INDEX Page 1.

Ministerial Foreword 1





Key Achievements in 2004/05: The Prison Service join the Responsible Authority The Duty to Co-operate Developing a Memorandum of Understanding The Appointment of Lay Advisers Working with Offenders who are Domestic Abusers

3 3 3 4 4 4


How MAPPA Operate Locally: MAPPA in Suffolk The Role of the MAPPA Manager Disclosure of Information Sexual Offences Prevention Orders Working to Help Victims

5 5 8 8 9 9


Statistical Information: - Comment upon Statistics

10 11


The Work of the Strategic Management Board






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 2004/05 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 revictimised. 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



We are pleased to introduce the Fourth Annual Report dealing with the work of the Multi-Agency Public Protection Arrangements (MAPPA) in Suffolk. The MAPPA are well established and continue to enjoy the excellent cooperation between the Police, Prison and Probation Services and the other agencies involved in the joint arrangements to protect the public from violent and sexual offenders who may pose a risk of causing harm. We believe that the publication of this report further demonstrates the priority accorded to protecting the public and working with victims of crime. We understand that this group of offenders causes the public concern and it is important that, through the publication of an annual report, the residents of Suffolk are informed about how the MAPPA operate and are reassured as to how these offenders are managed. In this report, reference is made as to how the MAPPA have been strengthened through changes included in the Criminal Justice Act (2003). We welcome these changes which include the appointment of two Lay Advisers who will join the Strategic Management Board and independently oversee the arrangements. The Act also makes the Prison Service part of the “Responsible Authority” for MAPPA and places a legal “duty to co-operate” on other agencies involved in protecting the public, building upon the existing partnerships developed in Suffolk over many years. The work of the MAPPA locally is vital to the assessment and management of offenders in the community. Our commitment and that of other agencies is clear through the continued funding for a MAPPA manager to co-ordinate the arrangements, working with all agencies to ensure the effective assessment and management of offenders and dedicated Police Public Protection Officers working across the county. The protection of the public remains our highest priority and we hope that this report will give both an insight into the complex nature of public protection work whilst giving reassurance that measures to protect the public are established and working in Suffolk.

Alastair McWhirter Chief Constable Suffolk Constabulary

John Budd Chief Officer Suffolk Probation Area

Danny McAllister Area Manager HM Prison Service 2


This report builds upon previously published reports which describe how the MAPPA arrangements were set up and developed both nationally and locally. The 2003/04 report is available on the Suffolk Probation Area website: THE PRISON SERVICE JOIN THE RESPONSIBLE AUTHORITY The Criminal Justice Act 2003 (sections 325-327) has strengthened and extended existing Multi-Agency Public Protection Arrangements (MAPPA). The Act makes the Prison Service part of the “Responsible Authority” (RA) with Police and Probation, placing a statutory responsibility upon these agencies to ensure the MAPPA are implemented, reviewed and their effectiveness monitored. This change has been introduced because of the important public protection role the Prison Service performs by keeping offenders in custody; by helping them to address the causes of their offending; and by undertaking work for their resettlement. It is expected that the strengthened involvement of the Prison Service will lead to a greater continuity of public protection work, supported by the use of a joint offender assessment tool called OASys (Offender Assessment System) used by both Prisons and Probation. THE DUTY TO CO- OPERATE The Prison Service are now represented on the Strategic Management Board (SMB) which oversees the work of MAPPA locally and now also includes other agencies who have a “duty to co-operate” with the Responsible Authority imposed by the CJA 2003. The purpose of the duty to co-operate acknowledges that the effectiveness of public protection is wider than just criminal justice agencies recognising the role of other agencies in helping offenders to resettle and avoid further offending, for example, Housing and Jobcentre Plus. This “duty to co-operate” extends to the following agencies who are either represented on the SMB, or who are being engaged in discussion about their involvement in MAPPA: • • • • • • • • Youth Offending Teams Jobcentre Plus Local Education Authorities Local Housing Authorities Registered Social Landlords Local Authority Social Care Services Local Health Partnerships Electronic Monitoring Providers.


DEVELOPING A MEMORANDUM OF UNDERSTANDING Ensuring the co-operation of all these agencies through the introduction of a legal basis has underpinned practice already developed in Suffolk over the past four years and reinforced the links with other existing and developing arrangements, for example, in relation to child protection and domestic abuse. Through the Strategic Management Board the duty to co-operate is further strengthened by the development of a “memorandum of understanding” which builds upon existing agreed protocols for the exchange of information and operation of the MAPPA locally. THE APPOINTMENT OF LAY ADVISERS The Criminal Justice Act (2003) requires that the Home Secretary appoints two lay advisers to each Police and Probation Area to assist the Strategic Management Board in its duty to review and oversee the MAPPA. Lay advisers are appointed to help review MAPPA functions and are not directly involved in operational decision making. The value of Lay Advisers is as “informed observers” who bring an objective oversight to the MAPPA and ask questions which professionals involved closely with the work would not necessarily think of asking. Lay advisers therefore act as a “critical friend” to those agencies involved in operating the MAPPA, helping to develop good practice and operating as full members of the SMB to ensure the MAPPA are working locally and are regularly reviewed. The recruitment process for lay advisers in Suffolk has recently been completed and they will be joining the SMB shortly following appointment by the Home Secretary and the completion of training and induction. Their involvement in MAPPA over the next year and personal observations will be reported fully in next year’s Annual Report. WORKING WITH OFFENDERS WHO ARE DOMESTIC ABUSERS During this reporting year Suffolk Probation Area has been preparing to begin delivering a new accredited group work programme called the Integrated Domestic Abuse Programme (IDAP). This programme has close links with the MAPPA, with all participants being discussed at a MAPPA meeting in an acknowledgement of the potential risks to victims when offenders are challenged about their abusive behaviour and because the programme is designed in such a way that multi-agency management is required, involving the Police, Probation and newly appointed Women’s Safety Workers. This programme will provide an additional resource not previously available to those staff working with domestic abuse offenders. It will enhance the effectiveness of risk management plans through the offender’s attendance which is designed to develop greater internal controls over their behaviour. By sharing information and working in a co-ordinated way, which includes the victim, the risks posed can be more comprehensively managed.


CASE STUDY An offender, convicted of a serious violent assault upon his pregnant partner, was referred to the MAPPA meeting as he was assessed as posing a risk of serious harm to his partner and the unborn child. Following the commission of the offence, with the victim’s consent, Victim Support Suffolk provided a trained volunteer who befriended, listened and provided useful information that helped the victim through the aftermath of the crime. Then, when the case came to court, Victim Support handed over to colleagues in the Witness Service, who provided support throughout the time at court. The offender required management by Probation and Social Care Services and ongoing contact with the victim by the Police Victim Contact Officer. A child protection case conference was held and a robust child protection plan was put in place requiring of the offender to agree a contract about his behaviour, contact with the victim and limited supervised contact when the child was born. This plan was supported and reviewed at the MAPPA meeting. The offender subject to a Community Rehabilitation Order agreed to attend Integrated Domestic Abuse Programme (IDAP) so as to gain insight and control over his abusive and violent behaviour. Nonattendance at the programme would result in immediate enforcement action and return to court. The victim, with the encouragement and support of the Police Victim Contact Officer, sought legal advice and protected herself through applications to the courts. The offender’s risks were managed through the application of external controls on his behaviour and the development of internal control through his attendance at IDAP.


MAPPA IN SUFFOLK The Multi-Agency Public Protection Arrangements (MAPPA) are underpinned by the knowledge that in order to manage and minimise the risk posed by violent and sexual offenders, effective communication and information sharing is essential. Three categories of offender are defined as falling within the remit of the MAPPA: Category 1: Registered sex offenders who are required to register with the Police.


Category 2:

Violent and other sex offenders (not required to register with Police) who have received a sentence of imprisonment of 12 months or more. Other offenders not in either of the above categories, but who are considered to pose a risk of serious harm to the public.

Category 3:

Multi-Agency Public Protection Arrangement meetings have operated in Suffolk since 2001 and have developed through the co-operation of agencies who have agreed protocols to share information and implement risk management plans on those offenders considered to pose an imminent and high risk of serious harm to the public. MAPPA meetings convene monthly in Bury St Edmunds, Lowestoft and Ipswich to review and assess the management of cases and ensure the risk management plan is being implemented. They are attended by a core representation from Probation, Police, Social Care Services and Local Mental Health partnerships. Where other agencies are involved they will be invited to attend the MAPPA meeting, for example, Prison Service, Housing, Youth Offending Service and Education. The aim of the MAPPA meetings is to identify, using established risk assessment tools, those offenders who pose the highest and most imminent risk of causing serious harm so that resources can be targeted in the most effective and efficient manner. In order to achieve the deployment of resources to the management of the most serious offenders or the “critical few” as they are known, guidance has been developed by the Public Protection Unit (PPU) which identifies three levels of risk management through the MAPPA. The structure is based on the principle that offenders should be managed at the lowest level consistent with the risks they pose and in order to demonstrate a defensible risk management plan. The three levels are: Level 1: Ordinary risk management. This is the level used in cases where the risks posed by the offender can be managed by one agency without significantly involving other agencies.

Level 2: Local inter-agency risk management. This level of management is used where active involvement of more than one agency is required. Level 3: Multi-Agency Public Protection Panels (MAPPPs). This level is reserved for the “critical few” offenders who are assessed as posing the highest and most imminent risk of serious harm; and they present risks that can only be managed at a senior management level due to the complexities of the case and/or because of the unusual resource commitments required. Additionally, cases, which are exceptional because of high media scrutiny or public interest and there is a need to ensure public confidence in the criminal justice system is sustained, are dealt with at Level 3. 6

Levels 1 and 2 are discussed at the pre-arranged monthly meetings with Level 3 offenders being discussed at the Multi-Agency Public Protection Panels which require the attendance of senior managers who can commit resources and take organisational responsibility for managing an offender who poses the highest risk. This system of risk assessment and categorisation allows the risks posed by offenders to be accurately identified and managed appropriately. It targets finite resources as effectively as possible. Of course, the system is not infallible but is designed to ensure risks are managed in a logical and responsible fashion. The decisions that are taken have to be reasonable and defensible and are clearly documented as to how they were arrived at. The strength of the MAPPA is that all decisions are made and agreed collectively at the meetings and there is accountability to ensure actions are carried out. Within the agencies attending the MAPPA meetings, managers and supervisors have the responsibility to ensure that priority is given to cases where offenders are assessed as high risk so that risk management plans are carried out. CASE STUDY A sex offender due to be released from prison was referred to the MAPPA meeting following concerns raised by the victim when contacted by the Police and Probation Victim Contact Officers. Because of the victim’s fear of repeat offending, their wish to have no contact with the offender and a risk assessment which suggested a high risk of re-offending, it was clear that a risk management plan was required to reduce risks and reassure the victim. With the increased worry caused by the imminent release, the victim made contact with Victim Support once more and appreciated the calm, sympathetic and realistic support of the volunteer. The risk management plan involved active and co-ordinated management by a number of agencies including Mental Health, Housing, Police and Probation. The offender was directed to reside in a hostel where strict rules and curfews apply, directed to undergo a psychiatric assessment, tested for excessive alcohol misuse and was closely monitored through sex offender registration by the Police Public Protection Officers. Stringent licence conditions were applied, including non-contact with the victim and exclusion from the victim’s home town. The victim continues to have contact with and the support of Victim Contact Officers and has reported no problems. The offender has complied with the conditions of his release.


The MAPPA Manager’s post has been established since 2003 and is funded collectively by agencies involved in the MAPPA in Suffolk. The Manager is responsible for co-ordinating the joint arrangements for the assessment of high risk offenders, screening referrals against set criteria, chairing MAPPA meetings, including Multi-Agency Public Protection Panels, and ensuring effective action has been taken to fulfil agreed risk management plans. The role also includes the responsibility to ensure all relevant information is shared and that any shortfalls in provision to those offenders who pose a risk is addressed. The MAPPA manager is accountable to the SMB and reports to them regularly. DISCLOSURE OF INFORMATION Information about individuals at MAPPA meetings is confidential to those agencies that attend. Confidentiality statements are read out and all agencies have signed a confidentiality protocol. A balance is needed between sufficient information to make a decision to help manage risk and not breaching the confidential nature of the information being shared. The use of disclosure is sometimes necessary in order to protect potential victims or others and has proven to be a very effective method of reducing risk and managing offenders’ behaviour. Disclosure will, however, only be made after careful consideration by a MAPPA meeting and then only when the recommendation has been authorised by the Assistant Chief Constable. Disclosure of information is done as sensitively as possible and this may mean that the person is only told about the offender’s behaviour in general terms. Where required specific details will be given. CASE STUDY A sex offender who was subject to the MAPPA and being reviewed regularly came to the end of his period of prison licence. Whilst on licence he had been directed to live in accommodation only approved by his Probation Officer but was no longer restricted in this way. Having gone on to form a new relationship, the MAPPA meeting was able to monitor his situation through the work of Social Care Services, the Police and Housing. Concerns were raised that he may be seeking contact with identified children in a similar manner to previous offending. In order to minimise any risks and to allow the children to be protected, a limited disclosure to the children’s parents was recommended and agreed by the Assistant Chief Constable.


The Sexual Offences Act 2003 introduced Sexual Offences Prevention Orders (SOPOs) which combine existing sex offender orders and restraining orders and allow conditions to be placed upon offenders which are necessary to protect the public. For example, an offender could be prevented from entering children’s playgrounds or visiting swimming baths. These orders can be made on violent offenders who present a sexual risk, as well as those convicted of sexual offences. Breach of these orders is punishable by a maximum penalty of five years’ imprisonment. In Suffolk last year, three SOPOs were made by the courts where concerns about an offender’s behaviour warranted restrictions on what they were allowed to do. These orders can now be applied for at the point of conviction and it is expected that they will increase in number and therefore provide additional controls on offenders in order to manage and reduce risk. WORKING TO HELP VICTIMS Concern for and helping victims is central to the MAPPA and the development of risk management plans. Dedicated Victim Contact Officers within Police and Probation are in contact with the victims of violent and sexual crime and are aware how deeply victims and their families can be affected. They keep victims informed about plans made to protect them from the person that has harmed them and their views are taken into consideration when agreeing risk management plans. For 30 years Victim Support Suffolk have been helping victims of crime in the county. They are an independent charity that provides a free and confidential service. Their trained volunteers offer emotional support, information and practical help to victims (whether or not they have reported the crime to the Police). The charity offers a Witness Service volunteer to all witnesses in criminal trials in the county. (See Section 7 for local and national contact details). The Area Manager for Victim Support, Suffolk is a member of the Strategic Management Board.




Number of Offenders

1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO) i) The number of RSOs living in Suffolk on 31 March 2005. ia) The number of RSOs per 100,000 head of population. ii) The number of sex offenders having a registration requirement who were either cautioned or convicted for breaches of the requirement, between 1 April 2004 and 31 March 2005 iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in Suffolk between 1 May 2004 and 31 March 2005 iv) The number of (a) Notification Orders applied for (b) interim Notification Orders granted and (c) full Notification Orders imposed by the courts in Suffolk between 1 May 2004 and 31 March 2005 v) The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts in Suffolk between 1 May 2004 and 31 March 2005 2. Category 2 MAPPA offenders: Violent offenders and Other Sexual a) b) c) a) b) c) a) b) 368 54

12 3 1 3 0 0 0 0 0

offenders (V&OS)
vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in Suffolk between 1 April 2004 and 31 March 2005 3. Category 3 MAPPA offenders: Other Offenders (OthO) vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act (2003)) between 1 April 2004 and 31 March 2005. 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 (ie, (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 1 April 2004 and 31 March 2005. (ix) Of the cases managed at levels 3 or 2 (ie, (viii)) between 1 April 2004 and 31 March 2005 how many, whilst managed at that level: (a) Were returned to custody for a breach of licence? (b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? (c) Were charged with a serious sexual or violent offence?



Level 3 1 4 2

Level 2 16 35 15

a) b) c)

Level 3 1 0 0

Level 2 7 0 1


COMMENT UPON STATISTICS The number of Registered Sex Offenders living in the community increases each year because when convicted the offender is required to register with the Police. This means the offender has to notify any changes as to where they live and receive visits from specialist Police Public Protection Officers. Because sex offender registration is always for a number of years (normally a minimum of five years) the numbers can be expected to grow each year as more offenders join the register than leave it. The numbers of Registered Sex Offenders and violent offenders living in Suffolk during the reporting period may look high. However, not all these offenders are considered to pose a risk of serious harm which would require management by a MAPPA panel (Level 2 or Level 3). Of the 474 sexual and violent offenders identified, only 56 required management at Levels 2 or 3 of MAPPA. Only seven offenders were considered to pose the highest risk, requiring management at Level 3 by the Multi-Agency Public Protection Panel. The number of offenders in the “other” category has increased in 2004/05. This can be attributed to the fact that in previous years only Level 3 cases were reported on and now include Level 2. It is also an indication of a heightened awareness and concern about the risks associated with domestic abuse. Men who commit offences of domestic abuse often do not receive custodial sentences and therefore are not included in category 2 of MAPPA offenders. It is also now a requirement that men who attend the Integrated Domestic Abuse Programme are considered within the MAPPA, in acknowledgement of the potential risks they pose to victims when confronted with their behaviour. Whilst the MAPPA provides a robust set of inter-agency arrangements to identify and manage offenders who pose a high risk of serious harm, it is not infallible and can never eliminate risk totally. In 2004/05 one offender registered within the MAPPA went on to commit a serious (violent) offence. A review of the circumstances surrounding this offence is being conducted and will report to the SMB (see Section 6).


The SMB is now represented by all but one of the “duty to co-operate” agencies. It is planned to invite this remaining agency to join the SMB in the near future. The Prison Service is now represented having joined the Responsible Authority as described earlier in this report. During the reporting year, the SMB has continued its monitoring role, regularly considering the numbers of cases the levels of risk and ensuring the commitment to the joint arrangements is maintained.


Strong links continue between the SMB, Area Child Protection Committee and the local Criminal Justice Boards with members often attending these associated structures, enabling clear links to be made with the work of the MAPPA. Plans are being made to develop a programme of information sharing workshops so as to further develop a consistent understanding of the MAPPA amongst staff in both the Responsible Authority and the “duty to co-operate agencies”. From the statistics provided it will be noted that during the year one Level 2 offender went on to commit a serious (violent) offence whilst subject to the MAPPA. Following conviction the lead agency involved is conducting a Serious Further Offence Review, which will be made available to the SMB. This review will be considered by the SMB when completed and if areas for improvement in practice or policy are identified they will be acted upon.


Suffolk Constabulary Detective Chief Inspector (Operations) Crime Management Department Suffolk Probation Area Assistant Chief Officer (Public Protection) Address Force Headquarters Martlesham Heath Ipswich IP5 3QS Address Peninsular House 11/13 Lower Brook Street Ipswich IP4 1AQ Address HMP Highpoint Stradishall Newmarket CB8 9YN Address Endeavour House 8 Russell Road, Ipswich IP1 2BX Address Babergh District Council Corks Lane Hadleigh Ipswich IP7 6SJ Address St Clements Hospital Foxhall Road Ipswich IP3 8LS Tel No (01473) 613806

Tel No (01473) 408130

HM Prison Service Governor

Tel No (01440) 823105

Suffolk Social Care Services Head of Safeguarding Children Children and Families

Tel No (01473) 264731

Suffolk Housing Officers Group SHOG c/o Head of Housing Babergh District Council

Tel No (01473) 822801

Local Health Partnerships/NHS Trust Service Manager – East Locality

Tel No (01473) 329216


Suffolk Youth Offending Service Address Locality Manager

Tel No

W Suffolk Youth Offending Service (01284) 352378 St Margarets 7 The Churchyard Bury St Edmunds IP33 1RZ Address 5 Regent Road Lowestoft NR32 1PA Tel No (01502) 582310

Suffolk Victim Support Area Manager

Premier Monitoring Services Assistant Director, Operational Support


Tel No

Austin House Stannard Place (01603) 428300 St Crispins Road Norwich, Norfolk, NR3 1YF Address Suffolk County Council Endeavour House Russell Road Ipswich, IP1 2BX Tel No (01473) 264723

Local Education Authority Assistant Education Officer (Family Support)

Further Information
Further information is available on the National Association of Victim Support website:

National Helpline
The national helpline for victims provides a service at local call rates on: This is available: Mondays to Fridays Weekends Bank Holidays

Tel No 0845 30 30 900

9.00am to 9.00pm 9.00am to 7.00pm 9.00am to 5.00pm

For further information contact: Police and Probation – Telephone numbers can be found in the Contact section of this report and in local telephone directories Home Office Customer Services 0870 000 1585