential to those agencies that attend. At the start of the referrals and response from all agencies involved in MAPPP. previous incumbent had come to the end of her secondment. local unconnected computer databases to record details of
MAPPP meeting a confidentiality statement is read out and all This requires that agencies understand the role of MAPPP; We would also like to extend our thanks to the Acting MAPPP offenders in their area. This has made it difficult to keep track
the agencies that attend the meetings have signed a what it can and can’t do. To this end the previous MAPPP Manager “who held the fort” between November 2004 and of individuals as they move from area to area.
confidentiality protocol. A balance is struck between having Manager made a number of presentations to Primary Care March 2005 when the current Manager was able to take up her
sufficient information to make an informed decision to manage Trusts, mental health agencies the Area Child Protection post. We are fortunate in being able to have acquired the ViSOR is a computer based Violent and Sex Offender Register
the risk the person poses, but at the same time, not breaching Committee etc. with the aim of bringing about consistency and funding for a Deputy MAPPP Manager post from April 2005 and is set to play a vital role both nationally and locally in
the confidential nature of the information that is shared. clarification. This work is ongoing and the present Manager has and this post is to be filled by the former Acting Manager. The monitoring sex, dangerous and violent offenders. We hope to
a schedule of presentations and informal gatherings planned remit for this post is to look at the development of the level 2 introduce ViSOR to Norfolk in 2005. The information sharing
Sometimes it may be necessary to share information about a over the next 12 months to raise awareness of MAPPP MAPPPs and how to manage them both effectively and potential under ViSOR will make Police and Probation officers
person’s history to protect a victim or others in the community. throughout Norfolk. efficiently. responsible for monitoring this category of offender more
However, this is only done after careful consideration and with effective. All Police and Probation areas will have ViSOR in the
the recommendation of the MAPPP Manager. “I have a much better understanding of the role of MAPPP and We are currently in the process of piloting a new referral form, near future, therefore any information added by Police or
how it works. Coming along to the conference has really which will ensure that we have sufficient information on which Probation in one part of the country will become immediately
Information is always disclosed in a sensitive way, sometimes they clarified things for me. I now feel confidant about making a to make the screening decisions. A new form is to be used searchable by Police and Probation in another part of the
are only told about the person in general terms. Occasionally referral.” - ACPC conference delegate. when screening referrals. This will ensure accountability and country. Large amounts of information can be held on
where appropriate, more specific information is given. transparency in the decision making process whilst at the same offenders making it more difficult for them to change their
time ensuring robust targeting of both referrals and resources. appearance and emerge undetected in another part of the
In addition we have also set up a new method of tracking country. ViSOR will comply with the Human Rights Act and the
referrals through the MAPPP process. We hope that these new Data Protection Act.
systems will assist in providing an “audit trail” and will become a
foundation for accountability in the future.

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Strategic Management Board Final Thoughts on MAPPA

The Strategic Management Board provides oversight of the county Criminal Justice Board to ensure a holistic approach “In my experience, MAPPA adds hugely to the management of
Arrangements in Norfolk. The Board draws its membership to public protection. high risk offenders by providing a multi-agency forum of skills,
from Senior Managers from the Responsible Authority agencies experience and decision making that is unique in this field. The
(the Probation Service, the Police and the Prison Service) and • Helped to improve the quality of public protection work close cooperation that exists between the agencies and the
from key stakeholders concerned with Criminal Justice, Public through multi agency training. confidential sharing of information improves risk management
Protection and Offender Management. In addition to this, two • Participated in a Thematic Inspection of Sex Offenders by far beyond that which would be possible without the MAPPA”.
Lay Advisors represent the wider community. Her Majesties Inspectorate of Constabulary and of HMI - D.B. the Deputy Manager

The SMB has the statutory duty to ensure rigor and scrutiny in Probation. “Having previously been a member of the “general public” I had
the review and monitoring of MAPPA. Over this last period it Over the next twelve months the SMB has tasked itself with little knowledge of how the various agencies worked, either
has been active in ensuring that in Norfolk we have effective taking forward its work through formalised sub groups solely or together. However, I am extremely impressed with the
multi agency risk assessments and management arrangements concerned with Quality Assurance, Policy and Procedures and work of the MAPPA and consider it to be an essential forum for
in place and in making any changes to them when necessary. Training and Development. protecting the public in Norfolk.” - L.R. MAPPP Administrator

Each year the SMB develops a Programme of Work to “The SMB is committed to ensuring that all of the staff from the “Being new to the role of MAPPP Manager I’ve had the
take forward its principle activities: participating agencies continues to share information, expertise opportunity to look at the process with fresh eyes, to review
• To monitor and evaluate the operation of the Arrangements and knowledge and foster a collaborative approach to public policies and procedures. I feel this will contribute overall to
and identify areas for improvement. protection” - S.M. Assistant Chief Officer, SMB Chair enhancing public safety. I’m delighted at the level of co-
operation shown by all the various agencies involved with
• To ensure that the work of MAPPA supports and MAPPP and the willingness to improve public protection by
complements the work being undertaken by other public working together” - J.S. MAPPP Manager
protection arrangements.

• To promote the work of MAPPA across Norfolk and the


contribution that it makes to protecting the public.

Meeting on a regular basis throughout the year the


Norfolk SMB has:
• Developed and agreed local policies and procedures for
inter-agency work to protect the public.

• Facilitated effective working relationships based on trust and


shared objectives between professionals from a wide variety
of statutory and community agencies.

• Worked to bring about agreement and mutual understanding


amongst agencies about the nature of risk and appropriate
levels of intervention.

• Worked alongside the Norfolk Area Child Protection


Committee, the District Crime and Disorder Groups and the

14 THE 4TH ANNUAL REPORT 2004-5 THE 4TH ANNUAL REPORT 2004-5 15
MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS WORKING TOGETHER TO PROTECT THE PUBLIC

MAPPA annual reports statistical information for Norfolk


Required for the reporting period 1st April 2004 - 31st March 2005

QUESTION NUMBER OF QUESTION NUMBER OF


OFFENDERS OFFENDERS

1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) 4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management)
i) The number of RSOs living in your Area on 31st March 2005. 547 viii) Identify how many MAPPA offenders in the following three categories have been managed through
the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2004
This is information principally held by the Police and is a snapshot of RSOs on 31/03/05. and 31st March 2005:
It should NOT include RSOs in prison. (a) RSOs
ia) The number of RSOs per 100'000 head of population. 68 Level 3 8
Level 2 21
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 26 (b) V&O
Level 3 5
Only those cautions that have actually taken place and breaches that have been successfully completed Level 2 51
during the reporting period should be counted.
(c) OthO
iii) The number of: Level 3 1
(a) Sexual Offences Prevention Orders (SOPOs) applied for 3 Level 2 7
(b) interim SOPOs granted 3
(c) full SOPOs imposed by the courts in your Area between 1st May 2004 and 31st March 2005 2 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:
Sex Offender Orders & Sex Offender Restraining orders (both superseded by the SOPO) and their
interim counterparts applied for and/or imposed by the courts between 1st - 30th April 2004 should • is assessed under OASys as being a high or very high risk of causing serious harm; AND
be incorporated into these figures. • presents risks that can only be managed by a plan which requires close co-operation at a senior level due to
iv) The number of: the complexity of the case and/or because of the unusual resource commitments it requires; OR
(a) Notification Orders applied for 0 • although not assessed as a high or very high risk, the case is exceptional because the likelihood of media
(b) interim Notification Orders granted 0 scrutiny and/or public interest in the management of the case is very high and there is a need to ensure that
(c) full Notification Orders imposed by the courts in your Area between 1st May 2004 & 31st March 2005 0 public confidence in the criminal justice system is sustained.
v) The number of Foreign Travel Orders: The level 2 figure should include those offenders who have not been managed at level 3 at any point in the
(a) applied for 0 counting period & meet the criteria set out in the MAPPA Guidance as follows:
(b) imposed by the courts in your Area between 1st May 2004 & 31st March 2005 0
• The management of the offender requires the active involvement of more than one agency but the complexity
2. Category 2 MAPPA offenders: Violent offenders and Other Sexual offenders (V&OS) of managing the risk is not so great as to require referral to Level 3, the MAPPP
vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the
ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2004 and 31st March 2005 how many,
Criminal Justice Act (2003)) living in your Area between 1st April 2004 and 31st March 2005 79
whilst managed at that level:
You should include in this figure only those Category 2 offenders who are living in your Area during the
(a) Were returned to custody for a breach of licence?
reporting period. You should NOT include those Category 2 offenders who are still in custody. Care must
Level 3 1
also be taken NOT to include here any Category 1 offenders.
Level 2 2
3. Category 3 MAPPA offenders: Other Offenders (OthO)
(b) Were returned to custody for a breach of a restraining order or sexual offences prevention order?
vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) Level 3 0
between 1st April 2004 and 31st March 2005. 8 Level 2 0
This figure should not include any offenders who are included in either the Category 1 or 2 (i.e. (i) and (vi) (c) Were charged with a serious sexual or violent offence?
above) unless they have left those categories and are still considered by the Responsible Authority to pose Level 2 0
a risk of serious harm. Level 3 0

16 THE 4TH ANNUAL REPORT 2004-5 THE 4TH ANNUAL REPORT 2004-5 17
MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS

Comments on statistics Agency Representatives in the Norfolk MAPPA

There has been a fairly large influx of out of county offenders Norfolk Probation Area Norfolk Social Services Youth Offending Team
through the Probation Hostel which have influenced the figures.
Stuart MacDonald Mandy Lyons Sue Massey
These offenders have now largely returned to their own counties
Assistant Chief Officer Service Manager Child Protection Graphic House
and this is reflected in the reduced numbers this year.
4th Floor County Hall 120 Thorpe Road
Whilst there are a relatively high number of registered sex St James Yarn Mill Martineau Lane Norwich
offenders in the county, and these naturally cause concern to Whitefriars Norwich Norfolk NR1 1RT
the public, the incidence of violent offenders are steadily Norwich Norfolk NR1 2SQ
Norfolk NR3 1SU Tel: 01603 877526
growing and the management of such offenders is an issue
Tel: 01603 222141
which needs to be addressed within Norfolk during the coming
Tel: 01603 220100
year. Howard Wynn Premier Monitoring Services
Service Manager Adult Protection
Offenders who breached licence conditions did so for minor Head of Monitoring Services
Norfolk Police Nelson House
offences such as failing to notify a change of address. There Austin House
31-33 South Quay
were no serious incidents which would have warranted recall. D.I. Mike Austin Stannard Place
Great Yarmouth
Public Protection Unit St Crispins
Norfolk NR30 2RG
Norfolk Constabulary Norwich
Jubilee House Tel: 01493 850317 Norfolk NR3 1YF
Falconers Chase
Wymondham Tel: 01603 428300
Norfolk NR18 OWW Norwich City Council

Tel: 01603 276318 Lynda Peacock HMP/YOI


Acting Director of Housing
James Shanley
City Hall
Governor
MAPPP Coordinator St Peters Street
Knox Road
Norwich NR2 1NH
Joy Singleton Norwich
Public Protection Unit Tel: 01603 212212 Norfolk NR1 4LU
Norfolk Constabulary
Jubilee House Tel: 01603 708600
Falconers Chase The Norvic Clinic
Wymondham Dr Ann Stanley
Norfolk NR18 OWW Norvic Clinic
St Andrews Business Park
Tel: 01603 276344
Thorpe St Andrew
Norwich
Norfolk NR7 4HT

Tel: 01603 439614

18 THE 4TH ANNUAL REPORT 2004-5 THE 4TH ANNUAL REPORT 2004-5 19
MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS

Notes

20 THE 4TH ANNUAL REPORT 2004-5


MULTI AGENCY PUBLIC PROTECTION ARRANGEMENTS

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THE 4TH ANNUAL REPORT 2004-5