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MINISTERIAL FOREWORD

The work being undertaken to improve dangerous offenders, MAPPA is helping the public these lay advisers represent a
the safety of communities through the to ensure that fewer people are re- diverse, able and committed group of
Multi-Agency Public Protection victimised. people who are now helping the
Arrangements (MAPPA) is vitally statutory agencies to oversee the work
important and a priority for The active implementation of the being undertaken through MAPPA and
government.The annual reports for Criminal Justice Act (2003) during the communicate with the public more
2004/5 provide evidence of that active last year has clearly enhanced the ability effectively.Without a growing sense of
engagement.Violence and sexual abuse of a number of agencies including public knowledge and confidence about
are unacceptable wherever they occur health, social services and housing to this work much of the benefits of the
and it is evident that through MAPPA work collaboratively with the public protection arrangements will be
such offenders are identified and better Responsible Authority in assessing and lost.
managed than ever before. As the managing those sexual and violent
number of offenders within MAPPA offenders in our communities who pose I hope this annual report will be useful,
continues to grow as expected there is the highest risk of serious harm. For the informative and re-assuring to local
clear evidence that the Responsible continued success of MAPPA this communities.The agencies and
Authority, that is the local police, collaboration together with the scrutiny individuals who have contributed to the
probation and the Prison Service, is of policy and practice must become the achievement of MAPPA locally are to be
addressing these additional demands by hallmark of these arrangements. commended.
strengthening local partnerships, using Similarly MAPPA must integrate with
new statutory powers to restrict the other public protection mechanisms
behaviour of offenders, returning dealing with child abuse, domestic abuse
offenders to custody where they breach and racial abuse.
their licence or order, and using the
findings of research and inspection to For me one of the most exciting
strengthen national guidance and local developments in this arena in the last
Baroness Scotland
practice. 12 months has been the appointment of
lay advisers to assist the Responsible Minister of State for Criminal
Although it is never possible completely Authority in the oversight of the Justice and Offender
to eliminate the risk posed by arrangements. As ordinary members of Management
INTRODUCTION
We are delighted to introduce the affected by the criminal actions of an development of Sexual Offences
fourth Annual Report of the West offender are listened to, and their views Prevention Orders. These orders
Yorkshire Strategic Management Board and opinions influence, wherever represent a very significant tool in the
for Multi-Agency Public Protection possible, our approach to managing the management of sexual offending
Arrangements (MAPPA). offender. The commitment to an behaviour.
inclusive approach to risk management
This report provides an opportunity to is reflected in the appointment of Lay The disclosure of offending behaviour
inform you of the work undertaken in Members to the Strategic Management to third parties can, in carefully,
West Yorkshire by a wide range of Board. Their contribution to ensuring managed situations, fulfil a significant
statutory and voluntary organisations the effectiveness of public protection role in risk management strategies. The
aimed at ensuring the safety of our arrangements is welcomed. agencies involved in MAPPA are aware
communities. of the sensitivities associated with the
Risk assessment together with the issue of information sharing and
Through the active partnership of development of effective action plans to disclosure, and these issues are
agencies impacting upon the risk factors prevent offending is carried out by a carefully managed in accordance within
associated with a particular offender range of agencies. These include the the existing legal framework.
the aim is to effectively manage the police, probation, prison service, social
risks so as to minimise the likelihood of services, health, housing, education, and Public Protection remains an immensely
re-offending. the youth offending teams. challenging area of work and we
acknowledge the enthusiasm and
This is achieved by applying a Building upon the foundations of commitment of professionals and
structured approach, from prison extensive experience in their own field volunteers across a wide range of
release through treatment programmes of expertise staff from these disciplines who work together in
to supervision and monitoring. organisations are now working together ensuring public safety.
at all levels, co-ordinated within the
The aim of everyone involved in MAPPA framework by the police, We commend this report to you with
MAPPA is to protect the public and, in probation and prison services (the our continued commitment to further
doing so, meeting the needs of victims ‘responsible authorities’). strengthening the public protection
of crime is central to our approach. arrangements that safeguard the public
Victim support services and victim The Sexual Offenders Act 2003 has of West Yorkshire.
liaison personnel ensure that within increased the ability of the police to
MAPPA those that have been personally impact on offending behaviour by the

Colin Cramphorn Steve Wagstaffe Sue Hall


Chief Constable Area Manager Chief Officer
West Yorkshire Police (Yorkshire and Humberside) West Yorkshire Probation
HM Prison Service Service
CONTENTS
1. Key Achievements 4

2. Victims & Public Protection 5

3. Operation of MAPPA 6

4. The Role of the Prison Service in MAPPA 7

5. Statistical Information 8

Case Studies 8

6. The Strategic Management Board 10

Who takes part in MAPPA? 10

Working with MAPPA 11

7. Contacts 12
1. KEY ACHIEVEMENTS
West Yorkshire MAPPA The introduction of the 2003 Criminal Members of the Board have

Strategic Management
Justice Act on 1 April 2005 provided supplemented their own knowledge by
Courts with a greater range of observing MAPPA throughout West
Board conditions and required behaviour for
those supervised by Probation staff
Yorkshire. Without becoming involved
in particular cases, this has increased
under community orders. The same their understanding of the processes
In 2004 the Board oversaw the
Act will allow for sentencers to involved and the areas for further
operation of the Public Protection
comment on the control of the most work.
arrangements in West Yorkshire. This
serious offenders, following their
included the supervision, management
release from prison. More recently the work of MAPPA has
and review of some 500 offenders,
been enhanced by the new role of the
through 1800 agency co-ordination
Closer liaison has been encouraged Prison Service.
meetings, involving 120 specialist Police
between all agencies in dealing with
and Probation Staff, plus key
Domestic Violence cases. The Board
representatives of partner agencies.
has made a commitment to take on the
review of such cases when a death has
The Board, and local MAPPA,
taken place. The aim is for agencies to
supported the Police in the increased
learn from such tragedies and promote
use of Sexual Offences Prevention
best practice.
Orders. Over ninety of these orders
were obtained, restricting and
controlling behaviour identified as a
precursor to offending.

Maxine Myers, a solicitor and law seriously everyone regards it. The
lecturer, was attracted to become a lay Probation, Police and Prisons
adviser as result of her legal work with representatives are all senior managers.
families and children. At present I see myself as being there
as a lay representative to give a wider
“I was interested in the role of MAPPA strategic perspective.
in cases of domestic and child abuse”,
she says. “I have been on a very good national
weekend training course, and am due
“As a new member of the Strategic to attend my first MAPPP meeting next
Management Board, I have been month”.
impressed by the different areas of
expertise on the Board, and by how

Maxine Myers.

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2. VICTIMS & PUBLIC PROTECTION
The safety of victims is at the heart of
public protection work. The first Victim
Support schemes were set up by
Probation staff in the 1970’s and the
concern for victims continues to be a
key driver for MAPPA work.

Both Police and Probation have


specialist Public Protection Units which
co-ordinate the management of the
risks posed by high risk offenders.
Both organisations also have staff who
deliver services for victims and both
functions have now been integrated so
that public protection and victim staff
now work together in one Unit.
Previously, staff from the Victim
Services Unit had always attended
MAPPP meetings to ensure that full
account was taken of victim-related
issues, but this latest move will ensure
that victim issues will be at the centre
of public protection work in West
Yorkshire.

Victim Services Units provide an


important service to victims of violent
or sexual crime where the offender has
received a prison sentence of 12
months or more, or has been the
subject of a Hospital Restriction Order.
Depending on the victims’ wishes, the
Unit will keep the victim informed of the offender will be released; most Graham was seen weekly by his
key milestones in the offender’s prison importantly, it will be to assure the probation officer and also took part in
sentence and will ensure that the victim that their concerns will be a domestic violence groupwork
victim’s views are relayed to the bodies listened to and that their safety will be programme lasting 5 months. Victim
that will make decisions about the in the centre of any deliberations Service Unit staff kept contact with his
circumstances of the offender’s release around managing the risk posed by the wife to check his behaviour.
from prison. offender.
Gradually the threats to his wife
Feedback from victims continues to Graham (23 years) was violent to reduced and more positive attitudes
reflect a high satisfaction rate with the his wife, and was placed on a emerged. The safety of the wife and
services they receive. The services can Community Rehabilitation Order for child were regularly checked by police
take several forms : it can be as simple 3 years. Agencies were concerned to and social services and eventually
as giving the victim the opportunity to protect her and the children, while renewed contact was allowed. In the
talk through their experience and to trying to change his attitudes and third year of the Order he was
know that they have been “heard”; it behaviour. Police, Social Services and allowed to return to the family.
can be the provision of regular updates Probation worked closely to ensure Checks continued to be made
about an offender’s progress through the family were protected. but the future looks brighter for
the prison system and to know when
all.
and where they will be released After 6 months continued threats led
(although exact locations are not to his exclusion from the family and
disclosed); it can be the opportunity to placement in a probation hostel. Both
comment on the offender’s parole he and his wife wanted to be
application or the conditions in which reconciled but the threat of violence
was ever present.

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3. OPERATION OF MAPPA
Mappa meetings are held regularly in
each of the five West Yorkshire Local
Authority areas. These are currently
administered by the Police and
Probation Service and attended by the
constituent agencies to MAPPA.

Although any member agency can refer


to MAPPA, in practice the majority of
offenders are referred by the Probation
Service, which supervises prisoners
released from prison on licence. The
MAPPA provides a system for ensuring
that all the available information is
gathered and shared with the agencies
which deliver services that contribute
to public protection.

Effective risk assessment and West Yorkshire MAPPA meetings are attended by many agencies.
management requires the exercise of
professional judgement. A variety of to a Multi Agency Public Protection present. Specialist officers and support
validated assessment tools are applied Panel. This ensures that every possible staff are located within Child and Public
in order systematically to assess all action is taken to minimise risk and that Protection Units (CPPU) for each
offenders subject to supervision. One all the agencies participating in the risk district.
of the most important of these is the management activities understand what
Offender Assessment System (OASys). is required of them. When a risk is identified, or the
behaviour of an offender gives rise to
OASys complements the assessment Risk management plans may include the concerns the Officers of the CPPU will
mechanisms now used by the Police to following considerations or restrictions: act to prevent or stop the activity. The
identify serious sexual and violent range of options open to them to
offenders. The use of assessment tools ■ A requirement to live at a particular achieve this are many but may include;
ensures that all offenders are subject to address and observe a curfew
appropriate supervision plans based enforced with an electronic tag; ■ Surveillance and intelligence
upon risk, but that in addition, those
offenders identified as having the ■ A requirement to take part in a ■ Arrest and Prosecution
potential to cause harm are subject to a programme of work specifically
risk management action plan and must designed to prevent further ■ Obtaining orders such as Sex
be referred to MAPPA. offending; Offender Orders which place
restrictions on individual offenders
In these cases a risk management plan ■ Prohibition on making contact with within the community.
is reviewed at a meeting of specialist certain individuals or groups of
Police, Probation and Victim Unit staff people – and particularly victims; ■ Liaison with the Probation Service to
together with representatives of consider recall to prison.
partner agencies. Before the meeting ■ Restrictions on the type of
takes place, information from a variety employment they may pursue. In some cases the MAPPP will consider
of sources will have been sought, which releasing information about an offender
is then shared at the meeting in order Failure to keep to any of these to individuals or groups in order to
to inform the risk management plan. In conditions will lead to enforcement protect their safety. This step is not
most cases the potential risk can then action which can result in a return to taken lightly, but sometimes it
be effectively managed through normal prison. Standards are imposed represents the most effective means of
agency management which includes rigorously and action is taken as soon achieving individual and community
documented reviews. as an appointment is missed or a safety.
condition breached.
Where the circumstances of a case The safety of victims and the wider
indicate a public protection need which The Police also use a range of measures community is the fundamental
requires coordinated action from a to monitor the activity and risk that consideration of the MAPPP.
number of agencies, it will be referred registered sex offenders and others

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4. THE ROLE OF THE PRISON
SERVICE IN MAPPA
One of the important ways in which
the Criminal Justice Act (2003)
strengthened the MAPPA was to make
the Prison Service part of the
Responsible Authority with Police and
Probation in each of the 42 Areas in
England and Wales. The Prison Service
has been given this enhanced role in
recognition of the important part it
plays in protecting the public by keeping
offenders in custody; helping them to
address the causes of their offending
behaviour; and by undertaking other
work to assist their successful
resettlement.

As part of the Responsible Authority


the Prison Service is now represented
on each of the Strategic Management
Boards (SMBs) in the 42 Areas. The
Prison estate is configured differently
from Police/Probation areas in that its
establishments are contained within
only 12 geographical areas and two Officer and offender.
functional areas - the High Security
■ All relevant risk management partners. The Prison Service has taken
estate, and Contracted Prisons. For this
information being provided to multi steps to ensure that there are
reason arrangements for Prison Service
agency meetings which help plan an dedicated points of contact for public
representation on SMBs vary across the
offender's release protection at both Area level and in
country, but each Prison Service Area
every prison establishment, and that
Manager has entered into an agreement
■ At least three months notification to these are published together with
with the SMBs on how the Service will
Police and Probation of the expected police and probation contacts to ensure
contribute both strategically and
release dates of those offenders who better communication across the
operationally to the MAPPA. The main
have been referred to the Multi- Responsible Authority.
focus of the Prison Service contribution
is at an operational level. A number of Agency Public Protection Panel
(MAPPP), and at least six weeks With the ever increasing MAPPA
measures have been put in place across
notification of those being managed population, and proportion of those
the prison estate to ensure that this
at level 2 risk meetings received into prison likely to grow with
will be effective and result in:
the introduction of the new public
■ No changes to release dates or protection sentences, the inclusion of
■ Prompt identification of MAPPA
arrangements being made without the Prison Service as part of the
offenders so that their details can be
prior consultation with Police and Responsible Authority will continue to
used in sentence planning
Probation be vital in protecting the public.
arrangements, including interventions
to manage and reduce risk
Playing an effective role in the multi
■ Regular monitoring of the behaviour agency risk management of MAPPA
of those assessed as presenting the offenders requires good
highest risk, and sharing information communication between criminal justice
with Police and Probation colleagues

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5. STATISTICAL INFORMATION
Analysis of type of cases dealt with in 2004/5 The low level of MAPPA cases
charged with serious sexual or
violent offences (4/698) is a positive
Level 3* Level 2* indicator of how MAPPA can
effectively manage offenders
Registered sex offenders 30 215 returning to the community following
Violence offenders 28 262 prison, or placed on community
Other 11 221 orders following conviction.

Of the Level 3 cases: Of the Level 2 cases: If MAPPA cases are charged with a
serious sexual or violent offence, a
- 3 were returned to custody for - 59 were returned to custody for review of the case is required for
breach of licence. breach of licence. scrutiny by the Public Protection
- 1 was returned to custody for - 2 were returned to custody for Unit, National Probation Service.
breach of a restraining order or breach of a restraining order or
sexual offences prevention order sexual offences prevention order.
- none were charged with a serious - 4 were charged with a serious
sexual or violent offence. sexual or violent offence.

*Cases are classified as “Level 2” or “Level 3”.

“Level 2” cases are those where indicators of risk of serious harm have been
identified; which could occur at any time, and have a serious impact.

“Level 3” cases are those where the risk is “imminent” and would have a serious
impact.

Case Studies
Sean was convicted of Indecent since release he has been supported In conjunction with mental health
Assault. He was sentenced to a term and monitored in the community by a professionals Sean’s mental health
of imprisonment. Whilst in prison he number of agencies such as housing, state was reassessed and through
began writing letters to his victim police and mental health services. MAPPA appropriate disclosure was
several times a week. Once this was made to the girl and her family to
made known to the police by the Through the monitoring process ensure that she remained safe and
victim’s family the Prison Service public protection officers became aware that Sean presented a risk to
intercepted the mail and action was aware of his growing obsession with a her.
taken to stop the correspondence. female acquaintance. He volunteered
the fact that he has received Following this incident Sean received
The prison registered increasing medication to improve his ability to psychiatric treatment to address his
concerns regarding Sean’s fulfil a sexual relationship with this obsessive behaviour and is now
deteriorating mental health and woman should the relationship subject of a Sexual Offences
repeated refusal to engage in any develop. Enquiries by the officers Prevention order that precludes his
programmes aimed at addressing quickly established that the woman contact with any young person under
offender behaviour. He declined any was indeed a 15-year-old girl who the age of 18.
treatment. He was identified within knew Sean only by sight and that any
MAPPA as a potentially dangerous prospect of a relationship was a
offender. figment of Sean’s imagination.

Upon release from prison strict


licence conditions were imposed and

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Lee was convicted of making indecent
images of children and was sentenced
to 9 months imprisonment with an
extended 3 year licence period post
release. His name was placed on the
sex offenders’ register. Lee had
previously been convicted of offences
of indecent exposure.

On release from prison he went to


live with his father. During the course
of routine monitoring by police public
protection officers it was discovered
that he had obtained employment
with a telecommunications company.
A significant element of the job
entailed him visiting private homes
alone to undertake installation work.
All the agencies understand what is required of them.
Given this man’s previous history this
Keith has a long history of sexual Jane (45) was sent to prison for 3
type of work was assessed as being
offending including offences against years for Arson. She had set fire to
incompatible with the level of risk of
children dating back over 30 years. her room in a hostel for women,
re-offending. Authority to disclose
However, all his convictions were putting the lives of others at risk. Her
Lee’s offending history to his prior to the enactment of the Sexual life had been a brutal mix of violence
employers was sought and Offences Act 1997 and therefore do and abuse to herself and threats and
consequently they suspended him not require him to register as a violence from her to others. At the
from his role. convicted sex offender. time of her imprisonment her health
had severely deteriorated due to
Within days of his suspension he was In 2004 Keith was convicted of heroin addiction.
arrested on suspicion of a further outraging public decency when he was
offence of indecent exposure in a found exposing himself in some city Following release a massive package of
public park. As a direct result of close centre public toilets. Unfortunately, support and control was put in place,
co-operation between the Police his conviction for this offence did not including Police, Probation, debt
Public Protection Officers and result in automatic sex offender management, counselling, psychiatric
Probation Officers Lee’s licence was registration. help and housing support.
revoked and he was returned to
prison to serve the remainder of his This individual’s history was Because of the risk she represented
sentence for the original offence. He highlighted within MAPPA by his to others, she was maintained in
also faced new criminal proceedings. probation officer and through close MAPPA for 2 years beyond the 12
He will remain on the Sex liaison between police and public months of her post prison licence.
Offender Register for 5 years. protection officer a post conviction No further offences have taken
Sexual Offences Prevention Order place.
was successfully applied for. This
There were 1431 registered sex Order was granted with stringent
offenders in West Yorkshire in conditions that precluded him having
2003/4, 1669 registered sex offenders any unsupervised contact with a child
in 2004/5. This increase is due to under the age of 16 years as well as
excluding him from entering any
length of time offenders remain on
public conveniences. The Order also
the register, and also due to the
required him to register as a sex
increased detection of the misuse of
offender and consequently he is
computer systems for purposes of subject to close monitoring and
child pornography. supervision by both the police
and probation.
In 2004/5 90 full Sexual Offences
Prevention Orders were imposed by
Courts in West Yorkshire.
(Compared to 4 in 2003/4). This
demonstrates an active use of the
new legislative framework for
controlling the activities of proven
offenders.

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6. THE STRATEGIC
MANAGEMENT BOARD
The strategic management board in West Yorkshire is currently chaired by an
Assistant Chief Constable. Membership includes senior representation from
Prisons, health providers, housing agencies, Victim Support, Social Services, Police
and Probation, representation of voluntary agencies, and two lay advisers. The
Board receives reports on the operation of MAPPA, on public disclosure issues, on
domestic violence and public protection issues.

The Board's priority for 2005/6 is to ensure that Multi Agency Public Protection
Arrangements in West Yorkshire are robust and deliver a constant and effective
service.

Who takes part in MAPPA?


The following organisations are among In addition MAPPA include:
those with a statutory duty to co-
operate in the working of MAPPA in Housing support providers
West Yorkshire: Victim Support Services
Organisations providing support for
Police Service women, particularly those concerned
Probation Service with domestic violence and many other
Prison Service locally based voluntary organisations.
Youth Offending Teams
Agencies concerned with social
security, child support, pensions,
employment and training
Local Education Authorities
Local Housing and Social Services
Authorities
Registered Social Landlords
Health Authorities, Strategic Health
Authorities, NHS Hospital Trust and
Primary Care Trusts

The Strategic Management Board acknowledges the commitment &


dedication of hundreds of individuals working through MAPPA to
promote the protection of the people of West Yorkshire.

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Working with MAPPA

Teri Stephenson. Chris Metcalfe. Jenny Price.

Teri Stephenson is a team manager for Chris Metcalfe is Manager of a Langley Jenny Price is Head of Access for
Foundation Housing, which provides House Hostel, which has housed high Wakefield Education Services, and lead
accommodation for offenders and risk and vulnerable offenders in the officer for Education on child
works with them intensively for up to community for 40 years. protection. She has been involved in
two years, until the client and property MAPPA since it was set up.
are handed over to the local authority. “In MAPPA meetings my role is to present
our plan to risk manage these offenders, “My role is acting as a go-between: in
“The MAPPP meetings are invaluable to us alongside other agencies such as Police, MAPPP meetings I listen to the discussion
in terms of joint working with Probation Probation, Social Services and Victim and can assist with the decision on
and Police, exchange of information and Support. whether there is a risk to a particular
input into public protection. Not only can school or schools which requires action, for
we often provide background information “Risk management is our major example to alert headteachers to the risk.
on offenders who are being discussed, but responsibility and we can provide enhanced If a school does need to be alerted to a
also we gain information which helps us supervision beds, where offenders sleep in risk, I can share information with them on
work constructively with people who are an alarmed room and are escorted when the basis of confidentiality.
referred to us in the future. they go out.
Because of my lead role, schools also
"We work with some high risk or mentally “Working alongside local services, we contact me if they have concerns, and I
disordered offenders, so MAPPA helps us communicate information backwards and can get a rapid response from Police or
ensure the safety of staff working one-to- forwards. We may be able to give advice Probation who will look into the issue. I
one with offenders in their homes". on housing or share information if we have work closely with officers in the Child and
dealt with a particular offender in the past. Public Protection Unit”.
Close liaison with housing providers enables
us to move residents on safely.

“What comes out of MAPPA meetings


often is an idea we would not
automatically have thought of to solve a
particular problem: accommodation, risk
management or public protection. The
more people who are involved, the better
the plan”.

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7. CONTACTS
West Yorkshire Probation Area

Assistant Chief Officer West Yorkshire Probation Board


(Public Protection) Cliff Hill House
Tel: 01924 885300 Sandy Walk
Wakefield
West Yorkshire
WF1 2DJ

Communications and Public (as above)


Relations Manager
Tel: 01924 885300

West Yorkshire Police

Head of Child and Public West Yorkshire Police


Protection Unit PO Box 9
Tel: 01924 292388 Wakefield
West Yorkshire
WF1 3QP

Principal Media and Public (as above)


Relations Officer
Tel: 01924 292226

West Yorkshire Prison Service

Governor HMP Wakefield


Tel: 01924 246000 5 Love Lane
Wakefield
West Yorkshire
WF2 9AG

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