North Wales

MAPPA

Multi Agency Public Protection Arrangements Annual Report
for the period 1st April 2004 to 31st March 2005

Gogledd Cymru l North Wales

CONTENTS

Section Ministerial Foreword . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1 2 3 4 5 6 7 8 9 Appendix 1 Introduction
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Page 1 2 3 4 5 6 7 9 10 11

Key Achievements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . How the MAPPA operates in North Wales The role of the Prison Service in MAPPA Statistical Information - Headlines Lay Advisors’ Report Contacts
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Victims of serious offences . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
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The North Wales MAPPA Strategic Management Board . . . . . . . . . . . . .
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MAPPA Annual Report Statistical Information . . . . . . . . . . . . . . . . . . . . . . . . . 12

MINISTERIAL FOREWORD by Baroness Scotland
The work being undertaken to improve the safety of communities through the Multi-Agency Public Protection Arrangements (MAPPA) is vitally important and a priority for government.The annual reports for 2004/5 provide evidence of that active engagement.Violence and sexual abuse are unacceptable wherever they occur and it is evident that through MAPPA such offenders are identified and better managed than ever before. As the number of offenders within MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that is the local police, probation and the Prison Service, is addressing these additional demands by strengthening local partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where they breach their licence or order, and using the findings of research and inspection to strengthen national guidance and local practice. Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me one of the most exciting developments in this arena in the last 12 months has been the appointment of lay advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public these lay advisers represent a diverse, able and committed group of people who are now helping the statutory agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively.Without a growing sense of public knowledge and confidence about this work much of the benefits of the public protection arrangements will be lost. I hope this annual report will be useful, informative and re-assuring to local communities.The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.

Baroness Scotland Minister of State for Criminal Justice and Offender Management

1

INTRODUCTION
We are pleased to introduce the fourth annual report on the work done by agencies in North Wales through the Multi Agency Public Protection Arrangements. This year has seen a number of developments arising out of the Criminal Justice Act 2003:N the Prison Service becoming part of the Responsible Authority N MAPPA partners have signed up to a “duty to co-operate” N 2 Lay Advisers have been recruited to MAPPA North Wales This report highlights aspects of the work done during the year and contains a statistics section which shows the number of offenders who have been considered under MAPPA. Beneath the

Section 1
figures are numerous examples of excellent collaborative effort by the Police Officers, Probation staff, Housing Officers, Social Services Officers and others. The report tries to reflect some of these by including comments from those involved in the front line of this work. MAPPA was set up to ensure there was a shared response to the issues that arise for public bodies dealing with people who have committed serious offences. The public will always be concerned about the chances of such people committing further offences. We are able to report once again that none of those cases managed through MAPPA in North Wales have committed a serious further offence and where there was a breach of licence supervision, offenders were returned to custody promptly.

Carol Moore Chief Officer North Wales Probation Area

Richard Brunstrum Chief Constable North Wales Police

John May Wales Area Manager HM Prison Service

2

KEY ACHIEVEMENTS
Three new elements arising out of the Criminal Justice Act 2003:N This year the Prison Service has joined with Police and Probation to form the Responsible Authority. What this means in North Wales is that the Area Manager for the Prison Service in Wales is now a member of the MAPPA Strategic Management Board (SMB). MAPPA continues to be very actively supported by colleagues at HMP Altcourse, which now accommodates the majority of offenders sent to prison from the North Wales area. N By the time of publication of this report, all agencies with a “duty to co-operate” are expected to have signed up to a new memorandum. Duty to co-operate agencies are required to be part of the SMB, but it is a positive sign of support and value of multi agency working that they do. N The third development is the appointment of 2 Lay Advisers. Two volunteer representatives drawn from the local community have been appointed by the Secretary of State to take on the role of ‘critical friend’ to the SMB – ensuring that the professionals involved do not lose sight of issues which concern the people of North Wales.

Section 2

“MAPPA helps different agencies share information and share responsibility when managing risk” Housing Officer

“MAPPA makes me feel more confident in supervising high risk offenders … supervision plans are based on decisions made by a well informed Panel.” Probation Officer

3

HOW THE MAPPA OPERATES IN NORTH WALES
Multi Agency Public Protection Arrangements have been put in place to ensure that concerns about any offender in the community can be shared between relevant agencies. Any agency involved in MAPPA can raise cases for consideration, but usually it is the Probation Service or Police Service who identify cases for consideration – when an offender is due to be released from prison, is sentenced for a serious offence, or moves into the area. There are three levels at which risk is assessed and managed:-

Section 3

Level 1:

Ordinary Risk Management

Where offenders are assessed as presenting a low or medium risk of harm. These cases are usually managed by one agency (Police, Probation or Youth Offending Team ) without the need for significant assistance from other agencies. Most ‘MAPPA’ cases are managed in this way.

Level 2:

Local Inter Agency Risk Management

Where offenders are assessed as presenting a high risk of harm and there is a need for those agencies with a responsibility for managing the case to work together collaboratively. These cases are discussed at Multi Agency Risk Assessment Conferences ( MARACs ) which are held each month in each of the three divisions. These meetings are convened by probation with a regular police involvement. Other agencies are invited to attend to discuss individual cases as required.

Level 3:

Multi Agency Public Protection Panels

A MAPPP will be convened to consider any case where the risk of harm is very high, where a case is particularly complex or requires unusual resource commitments or where there is a high level of media and public interest. These cases are often referred to as the “critical few”.

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VICTIMS OF SERIOUS OFFENCES
The main focus of MAPPA is on the risk and behaviour of offenders. However, when victims want information about the person who has offended against them or their family, it can be provided by the Probation Service. Care has to be taken not to raise unrealistic expectations – most offenders will get released back into the community and it is always possible victim and offender may meet again if they move in the same circles. Offenders released from prison may, if the victim requests it, have a condition in their licence to keep away from their victim or a geographical area where the victim lives or where the offence was committed.

Section 4
In 2004/05, the Probation Service in North Wales contacted 161 victims, 68 of whom took up the offer of being consulted and notified about offenders’ release plans. As well as the statutory duty on the Probation Service to contact victims, the MAPPA Responsible Authority has a duty of care to take all reasonable steps to protect people from becoming the subject of re-victimisation. Victims can also make practical contributions to the assessment and management of risk – they may be the person who knows best how the offender ticks – particularly where the offence has occurred in an abusive relationship within the family.

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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 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 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

Section 5

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

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 probation

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

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 Authority. 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.

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STATISTICAL INFORMATION - Headlines

Section 6

i)

The number of Registered Sex Offenders (RSOs) on 31st March 2005

This figure has continued to increase each year, mainly because anyone committing a sex offence before 1997 (or serving a sentence when the Law became effective) did not have to register.

389

ii)

The number of RSOs who were either cautioned or convicted for breaches of the requirement between 1st April 2004 and 31st March 2005

The increase in the number acted against for breaching registration is due in part to changes in requirements and police powers arising out of the Sex Offender Act 2003 and in part to the continuing attention of Officers in North Wales Police to tightly managing this group

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iii)

The number of Sex Offender Prevention Orders obtained on offenders in the Area between 1st April 2004 and 31st March 2005

These orders are of great use in putting restrictions on people’s behaviour, particularly when they are no longer subject to Probation Service supervision.

12 86 138

iv) v)

The number of violent and other sexual offenders living in the area between 1st April 2004 and 31st March 2005 The number of other offenders covered by MAPPA, living in the area between 1st April 2004 and 31st March 2005
There has been a significant rise in this figure compared to last year because of the inclusion of perpetrators of domestic abuse in MAPPA – many of these offenders receive community penalties.

vi)

The number of cases managed through MARACs (Level 2 cases) between 1st April 2004 and 31st March 2005 b) a) the number of these charged with a serious further offence
These figures are included for the first time in the Annual Report

317 0

the number of these returned to custody for a breach of licence

25 14 0

vii)

The number of cases managed through MAPPPs (Level 3 cases) between 1st April 2004 and 31st March 2005 b) the number of these returned to custody for a breach of licence a) the number of these charged with a serious further offence

These are the “critical few” cases – the high rate of return to custody for breach of licence reflects the robust way in which they are supervised. No serious further offences were committed by this group in 2004/05.

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STATISTICAL INFORMATION - Headlines

Section 6

“The development of closer working between agencies involved in MAPPA and Health have had a significant impact on protecting children accessing our services. Health professionals are able to engage in preventative work and assist in the supportive framework for families and children.” North East Wales NHS Trust Named Nurse Child Protection

CASE EXAMPLE 1
An offender who knows that he has been the subject of discussion at a MAPPP has asked for voluntary supervision by the Probation Service even though he is no longer subject to statutory supervision. This is a very positive development in light of the offender’s history of not co-operating. His acknowledgement of a need for support, for all agencies involved, in order to help reduce his offending behaviour and level of risk is a positive step towards his re-integration into the community.

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THE STRATEGIC MANAGEMENT BOARD
This group has met three times during 2004/05. Issues considered at these meetings include:N Duty to co-operate N Annual Report and interim report N Domestic Violence MARACs N VISOR N Electronic Monitoring

Section 7

“MAPPA helps to pre-empt some housing problems ….” Housing Officer

N Mentally Disordered Offenders N Criminal Justice Act 2003 N Recruitment / Appointment of Lay Advisers N Freedom of Information Act N Media / Press issues

The Board was joined for the first time by our two Lay Advisers at the April 2005 meeting.

“Bringing agencies together helps understand one another’s perspectives, improves the quality of joint working and the public get a better service” Probation Officer CASE EXAMPLE 2
Contact with a Community Councillor and subsequent discussions about the role of MAPPA have helped to allay some of the fears of a local community about the welfare of their children when they became aware that a sex offender was living close by. As a result of this, the offender is still residing in that community, they are aware of the arrangements in place to monitor his behaviour and know who to contact should they have any more concerns.

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LAY ADVISORS’ REPORT
“Having been in the post less than 6 months, our impressions are those of two who are on a sharp learning curve. One thing that has impressed us has been the attitude of those we have met in our quest for information. The support they have given us has been tremendous. We are also impressed by the level of importance the Home Office has given to the training of Lay Advisors by ensuring that the tuition we received at a training weekend we attended, was in the hands of respected professionals in the field. Finally, speaking as parents and grandparents, we can honestly say how reassured we are by the way the problems that we are involved in are dealt with, by all the agencies involved. There appears to be a commitment to closer co-operation, better communication and integration within each of the agencies concerned”.

Section 8 “... the interests of victims are paramount. When you hear of the extent of abuse suffered you ensure tight boundaries are put around an offender on supervision.” Probation Officer

CASE EXAMPLE 3
Offence: Kidnap and harassment of partner. A man who accepted no boundaries and we knew that the ex-partner and possibly children could be at risk. A very tight release plan worked out with Probation, Police,Victim Liaison Officer, Social Services and CAFCASS involved. Arrangements made for him to be placed in a hostel far away from home. He did not arrive on time, was consequently breached and returned to prison for a short period. Before his subsequent release, was interviewed at prison and he agreed that he would now co-operate. Has now been released to hostel.

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CONTACTS
For further information about MAPPA in North Wales, please contact any of the following: Matthew Driver Assistant Chief Probation Officer North Wales Probation Area Alexandra House Abergele Road Colwyn Bay, LL29 9YF Tel: 01492 513413 Roz Dickinson Public Protection Co-ordinator, North Wales Police Headquarters Glan y Don Colwyn Bay, LL29 8AW Tel: 01492 511193 Llewelyn Owen Senior Probation Officer North Wales Probation Area 14 Market Street Caernarfon, LL55 1RT Tel: 01286 674346 Gaynor Barton Senior Probation Officer North Wales Probation Area 18 Augusta Street Llandudno, LL30 2AD Tel: 01492 876961 Mike Roberts Senior Probation Officer North Wales Probation Area Unit 6, Acorn Business Park Aber Park Aber Road Flint, CH6 5YN Tel: 01352 792140 MARAC Convenor Gwynedd & Ynys Môn Chair of Public Protection Strategy Group and overall Probation responsibility for MAPPA

Section 9

MARAC Convenor Conwy & Denbighshire

MARAC Convenor Flintshire & Wrexham

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MAPPA ANNUAL REPORTS STATISTICAL INFORMATION
Required for the reporting period 1st APRIL 2004 - 31st MARCH 2005 1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)
i) The number of RSOs living in your Area on 31st March 2005. a) The number of RSOs per 100'000 head of population. (This figure will be calculated centrally by NPD)
This is information principally held by the police and is a snapshot of RSOs on 31/03/05. It should NOT include RSOs in prison.

App.1

389 59

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

Only those cautions that have actually taken place and breaches that have been successfully completed during the reporting period should be counted

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iii) The number of: b) a)

The number of RSOs per 100'000 head of population. Interim SOPOs granted

8 12 1

c)

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 be incorporated into these figures

Full SOPOs imposed by the courts in your Area between 1st May 2004 and 31st March 2005

iv) The number of: b) a)

notification Orders applied for

c)

full Notification Orders imposed by the courts in your Area between 1st May 2004 & 31st March 2005

interim Notification Orders granted

0 0 0

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

0 0

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MAPPA ANNUAL REPORTS STATISTICAL INFORMATION
Required for the reporting period 1st APRIL 2004 - 31st MARCH 2005 2. Category 2 MAPPA offenders:Violent offenders and Other Sexual offenders (V&OS)

App.1

vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in your Area between 1st April 2004 and 31st March 2005

You should include in this figure only those Category 2 offenders who are living in your Area during the reporting period.You should NOT include those Category 2 offenders who are still in custody. Care must also be taken NOT to include here any Category 1 offenders.

86

3. Category 3 MAPPA offenders: Other Offenders (OthO)
vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1st April 2004 and 31st March 2005

This figure should not include any offenders who are included in either the Category 1 or 2 (i.e. (i) and (vi) above) unless they have left those categories and are still considered by the Responsible Authority to pose a risk of serious harm.

138

4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency management)
viii) Identify how many MAPPA offenders in each of the three Categories (i.e. (1)- RSOs, (2)- V&O and (3)- OthO above) have been managed through the MAPPP (level 3) and through local inter-agency risk management (level 2) between 1st April 2004 and 31st March 2005.
• • •

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:

OthO

V&O

RSO

Level 3

5 7 2

Level 2

102 136 79

is assessed under OASys as being a high or very high risk of causing serious harm; AND

presents risks that can only be managed by a plan which requires close cooperation at a senior level due to the complexity of the case and/or because of the unusual resource commitments it requires; OR 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 should include those offenders who have not been managed at level 3 at any point in the counting period & meet the criteria set out in the MAPPA Guidance as follows: • The management of the offender requires the active involvement of more than one agency but the complexity of managing the risk is not so great as to require referral to Level 3, the MAPPP

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MAPPA ANNUAL REPORTS STATISTICAL INFORMATION
Required for the reporting period 1st APRIL 2004 - 31st MARCH 2005
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: b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? a) Were returned to custody for a breach of licence?

App.1

Level 3

5 0 0

Level 2

25 0 0

PLEASE NOTE: Only record outcome measures appropriate to the level at which the offender was managed at the time of their breach/further offence (e.g. if an offender was initially managed at Level 3 but goes on to commit a serious further offence after he has been moved to Level 2, he should be recorded in the 'Level 2' column for question (c))

c) Were charged with a serious sexual or violent offence?

For these purposes a serious sexual and violent offence is one of the following (i.e. the same offences as used to trigger reporting in the National Probation Service as a ‘serious further offence’): 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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