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 revictimised. The active implementation of the Criminal Justice Act (2003) during the last year has clearly enhanced the ability of a number of agencies including health, social services and housing to work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse. For me one of the most exciting developments in this arena in the last 12 months has been the appointment of lay advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of

the public these lay advisers represent a diverse, able and committed group of people who are now helping the statutory agencies to oversee the work being undertaken through MAPPA and communicate with the public more effectively.Without a growing sense of public knowledge and confidence about this work much of the benefits of the public protection arrangements will be lost. I hope this annual report will be useful, informative and re-assuring to local communities.The agencies and individuals who have contributed to the achievement of MAPPA locally are to be commended.

Baroness Scotland Minister of State for Criminal Justice and Offender Management

We are delighted to introduce the fourth Annual Report of the West Yorkshire Strategic Management Board for Multi-Agency Public Protection Arrangements (MAPPA). This report provides an opportunity to inform you of the work undertaken in West Yorkshire by a wide range of statutory and voluntary organisations aimed at ensuring the safety of our communities. Through the active partnership of agencies impacting upon the risk factors associated with a particular offender the aim is to effectively manage the risks so as to minimise the likelihood of re-offending. This is achieved by applying a structured approach, from prison release through treatment programmes to supervision and monitoring. The aim of everyone involved in MAPPA is to protect the public and, in doing so, meeting the needs of victims of crime is central to our approach. Victim support services and victim liaison personnel ensure that within MAPPA those that have been personally

affected by the criminal actions of an offender are listened to, and their views and opinions influence, wherever possible, our approach to managing the offender. The commitment to an inclusive approach to risk management is reflected in the appointment of Lay Members to the Strategic Management Board. Their contribution to ensuring the effectiveness of public protection arrangements is welcomed. Risk assessment together with the development of effective action plans to prevent offending is carried out by a range of agencies. These include the police, probation, prison service, social services, health, housing, education, and the youth offending teams. Building upon the foundations of extensive experience in their own field of expertise staff from these organisations are now working together at all levels, co-ordinated within the MAPPA framework by the police, probation and prison services (the ‘responsible authorities’). The Sexual Offenders Act 2003 has increased the ability of the police to impact on offending behaviour by the

development of Sexual Offences Prevention Orders. These orders represent a very significant tool in the management of sexual offending behaviour. The disclosure of offending behaviour to third parties can, in carefully, managed situations, fulfil a significant role in risk management strategies. The agencies involved in MAPPA are aware of the sensitivities associated with the issue of information sharing and disclosure, and these issues are carefully managed in accordance within the existing legal framework. Public Protection remains an immensely challenging area of work and we acknowledge the enthusiasm and commitment of professionals and volunteers across a wide range of disciplines who work together in ensuring public safety. We commend this report to you with our continued commitment to further strengthening the public protection arrangements that safeguard the public of West Yorkshire.

Colin Cramphorn Chief Constable West Yorkshire Police

Steve Wagstaffe Area Manager (Yorkshire and Humberside) HM Prison Service

Sue Hall Chief Officer West Yorkshire Probation Service

1. Key Achievements 2. Victims & Public Protection 3. Operation of MAPPA 4. The Role of the Prison Service in MAPPA 5. Statistical Information Case Studies 6. The Strategic Management Board Who takes part in MAPPA? Working with MAPPA 7. Contacts 4 5 6 7 8 8 10 10 11 12

West Yorkshire MAPPA Strategic Management Board
In 2004 the Board oversaw the operation of the Public Protection arrangements in West Yorkshire. This included the supervision, management and review of some 500 offenders, through 1800 agency co-ordination meetings, involving 120 specialist Police and Probation Staff, plus key representatives of partner agencies. The Board, and local MAPPA, supported the Police in the increased use of Sexual Offences Prevention Orders. Over ninety of these orders were obtained, restricting and controlling behaviour identified as a precursor to offending. The introduction of the 2003 Criminal Justice Act on 1 April 2005 provided Courts with a greater range of conditions and required behaviour for those supervised by Probation staff under community orders. The same Act will allow for sentencers to comment on the control of the most serious offenders, following their release from prison.

Members of the Board have supplemented their own knowledge by observing MAPPA throughout West Yorkshire. Without becoming involved in particular cases, this has increased their understanding of the processes involved and the areas for further work. More recently the work of MAPPA has been enhanced by the new role of the Prison Service.

Closer liaison has been encouraged between all agencies in dealing with Domestic Violence cases. The Board has made a commitment to take on the review of such cases when a death has taken place. The aim is for agencies to learn from such tragedies and promote best practice.

Maxine Myers, a solicitor and law lecturer, was attracted to become a lay adviser as result of her legal work with families and children. “I was interested in the role of MAPPA in cases of domestic and child abuse”, she says. “As a new member of the Strategic Management Board, I have been impressed by the different areas of expertise on the Board, and by how

seriously everyone regards it. The Probation, Police and Prisons representatives are all senior managers. At present I see myself as being there as a lay representative to give a wider strategic perspective. “I have been on a very good national weekend training course, and am due to attend my first MAPPP meeting next month”.

Maxine Myers.


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 key milestones in the offender’s prison sentence and will ensure that the victim’s views are relayed to the bodies that will make decisions about the circumstances of the offender’s release from prison. Feedback from victims continues to reflect a high satisfaction rate with the services they receive. The services can take several forms : it can be as simple as giving the victim the opportunity to talk through their experience and to know that they have been “heard”; it can be the provision of regular updates about an offender’s progress through the prison system and to know when and where they will be released (although exact locations are not disclosed); it can be the opportunity to comment on the offender’s parole application or the conditions in which

the offender will be released; most importantly, it will be to assure the victim that their concerns will be listened to and that their safety will be in the centre of any deliberations around managing the risk posed by the offender. Graham (23 years) was violent to his wife, and was placed on a Community Rehabilitation Order for 3 years. Agencies were concerned to protect her and the children, while trying to change his attitudes and behaviour. Police, Social Services and Probation worked closely to ensure the family were protected. After 6 months continued threats led to his exclusion from the family and placement in a probation hostel. Both he and his wife wanted to be reconciled but the threat of violence was ever present.

Graham was seen weekly by his probation officer and also took part in a domestic violence groupwork programme lasting 5 months. Victim Service Unit staff kept contact with his wife to check his behaviour. Gradually the threats to his wife reduced and more positive attitudes emerged. The safety of the wife and child were regularly checked by police and social services and eventually renewed contact was allowed. In the third year of the Order he was allowed to return to the family. Checks continued to be made but the future looks brighter for all.


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 management requires the exercise of professional judgement. A variety of validated assessment tools are applied in order systematically to assess all offenders subject to supervision. One of the most important of these is the Offender Assessment System (OASys). OASys complements the assessment mechanisms now used by the Police to identify serious sexual and violent offenders. The use of assessment tools ensures that all offenders are subject to appropriate supervision plans based upon risk, but that in addition, those offenders identified as having the potential to cause harm are subject to a risk management action plan and must be referred to MAPPA. In these cases a risk management plan is reviewed at a meeting of specialist Police, Probation and Victim Unit staff together with representatives of partner agencies. Before the meeting takes place, information from a variety of sources will have been sought, which is then shared at the meeting in order to inform the risk management plan. In most cases the potential risk can then be effectively managed through normal agency management which includes documented reviews. Where the circumstances of a case indicate a public protection need which requires coordinated action from a number of agencies, it will be referred

to a Multi Agency Public Protection Panel. This ensures that every possible action is taken to minimise risk and that all the agencies participating in the risk management activities understand what is required of them. Risk management plans may include the following considerations or restrictions: I A requirement to live at a particular address and observe a curfew enforced with an electronic tag; I A requirement to take part in a programme of work specifically designed to prevent further offending; I Prohibition on making contact with certain individuals or groups of people – and particularly victims; I Restrictions on the type of employment they may pursue. Failure to keep to any of these conditions will lead to enforcement action which can result in a return to prison. Standards are imposed rigorously and action is taken as soon as an appointment is missed or a condition breached. The Police also use a range of measures to monitor the activity and risk that registered sex offenders and others

West Yorkshire MAPPA meetings are attended by many agencies.

present. Specialist officers and support staff are located within Child and Public Protection Units (CPPU) for each district. When a risk is identified, or the behaviour of an offender gives rise to concerns the Officers of the CPPU will act to prevent or stop the activity. The range of options open to them to achieve this are many but may include; I Surveillance and intelligence I Arrest and Prosecution I Obtaining orders such as Sex Offender Orders which place restrictions on individual offenders within the community. I Liaison with the Probation Service to consider recall to prison. In some cases the MAPPP will consider releasing information about an offender to individuals or groups in order to protect their safety. This step is not taken lightly, but sometimes it represents the most effective means of achieving individual and community safety. The safety of victims and the wider community is the fundamental consideration of the MAPPP.


One of the important ways in which the Criminal Justice Act (2003) strengthened the MAPPA was to make the Prison Service part of the Responsible Authority with Police and Probation in each of the 42 Areas in England and Wales. The Prison Service has been given this enhanced role in recognition of the important part it plays in protecting the public by keeping offenders in custody; helping them to address the causes of their offending behaviour; and by undertaking other work to assist their successful resettlement. As part of the Responsible Authority the Prison Service is now represented on each of the Strategic Management Boards (SMBs) in the 42 Areas. The Prison estate is configured differently from Police/Probation areas in that its establishments are contained within only 12 geographical areas and two functional areas - the High Security estate, and Contracted Prisons. For this reason arrangements for Prison Service representation on SMBs vary across the country, but each Prison Service Area Manager has entered into an agreement with the SMBs on how the Service will contribute both strategically and operationally to the MAPPA. The main focus of the Prison Service contribution is at an operational level. A number of measures have been put in place across the prison estate to ensure that this will be effective and result in: I Prompt identification of MAPPA offenders so that their details can be used in sentence planning arrangements, including interventions to manage and reduce risk I Regular monitoring of the behaviour of those assessed as presenting the highest risk, and sharing information with Police and Probation colleagues

Officer and offender.

I All relevant risk management information being provided to multi agency meetings which help plan an offender's release I At least three months notification to Police and Probation of the expected release dates of those offenders who have been referred to the MultiAgency Public Protection Panel (MAPPP), and at least six weeks notification of those being managed at level 2 risk meetings I No changes to release dates or arrangements being made without prior consultation with Police and Probation Playing an effective role in the multi agency risk management of MAPPA offenders requires good communication between criminal justice

partners. The Prison Service has taken steps to ensure that there are dedicated points of contact for public protection at both Area level and in every prison establishment, and that these are published together with police and probation contacts to ensure better communication across the Responsible Authority. With the ever increasing MAPPA population, and proportion of those received into prison likely to grow with the introduction of the new public protection sentences, the inclusion of the Prison Service as part of the Responsible Authority will continue to be vital in protecting the public.


Analysis of type of cases dealt with in 2004/5
Level 3* Registered sex offenders Violence offenders Other Of the Level 3 cases: - 3 were returned to custody for breach of licence. - 1 was returned to custody for breach of a restraining order or sexual offences prevention order - none were charged with a serious sexual or violent offence. 30 28 11 Of the Level 2 cases: - 59 were returned to custody for breach of licence. - 2 were returned to custody for breach of a restraining order or sexual offences prevention order. - 4 were charged with a serious sexual or violent offence. Level 2* 215 262 221 The low level of MAPPA cases charged with serious sexual or violent offences (4/698) is a positive indicator of how MAPPA can effectively manage offenders returning to the community following prison, or placed on community orders following conviction. If MAPPA cases are charged with a serious sexual or violent offence, a review of the case is required for scrutiny by the Public Protection Unit, National Probation Service.

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


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. Given this man’s previous history this type of work was assessed as being incompatible with the level of risk of re-offending. Authority to disclose Lee’s offending history to his employers was sought and consequently they suspended him from his role. Within days of his suspension he was arrested on suspicion of a further offence of indecent exposure in a public park. As a direct result of close co-operation between the Police Public Protection Officers and Probation Officers Lee’s licence was revoked and he was returned to prison to serve the remainder of his sentence for the original offence. He also faced new criminal proceedings. He will remain on the Sex Offender Register for 5 years. There were 1431 registered sex offenders in West Yorkshire in 2003/4, 1669 registered sex offenders in 2004/5. This increase is due to length of time offenders remain on the register, and also due to the increased detection of the misuse of computer systems for purposes of child pornography. 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.

All the agencies understand what is required of them.
Keith has a long history of sexual offending including offences against children dating back over 30 years. However, all his convictions were prior to the enactment of the Sexual Offences Act 1997 and therefore do not require him to register as a convicted sex offender. Jane (45) was sent to prison for 3 years for Arson. She had set fire to her room in a hostel for women, putting the lives of others at risk. Her life had been a brutal mix of violence and abuse to herself and threats and violence from her to others. At the time of her imprisonment her health had severely deteriorated due to heroin addiction. Following release a massive package of support and control was put in place, including Police, Probation, debt management, counselling, psychiatric help and housing support.

This individual’s history was highlighted within MAPPA by his probation officer and through close liaison between police and public protection officer a post conviction Sexual Offences Prevention Order was successfully applied for. This Order was granted with stringent conditions that precluded him having any unsupervised contact with a child under the age of 16 years as well as excluding him from entering any public conveniences. The Order also required him to register as a sex offender and consequently he is subject to close monitoring and supervision by both the police and probation.

In 2004 Keith was convicted of outraging public decency when he was found exposing himself in some city centre public toilets. Unfortunately, his conviction for this offence did not result in automatic sex offender registration.

Because of the risk she represented to others, she was maintained in MAPPA for 2 years beyond the 12 months of her post prison licence. No further offences have taken place.


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 those with a statutory duty to cooperate in the working of MAPPA in West Yorkshire: Police Service Probation Service Prison Service 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

In addition MAPPA include: Housing support providers Victim Support Services Organisations providing support for women, particularly those concerned with domestic violence and many other locally based voluntary organisations.

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.


Working with MAPPA

Teri Stephenson.
Teri Stephenson is a team manager for Foundation Housing, which provides accommodation for offenders and works with them intensively for up to two years, until the client and property are handed over to the local authority. “The MAPPP meetings are invaluable to us in terms of joint working with Probation and Police, exchange of information and input into public protection. Not only can we often provide background information on offenders who are being discussed, but also we gain information which helps us work constructively with people who are referred to us in the future. "We work with some high risk or mentally disordered offenders, so MAPPA helps us ensure the safety of staff working one-toone with offenders in their homes".

Chris Metcalfe.
Chris Metcalfe is Manager of a Langley House Hostel, which has housed high risk and vulnerable offenders in the community for 40 years. “In MAPPA meetings my role is to present our plan to risk manage these offenders, alongside other agencies such as Police, Probation, Social Services and Victim Support. “Risk management is our major responsibility and we can provide enhanced supervision beds, where offenders sleep in an alarmed room and are escorted when they go out. “Working alongside local services, we communicate information backwards and forwards. We may be able to give advice on housing or share information if we have dealt with a particular offender in the past. 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”.

Jenny Price.
Jenny Price is Head of Access for Wakefield Education Services, and lead officer for Education on child protection. She has been involved in MAPPA since it was set up. “My role is acting as a go-between: in MAPPP meetings I listen to the discussion and can assist with the decision on whether there is a risk to a particular school or schools which requires action, for example to alert headteachers to the risk. If a school does need to be alerted to a risk, I can share information with them on the basis of confidentiality. Because of my lead role, schools also contact me if they have concerns, and I can get a rapid response from Police or Probation who will look into the issue. I work closely with officers in the Child and Public Protection Unit”.


West Yorkshire Probation Area Assistant Chief Officer (Public Protection) Tel: 01924 885300 West Yorkshire Probation Board Cliff Hill House Sandy Walk Wakefield West Yorkshire WF1 2DJ (as above) Communications and Public Relations Manager Tel: 01924 885300 West Yorkshire Police Head of Child and Public Protection Unit Tel: 01924 292388 West Yorkshire Police PO Box 9 Wakefield West Yorkshire WF1 3QP (as above)

Principal Media and Public Relations Officer Tel: 01924 292226

West Yorkshire Prison Service Governor Tel: 01924 246000 HMP Wakefield 5 Love Lane Wakefield West Yorkshire WF2 9AG