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1. Ministerial Foreword 1

2. Introduction 2

3. Key Achievements in 2004/05: 3

- The Prison Service join the Responsible Authority 3

- The Duty to Co-operate 3
- Developing a Memorandum of Understanding 4
- The Appointment of Lay Advisers 4
- Working with Offenders who are Domestic Abusers 4

4. How MAPPA Operate Locally: 5

- MAPPA in Suffolk 5
- The Role of the MAPPA Manager 8
- Disclosure of Information 8
- Sexual Offences Prevention Orders 9
- Working to Help Victims 9

5. Statistical Information: 10

- Comment upon Statistics 11

6. The Work of the Strategic Management Board 11

7. Contacts 12
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 re-

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 co-
operation 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 John Budd Danny McAllister

Chief Constable Chief Officer Area Manager
Suffolk Constabulary Suffolk Probation Area HM Prison Service


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 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 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.


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 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.


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.

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. Non-
attendance 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.



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

Category 1: Registered sex offenders who are required to register with the

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.
Category 3: Other offenders not in either of the above categories, but who
are considered to pose a risk of serious harm to the public.

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

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
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.

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.

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.


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.

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.


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.



Reporting period 1 APRIL 2004 – 31 MARCH 2005

Number of Offenders
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)

i) The number of RSOs living in Suffolk on 31 March 2005. 368

ia) The number of RSOs per 100,000 head of population. 54

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 12

iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) a) 3
interim SOPOs granted and (c) full SOPOs imposed by the courts in Suffolk b) 1
between 1 May 2004 and 31 March 2005 c) 3

iv) The number of (a) Notification Orders applied for (b) interim Notification Orders a) 0
granted and (c) full Notification Orders imposed by the courts in Suffolk b) 0
between 1 May 2004 and 31 March 2005 c) 0

v) The number of Foreign Travel Orders (a) applied for and (b) imposed by the a) 0
courts in Suffolk between 1 May 2004 and 31 March 2005 b) 0

2. Category 2 MAPPA offenders: Violent offenders and Other Sexual

offenders (V&OS)

vi) The number of violent and other sexual offenders (as defined by Section 327 (3),
(4) and (5) of the Criminal Justice Act (2003)) living in Suffolk between 1 April
2004 and 31 March 2005 106

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. 17

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

Level 3 Level 2
(viii)Identify how many MAPPA offenders in each of the three Categories (ie, RSO 1 16
(1)- RSOs, (2)- V&O and (3)- OthO above) have been managed through V&O 4 35
the MAPPP (level 3) and through local inter-agency risk management
(level 2) between 1 April 2004 and 31 March 2005. OthO 2 15

(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: Level 3 Level 2
(a) Were returned to custody for a breach of licence? a) 1 7
(b) Were returned to custody for a breach of a restraining order or sexual
offences prevention order? b) 0 0
(c) Were charged with a serious sexual or violent offence? c) 0 1


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

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 Address Tel No
Detective Chief Inspector Force Headquarters
(Operations) Martlesham Heath (01473) 613806
Crime Management Department Ipswich IP5 3QS

Suffolk Probation Area Address Tel No

Assistant Chief Officer Peninsular House
(Public Protection) 11/13 Lower Brook Street (01473) 408130
Ipswich IP4 1AQ

HM Prison Service Address Tel No

Governor HMP Highpoint
Stradishall (01440) 823105
Newmarket CB8 9YN

Suffolk Social Care Services Address Tel No

Head of Safeguarding Children Endeavour House
Children and Families 8 Russell Road, (01473) 264731
Ipswich IP1 2BX

Suffolk Housing Officers Group Address Tel No

SHOG Babergh District Council
c/o Head of Housing Corks Lane (01473) 822801
Babergh District Council Hadleigh
Ipswich IP7 6SJ

Local Health Partnerships/NHS Address Tel No

Service Manager – East Locality St Clements Hospital
Foxhall Road (01473) 329216
Ipswich IP3 8LS

Suffolk Youth Offending Service Address Tel No
Locality Manager W Suffolk Youth Offending
Service (01284) 352378
St Margarets
7 The Churchyard
Bury St Edmunds IP33 1RZ

Suffolk Victim Support Address Tel No

Area Manager 5 Regent Road
Lowestoft NR32 1PA (01502) 582310

Premier Monitoring Services Address Tel No

Assistant Director, Operational Austin House
Support Stannard Place (01603) 428300
St Crispins Road
Norwich, Norfolk, NR3 1YF

Local Education Authority Address Tel No

Assistant Education Officer Suffolk County Council
(Family Support) Endeavour House (01473) 264723
Russell Road
Ipswich, IP1 2BX

Further Information

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

National Helpline Tel No

The national helpline for victims 0845 30 30 900
provides a service at local call
rates on:

This is available: Mondays to Fridays 9.00am to 9.00pm

Weekends 9.00am to 7.00pm
Bank Holidays 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