Annual Report 2004/05


Multi-Agency Public Protection Arrangements

Protection through partnership

Ministerial Foreword
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

Foreword by the Responsible Authority Introduction MAPPA: How it works Who is managed under MAPPA? How are offenders managed? How does the MAPPA work? Who does what in the MAPPA process? Victims: The real focus of the MAPPA process Key Achievements this year What do the statistics tell us? Statistical information Managing MAPPA: The Strategic Management Board List of MAPPA contacts 1 3 4 4 4 5 5 7 8 9 10 11 12

We are pleased to introduce the 2004 - 2005 Annual Report for MAPPA in Sussex. The report details the way in which the three agencies that make up the “Responsible Authority” work in partnership with other agencies to manage the small number of people who pose a significant risk of harm to the community. In particular, the case examples demonstrate how working together strengthens our ability to assess and manage risk effectively. The incorporation of the Prison Service with the Responsible Authority is particularly welcome. It has improved the quality of information we receive on serving prisoners approaching release and this in turn, results in more robust risk management plans when these prisoners return to the community. As MAPPA matures, we need to strengthen our structures for overseeing the operational activity described in this and previous reports. We have used the finding of national research into the effectiveness of MAPPA to restructure the Strategic Management Board of Sussex MAPPA. The Board has slightly reduced in size but retains representation from key partner agencies: Social and Caring Services, Housing Authorities, and the Health Service. We are particularly pleased that we will be welcoming two Lay Advisors onto the Board in the coming year. The Board has adopted a Business Plan for the coming year that reflects the responsibilities spelled out under the National Guidance. These are as follows: • Monitoring and Evaluation of MAPPA – We will be seeking to strengthen our quality control and audit processes during the coming year. • Linking to other bodies - We already have formal links to Child Protection structures. During the coming year we will be looking to build formal links with the Local Criminal Justice Board, Local Crime and Disorder Reduction Partnerships and with local Domestic Violence structures. • Promotion of MAPPA - In addition to publishing our Annual Report we will be reviewing the way in which we communicate with the community and other key stakeholders about our work. • MAPPA Developments - We will review over current protocols with other agencies to ensure they reflect recent legislation. • Training - We will be producing a training strategy for staff working within the remit of MAPPA. The overriding principle that underlines all our multi-agency work is public safety, the protection of victims and the reduction of serious harm. We are confident that this report details the robust processes that are in place for promoting public protection and we will are committed to developing and strengthening these processes in the coming year.

Ken Jones Chief Constable Sussex Police

Brian Clark Chief Officer National Probation Service

Colin McConnell Area Manager for Sussex HMP


This is the fourth annual report about these arrangements and covers the year 1st April 2004 to 31st March 2005. If you are interested in reading the reports of other MAPPA areas, including previous years reports, they are available on the National Probation Service’s website (under the public protection section).

Protecting the public from sexual and violent offenders is one of the Government’s highest priorities. Sexual and violent offences are dreadful crimes, that deeply affect the lives of victims and their families and inspire fear in local communities. Their impact can be profound and long lasting, leaving victims feeling unsafe even in their own homes. The Multi Agency Public Protection Arrangements (MAPPA) which began operating in April 2001, place a duty on the Police, Probation Service and more recently the Prison Service to assess and manage the risks posed by offenders in every community in England and Wales. These three organisations work together as the Responsible Authority. The role of the Responsible Authority is to put robust arrangements in place, to manage people who pose a serious risk of harm to others. These arrangements are multi-agency because the Police, Probation Service and Prison Service recognise that they cannot do this work alone. Key to the development of the MAPPA, is the close involvement of other partner organisations such as social services, local authority housing, health services and youth offending teams. These partner agencies all have a duty to co-operate and work together with the Responsible Authority, to protect the public from the possible harm posed by these few, known, high risk offenders. This report is prepared on behalf of Sussex Police, the Sussex Area of the National Probation Service and the HM Prison Service. As this report will show, the MAPPA are undertaking a great deal of good work to develop and strengthen their activities. In the most serious cases the MAPPA can recommend increased Police monitoring, special steps to protect victims and the use of closely supervised accommodation. Where appropriate, they can also disclose information to a range of people in local communities, including employers and schools. Although it will never be completely possible to eliminate the risk, it is important that the public are aware of the steps that are being taken to guard and protect them from violent, sexual and other dangerous offenders. This report describes how the Sussex MAPPA manages and reduces the risk of these offenders causing harm to others in the local community.


MAPPA: How it works
There are many aspects to protecting the public and managing the risks from violent, sexual and other dangerous offenders. The fundamental purpose of MAPPA is public safety, the protection of victims and the reduction of serious harm. In Sussex, the day to day work of all the agencies involved in public protection, provides the backbone to effective risk assessment and management. MAPPA provides a strong framework in which the skills of relevant agencies can be combined to assess and manage the risks posed by offenders living within the community.

So who is managed under MAPPA?
MAPPA works on a clear categorisation process:-

Registered Sex Offenders1

Violent Offenders2 or other Sex Offenders1 who are on licence to the Probation Service

Other Offenders who have a previous conviction for an offence and who pose a risk of serious harm to the public

How are offenders managed?
The MAPPA process also has a series of levels under which all MAPPA offenders, depending on their risk levels, are managed. This structure of risk management is intended to enable resources to be deployed to manage the identified risks in the most efficient and effective manner. The three risk management levels are as follows:-




An offender who poses a low to medium risk Level 1 - risk management is used when the risks posed by the offender can be managed by one agency without significantly involving other agencies

An offender who poses a medium to high risk Level 2 - risk management is used where the active involvement of more than one agency is required but where either the level of risk or the complexity is not so great as to require a referral to Level 3

One of the ‘critical few’

Level 3 - risk management is for those offenders who pose the highest risk of causing serious harm to the public and whose management is complex


Sexual Offenders are deemed as those people registered with the police under the Sex Offenders Act 1997 or someone who has been given a sentence related to a sexual offence for 12 months or more since April 2001 Violent Offenders are those who have committed a violent offence and have been given a sentence of 12 months or more



How does the MAPPA work?
Quite simply, the arrangements are based on the knowledge that the best way to manage and reduce the risks that these few offenders pose, is to share information. Referrals are made to the MAPPA Officer and cases are initially considered at the Level 2 Risk Assessment Meetings. Although the majority of all referrals are made by either the Police or Probation Service, any agency can refer cases where there is a concern for public safety.

Once an offender has been referred into MAPPA, it is the responsibility of the MAPPA agencies to undertake a rigorous risk assessment and construct a risk management plan to minimise the potential danger an offender poses. When constructing the management plan, information from all the agencies such as previous offending, current risk levels and pre-cursers to offending are all taken into consideration and form the basis of the plan. Once the plan has been agreed, it is reviewed on a regular basis and the decisions and actions of the panel are recorded.

Whilst Mrs X served a prison sentence for robbery, her three young children were in the care of Social Services. Prior to her release, concern was raised when Mrs X, who has a long history of drug abuse, threatened to snatch her children from the care home. A MAPPP meeting was convened, where Police and Probation, in close liaison with Social Services, the foster parents and the school, developed a robust protection plan for the children. Following a psychiatric assessment, the MAPPP developed a risk management plan which included a condition that Mrs X be housed in a hostel that was far removed the area in which her children were living

Disclosure remains a vital tool in the management of some offenders. Such disclosure may range from specific revelation to nominated persons within agencies who have contact with the offender, to individuals who are known to be at risk from the offending behaviour. In extreme cases and where the risk is most serious, wider disclosure to groups within the community may be considered. In all disclosure cases, the decision to disclose is made by the Chair of the MAPPP and care is taken to balance the rights of the individual against the risk posed by their offending behaviour. This year, the Sussex MAPPA are in the process of developing a communications strategy. It is hoped that this strategy will enable the MAPPA to effectively communicate with our partners and stakeholders and that it will enable the MAPPA to inform the public about how all the agencies work together to risk assess and manage offenders living in the community.

Who does what in the MAPPA process?
Protecting the public from sexual, violent and other dangerous offenders is best achieved by joint working. Sussex has a strong history of working together with other agencies to protect the public. Although Police and Probation are predominantly the lead agencies, the contributions made by other agencies are essential to the process. A summary of their roles and responsibilities in relation to public protection In Sussex is outlined below:-

Sussex Police
Along with the Probation Service and the Prison Service, Sussex Police are responsible for the development and management of the arrangements. They co-chair and co-ordinate the meetings and are primarily responsible for the management of Registered Sex Offenders. They contribute enforcement activity including the monitoring of offenders, obtain sex offender prevention orders, manage the registration of sex offenders and are responsible for the investigation of any offending.

Sussex Probation Area
Probation staff make a wide-ranging contribution to the work of MAPPA and are skilled in assessing the risks that offenders present. They are committed to reducing re-offending and to protecting victims and potential victims. They do this through rigorous risk assessments, supervision and control of offenders and through direct contact with the victims. Probation are also responsible for recalling offenders back to custody if they fail to comply with the terms and conditions of their licence. 5

Mr X, a high risk, predatory sex offender, had numerous convictions for the rape and indecent assault of young girls aged between 5-13 years. He had a long history of befriending vulnerable women with young children and his most recent victim had been a young girl who lived just a few yards from his house. Upon release from prison, he was managed by the MAPPP and a robust risk management plan was put in place. The MAPPP decided that due to the close proximity of his victim, Mr X would not be allowed to return and live in his property and most importantly, he would only be allowed to visit the address if he was escorted by either a Police or Probation Officer. This was not only for the victim’s welfare but also because there was a risk to Mr X from vigilantes. Despite strict licence conditions and ongoing vandalism to the property, Mr X was very reluctant t sell his property. In order to encourage him to sell the property, the MAPPP, in close liaison with the Local Housing Department, arranged to have his housing benefit suspended. This forced him to sell the property as he couldn’t afford to maintain his mortgage and his rent. He is still closely managed by the MAPPP, however he is removed from his victim and he no longer lives within his offending area.

Prison Service
At the end of the custodial element of their sentence, all prisoners managed under MAPPA, eventually return to living in the community. Her Majesty’s Prison Service works in close partnership with the Police and Probation Services to identify these offenders so that they can access a range of interventions aimed at addressing the offender’s behaviour and reducing the risk of reoffending on release. The Prison Service is also able to provide a wealth of invaluable intelligence on offenders, such as their behaviour and those individuals with whom they have been in contact with whilst in custody. This information can be utilised to strengthen the risk management plan which is developed prior to the offender’s release. This year a protocol has been developed between the Sussex MAPPA and the South East Region of the Prison Service. This protocol formalises arrangements for effectively managing cases from custody through to the offenders release into the community.

Social Services
Social Services have a primary responsibility for the protection of children and vulnerable adults from abuse. They provide valuable information on family networks and can share vital information about offenders.

The mental health teams provide statutory mental health services across Sussex and are committed to playing their part in the MAPPA process. They are responsible for the assessment and treatment of offenders requiring psychiatric treatment, including offenders who are mentally disordered and have personality disorders. Their work includes both community based treatment and management in secure residential facilities.

Mental Health

Local Authority Housing Departments and Registered Social Landlords provide housing support for those in need. Their role within MAPPA is to help in delivering the fundamental aim of public protection, by providing the type of accommodation most suitable to an offender, depending on the seriousness of the crime.

Youth Offending Teams
The three YOTs based in Sussex are responsible for supervising all offenders under 18 years of age. They provide a full range of services to young people who have offended and offer direct services to victims of youth crime. They support the arrangements through effective risk assessment and risk management strategies for young offenders.


Victims: The real focus of the MAPPA process
While the fundamental duty of all the agencies involved in the MAPPA process is to safeguard the public from dangerous sexual and violent offenders, the real priority is always the care of victims. The protection of victims is at the core of the Sussex MAPPA and is dependant on effective multi-agency working. Within Sussex, the Victim Contact Scheme has provided a service to victims of crime since 1995. The Scheme has two primary objectives:• To ensure that victims and/or their families are fully aware of the custodial process and are kept informed of any relevant developments in the offenders sentence; and • To ensure that victims and/or their families are given the opportunity to express any concerns they may have regarding the offenders release arrangements In order to deliver this vital service, there are dedicated Victim Liaison Officers (VLOs) who work within Sussex Probation. These VLOs are responsible for liasing with both the victim/s and the offenders Probation Officer, to ensure that the victim is kept fully informed of any developments and that their perspective, where possible, is taken into account during the formulation of the offenders risk management plan. In some cases, liaison with the VLO can result in additional licence conditions such as a exclusion zone prohibiting an offender from entering a particular area, such as the victims home town, or a no contact condition prohibiting an offender from contacting their victim either directly or indirectly.

Mr X, a high risk sex offender, was convicted of holding members of his family hostage and threatening to kill them. During his prison sentence, the Victim Liaison Officer had regular contact with his ex-partner to discuss her concerns and her fear of his release. This information was relayed to the MAPPP and was incorporated in the development of the offenders risk management plan. In addition, a robust a protection plan for the offenders family including his ex partner was put into action. This plan included strict licence conditions including exclusion zones around the family home and other related areas, police fitted alarms in the family’s home and disclosure to key people. On his release, Mr X was closely managed by the MAPPP and when he failed to comply with his licence conditions, he was promptly recalled to prison.


Key achievements this year
During the last year we have had some significant achievements, including:• The Sussex MAPPA has welcomed the Prison Service as part of the Responsible Authority with a representative sitting on the Strategic Management Board and Prison staff being invited to attend both Level 2 and Level 3 public protection meetings • The selection and appointment of two Lay Advisors who will provide a valuable community perspective on the public protection arrangements • In accordance with the Criminal Justice Act, the continued engagement of our duty to co-operate agencies, including arranging a stakeholders day to provide training and awareness among local agencies of their role in public protection and in managing risks • The appointment of a MAPPA Officer who will support the Responsible Authority and will provide a link to the other agencies involved in MAPPA. The post will also play a role in making these arrangements widely known and will keep the procedures under constant review to ensure they are consistent and in accordance with National Guidance. This post is central to the development and implementation of the Strategic Management Board’s business plan. It is also pivotal in the development and enhancement of business practices and protocols within the Sussex MAPPA. • The development of ViSOR, the national database for violent and sexual offenders and the appointment of a ViSOR Administrator. ViSOR, which went live in Sussex in March 2005, stores a vast array of information on offenders such as photos, modus operandi and risk assessments. 30 forces are currently ‘live’ giving access to over 33,000 records • Joint training for Police and Probation staff in risk assessment and the managing of internet sex offenders • Two seminars for the chairs of both the Level 2 and 3 meetings, where training regarding management levels has been provided


What do the statistics tell us?
Increasing numbers – greater risk of harm?
In line with national trends, the number of Registered Sex Offenders (RSOs) in Sussex has increased. The number of RSOs on 31 March 2005 was 752 compared with 581 at the same time last year. Although this represents an overall increase of 23%, it should not be thought that the public are at a greater risk of harm. Quite the opposite. Not only is an increase inevitable because the number of offenders who have to register as sex offenders on conviction is greater than the number whose period of registration expires each year, but the number is a cumulative one, which has increased annually since the requirement to register was first established. In addition, there are now more offences by which a convicted offender would be placed on Sex Offenders Register. This in itself would lead to a substantial increase.

Strong Compliance
This year, Sussex has seen a high level of compliance in relation to the registration requirements of Registered Sex Offenders. Only 44 offenders were cautioned or convicted for registration breaches, representing 6% of the total number of RSOs. This is a strong percentage, which ensures good monitoring, mainly due to the fact that registration includes, amongst other things, the offenders stating where he or she is living. By knowing where an offender is living, he or she can be closely monitored by all the agencies involved in public protection.

A high risk sex offender who was convicted of raping his six year old sister when he was just fifteen, breached his SOPO when he struck up a friendship with a fourteen year old girl. At the same time, the offender further breached his SOPO by moving out of the county. He was swiftly arrested and sentenced to three months imprisonment. Whilst in prison he continued to breach his SOPO by contacting the young girl and another girl of a similar age. The Police, in close liaison with the MAPPP, took swift action regarding the continued breach and he is now serving a further two consecutive twelve month sentences.

Sexual Offender Prevention Orders

This year, 11 full Sexual Offender Prevention Orders (SOPOs) have been obtained. These orders are a strong risk management tool and place restrictions on offenders such as prohibiting access to certain areas i.e. play areas, schools and seafront areas and prohibiting contact with certain groups of people, such as children under the age of 16. In close liaison with our partners, the police will continue to seek SOPOs to help protect the public from the risks posed by this small number of offenders.

More robust recording
The number of Violent and Other Sexual Offenders has shown a decrease from 384 to 251. Whilst this represents a drop of 38%, we accept that this is due to a more robust recording system for all MAPPA offenders and not as a result of a decrease in the actual numbers of offenders. Equally, we accept that the increase in the number of Category 3 Other Offenders, from 7 to 13, is also due to our more stringent recording system. By developing a rigorous assessment and recording process, we have ensured that we capture the most high risk offenders who pose the greatest risk of harm. This is clearly demonstrated when we compare the number of offenders managed at level 3 with last years figures. Overall, the number of offenders managed as the ‘Critical Few’ i.e. the most dangerous offenders, has dropped from 31 to 22, representing a total decrease of 29%.

MAPPA – Has it worked?
Out of a total number of 1016 MAPPA offenders, 6 cases went on to commit a further serious, sexual or violent offence. It is important to note that one of the cases involved an historical offence where the offender was convicted by DNA. Whilst we recognise that the 5 further offences that took place during the last year, are 5 too many, they represent only 0.49% of the total number of Sussex MAPPA offenders. With our partners, we will continue to improve the assessment and management of these offenders and to help increase and build on existing public safety and reassurance. 9

Statistical Information
CATEGORY 1 MAPPA Offenders: Registered Sex Offenders
i The number of Registered Sex Offenders living in Sussex on 31st March 2005 (a) ii The number of Registered Sex Offenders per 100,000 of population 752 49 44

The number of sex offenders having a registration requirement who were either cautioned or convicted for beaches of the requirement between 1st April 2004 and 31st March 2005 Between 1st May 2004 and 31st March 2005, the number of:(a) Sexual Offences Prevention Orders (SOPOS) applied for (b) Interim SOPOs granted (c) Full SOPOs imposed by the courts


20 4 11


Between 1st May 2004 and 31st March 2005, the number of:(a) Notification Orders applied for (b) Interim Notification Orders granted (c) Full Notification Orders imposed by the court 1 0 1


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

CATEGORY 2 MAPPA Offenders: Violent Offenders and Other Sexual Offenders
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 Sussex between 1st April 2004 and 31st March 2005 251

CATEGORY 3 MAPPA Offenders: Other Offenders
vii The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal Justice Act 2003, living in Sussex between 1st April 2004 and 31st March 2005 13

Offenders managed through LEVEL 3 (MAPPP) and LEVEL 2 (Local Inter-Agency Management)
viii The number of MAPPA offenders in each of the 3 categories who have been managed through the MAPPP (level 2 & 3) between 1st April 2004 and 31st March 2005:LEVEL 2 (a) Registered Sex Offenders (b) Violent and Other Sexual Offenders (c) Other Offenders 186 128 11 LEVEL 3 6 14 2


Of the cases managed at levels 2 or 3, how many whilst managed at that level were:LEVEL 2 (a) returned to custody for breach of licence? (b) returned to custody for breach of a restraining order or SOPO? (c) charged with a serious sexual or violent offence? 35 7 4 LEVEL 3 8 0 2


Managing MAPPA –
The Strategic Management Board oversees the operation of all MAPPA arrangements within Sussex. Representatives of all agencies involved in MAPPA sit on the board, together with 2 lay members who were appointed in February 2005. The effective working of the Board is key to the success of the Sussex MAPPA process. The Strategic Management Board is jointly led by a Superintendent from Sussex Police and by an Assistant Chief Officer from the National Probation Service (Sussex Area). Other members of the Board who have a duty to co-operate include representatives from the Prison Service, local authority housing, mental health, social services and local health services. Although all the agencies have a statutory duty, this has only formalised what was already a strong and effective working relationship between the agencies. The Strategic Management Board meets four times a year and its primary function is to monitor and review the effectiveness of the local MAPPA meetings and arrangements. This is to ensure the consistent implementation of practice and procedure, adherence to National Guidance and to promote effective communication and information sharing between all the agencies involved. The Board is also responsible for disseminating best practice and for identifying and organising training and developmental opportunities for those working within the remit of MAPPA. The Board also has a case review function, where serious incidents involving MAPPA offenders are reviewed. This year, there have been no further serious sexual or violent offences committed by offenders managed under MAPPA. In addition, to the serious case reviews, the Board has also developed a protocol for the regular review of routine cases including offenders managed at Level 1 & 2. This will not only enable the Board to identify and disseminate best practice but it will highlight areas that may require further focus and development. During the last year, the Board has developed its existing strong links and protocol with local Area Child Protection Committees. The Committees are kept fully informed on the development of MAPPA, updates from the Child Protection Committees are standing agenda items on each MAPPP and both the Police and Probation have common representation on each of the groups. The Board is also in the process of establishing a protocol with the Crime and Disorder Partnerships and the Local Criminal Justice Boards. Through this ongoing work, the Board are committed to strengthening its links with other public protection structures. The role of the two recently appointed lay advisors has further enhanced the role of the Board. The Lay Advisors not only bring a unique perspective to the Board but they bring an element of public scrutiny to what is often an extremely complex and sensitive area of public protection. It is hoped that the Lay Advisors will encourage greater openness and transparency in the work of MAPPA, make decision makers more accountable, bring community views to the development of MAPPA and scrutinise the process, priorities and working methods of MAPPA. In short, the Lay Advisors will ensure an appropriate and practical level of community involvement and will enable the local communities to understand more of what is being done to protect them.

One of the recently appointed Lay Advisors stated:-

I am very pleased to have been appointed as a Lay Advisor in Sussex. I am looking forward to learning how MAPPA works and to making a contribution to that work.


Address Phone

Sussex Police
Russell Whitfield Detective Superintendent Sussex House Crowhurst Road Brighton East Sussex BN1 8AF Sussex Police Crowhurst Road Brighton East Sussex BN1 8AF 0845 6070 999

Kate Matthews MAPPA Officer

0845 6070 999

Sussex Probation Area
Nick Smart Assistant Chief Officer Sussex Probation Service 185 Dyke Road Hove East Sussex BN3 1TL 01273 227979

Surrey, Sussex & Kent Prison Service
Jim Benson Area Risk Assessment & Management Co-ordinator – Public Protection Lead Surrey, Sussex & Kent Area Office 80 Sir Evelyn Street Rochester Kent ME1 3NF 01634 673042



Multi-Agency Public Protection Arrangements
Annual Report 2004/05