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Multi-Agency Public Protection Arrangements

Annual Report 2002-3

By Paul Goggins, Parliamentary Under-Secretary for

Community and Custodial provision in the Home Office

As the recently appointed Minister with responsibility for

the MAPPA, I am pleased to introduce this, the second,
annual MAPPA report. It is clear that in the last year
(2002/3) the multi-agency public protection
arrangements (the MAPPA) continued to play an
important role in what remains one of this government’s
highest priorities – the protection of the public from
dangerous offenders.

As someone with many years experience of working in

the field of child protection, I am particularly impressed
by the important contribution the MAPPA are making to
strengthen collaboration between agencies at a local
level where the focus is on the dangerous offender.
These improvements must, however, impact on the
protection of children. As the tragic death of Victoria
Climbie showed, an effective multi-agency partnership
is crucial and the MAPPA are an important element.

To ensure greater consistency in the MAPPA across

the 42 Areas of England and Wales, and to prepare for
the implementation of measures contained in the
Criminal Justice Bill, we published the MAPPA
Guidance in April. Building on good practice, that
Guidance clarified the structure of the operational
arrangements as well as the importance of formal
review and monitoring – of which this annual report is a
vital part. The Criminal Justice Bill will strengthen the
MAPPA in two ways. First, it will make the involvement
of other agencies part of the statutory framework.
Second, it will introduce the involvement of lay people –
those unconnected with day-to-day operation of the
MAPPA – in reviewing and monitoring the MAPPA.
Annual reports and this new lay involvement show the
Government’s commitment to explaining how the often
sensitive and complex work of public protection is

The Government is also strengthening the protection of

the public with other measures in the Criminal Justice
Bill. They include new sentences for dangerous
offenders to prevent their release if they continue to be
dangerous. Additionally, the Sexual Offences Bill will
tighten up sex offender registration, introduce a new
offence of ‘grooming’, and enable sex offender orders
to be imposed on violent offenders who pose a risk of
causing serious sexual harm – thereby extending sex
offender registration to them.

I commend this report to you and congratulate all the

agencies and individuals who have contributed to the
achievement of the MAPPA locally in your local Area.

Paul Goggins
The National Picture

This section of the report draws attention to wider context of the operation and
development of the Multi-Agency Public Protection Arrangements (the MAPPA).

The most important work undertaken within the MAPPA is done locally, led by the
police and probation – who act jointly as the ‘Responsible Authority’ in your Area –
and in each of the 42 Areas of England and Wales. The experience and good
practice upon which this work is based began in the 1990s – most significantly as
a result of the closer working relationship required by the Sex Offender Act (1997).
The Criminal Justice and Courts Services Act (2000) formalised that relationship
and built on the existing experience by requiring the police and probation services
to establish arrangements (the MAPPA) for assessing and managing the risks
posed by sexual and violent offenders. The Act also required the Responsible
Authority to publish an annual report on the operation of those arrangements. This
report, covering April 2002 to March 2003, is the second annual report.

The importance of partnership

Key to the development of the MAPPA in the past year has been the closer
involvement of other agencies, such as housing, health and social services,
working alongside police and probation. The truly multi-agency nature of the
MAPPA and the collaboration which underpins it is to be strengthened further by
the Criminal Justice Bill. The Bill will place a ‘duty to co-operate’ on a wide range of
organisations including local health authorities and trusts; housing authorities and
registered social landlords; social services departments; Jobcentres; Youth
Offending Teams; and local education authorities. In addition, the Prison Service
will join the police and probation services and become part of the MAPPA
‘Responsible Authority’.

Supporting and co-ordinating the development of the MAPPA throughout the 42

Areas of England and Wales, is the National Probation Directorate’s Public
Protection Unit (PPU). This Unit acts as a central point for advice and, increasingly,
involvement in the management of difficult cases. These include, for example, UK
citizens who have committed serious offences abroad and return to this country
without anywhere to live. The Unit is also able to provide financial support when the
risk management plans make exceptional demands upon local resources.
Involving the public

MAPPA developments in the next 18 months will also include the appointment by
the Home Secretary of two ‘lay advisers’ to each Area. The eight Areas of England
and Wales which have been piloting these arrangements since January (Cumbria,
Greater Manchester, Durham, South Wales, Dorset, Hampshire, Surrey and West
Midlands) report that they add real value. Lay advisers will contribute to the review
and monitoring of the MAPPA which is undertaken by each Area’s Strategic
Management Board – the work of which you can read more in this report.

The purpose of appointing ‘lay advisers’ is to ensure that communities understand

more of what is done to protect them and that those involved professionally with the
MAPPA are aware of the views of the community. The lay advisers will not
‘represent’ the community in the way, for example, that local councillors do, nor will
they be involved in operational decision-making. And, given the sensitivity of much
of what the MAPPA does, especially with the few offenders who pose a very high
risk of serious harm to the public, it is not practicable for the general public to be
involved. Lay advisers will, however, ensure an appropriate and a practical level of
community involvement.

MAPPA Offenders

This year the annual report provides a more detailed breakdown of the number of
sexual and violent offenders who are covered by the MAPPA in your Area. As last
year, the figures include the number of registered sex offenders. Because sex
offender registration is for a minimum of 5 years (and generally for much longer)
the figures are cumulative. This is why they have increased – by 16 per cent in
England and Wales. Only a very small proportion (about six per cent throughout
England and Wales) are considered to pose such a high risk or management
difficulty that they are referred to the highest level of the MAPPA – the Multi-
Agency Public Protection Panels (the MAPPP).

Figures alone do not, of course, tell the whole story. The anonymised case studies
illustrate the practical work of the MAPPA, and demonstrate the preventive action
which can be taken. Prior to the MAPPA, action of this kind was mainly taken by
one agency alone, with the effect that on occasion offenders’ behaviour which
might have triggered preventative action went unnoticed. The multi-agency
approach of the MAPPA helps ensure that if an offender does breach the condition
of the licence under which they were released from prison or a court order
prohibiting certain activities, then action to enforce the condition or order and
protect the public can be taken more swiftly.

If you are interested in reading the reports of other Areas, they will be published on
the National Probation Service’s website (under
the public protection section).
1. Area Summary

The Sex Offender Act (1997) introduced the concept of the joint management of
certain categories of offenders, to be undertaken by both the Police and the
Probation Service. As a result, Bedfordshire Police and Bedfordshire Probation
Area developed protocols and procedures designed to ensure that those offenders
who pose a serious risk to others would be regularly discussed, monitored and
properly managed. Although the original remit of the Act was specifically aimed at
sex offenders, many areas - including Bedfordshire – used the opportunity of
intelligence sharing and information gathering to widen the scope of the panel to
address other high risk offenders.

In April 2001, national guidelines were issued to all areas to further develop local
panels to become Multi Agency Public Protection Panels (MAPPPs). The Multi
Agency Public Protection Arrangements (MAPPA) place a duty on Police and the
National Probation Service to assess and manage risks posed by offenders in
every community. Many other agencies and organisations also hold information
about offenders, their circumstances, and the victims of their crimes, so there is a
need for the Police and the Probation Service to work closely in partnership with
these organisations.

Each offender who is subject to MAPP arrangements will have been initially
referred to the panel for discussion and decision-making as a result of:

• The serious nature of their original offence

• The need to ensure that all agencies contributing to the offender’s rehabilitation
into the community can share information and voice concerns
• The need to ensure that an accurate and up-to-date picture of the risk the
offender may continue to pose is obtained, which will subsequently inform the
work carried out with the offender

However, additional provision such as treatment, accommodation, employment, is

often critical in ensuring an offender has the best chance of re-integration into the
community, whilst also offering the public a higher level of protection. The Chair
of the MAPP panel meeting, therefore, also has the important role of making sure
that these needs are taken into consideration when work with the offender is being
planned. Bedfordshire MAPP panel meetings consider not only the practical
arrangements for the management of an individual offender, but also what types
of treatment, for example psychiatric assistance or attendance at a probation
groupwork programme (eg. sex offender programme) may be necessary.
Effective joint working between agencies ensures that the framework of
supervision and monitoring is established, within which provision for the individual
offender can be discussed and the correct treatment identified. The MAPP
arrangements must ensure that, as far as possible, a balance is struck between
the monitoring and surveillance of the individual and the provision of a suitable
programme of treatment. It is crucial to get this balance right in terms of providing
enhanced protection for the public, while being able to work with the offender and
tackle his or her behaviour.


In the last 12 months there have been several key developments which have
enhanced the MAPP arrangements in Bedfordshire. Police and the Probation
Service have provided funding this year to enable the appointment of a MAPP
co-ordinator, and the post will be filled initially by a senior probation officer with
considerable local experience in the field of public protection and of the work of
the multi-agency panels. This appointment will be on a part-time basis from June

The past year has also seen the establishment of a Strategic Management Board
to oversee and evaluate the operational work of the MAPP panels in Luton and
Bedfordshire. The panel membership includes representation from a wide range
of agencies that are now involved in public protection work in conjunction with the
police and probation services. Further details about the Board and its work are
contained later in this report.

One of the most significant national operations involving Bedfordshire Police has
been Operation Ore, which has focused on potential paedophiles identified via
their access to an internet site. In Bedfordshire a number of potential offenders
have been identified and enquiries are continuing, although a number of arrests
have already been made.
2. Roles and Responsibilities
Two Senior Probation Officers, Additionally, in certain wish to move out of the area. She
representing Luton and South Beds; circumstances, individual victims advised the panel that he should be
and Bedford, Mid Beds and North may be invited to attend a panel required to live in a Probation Hostel
Bedfordshire are responsible for meeting where consideration is where his behaviour could be closely
overseeing the work of the MAPP being given to the release of a monitored. She had secured a hostel
panels in their area and for prisoner on licence. The victim’s place in a town some 20 miles away. Mr
convening and chairing each concerns about the release can be J would attend a probation domestic
meeting of the local panel. aired and these may subsequently violence group for offenders while
Bedfordshire Police liaise closely be taken into account when resident at the hostel. It was important
and routinely with each of the senior consideration is given to possible therefore for the panel to consider
probation officers through a conditions which may be attached to protection for the victim, Ms L, and the
specialist Detective Constable who a prisoner’s release on licence. restrictions to be placed on Mr J in the
has a dedicated role in co-ordinating community. .
police activity relating to those
identified as dangerous offenders. The panel agreed that:
Mr J had been serving an 18 month
Bedfordshire Police are also sentence for an offence of assault • Ms L be helped by the Victim
represented at each MAPP meeting against his ex-partner. During his Liaison Officer to seek a Restraining
by the divisional Detective Inspector sentence he had continued to express Order preventing contact by Mr J.
who is able to make decisions about hopes of reconciliation, and found it
committing police time and difficult to accept she did not feel the • The police Domestic Violence Unit
resources. same. would visit Ms L to discuss
installation of an alarm system and
The minimum membership of a local Prior to Mr J being released, the Senior the provision of a mobile phone
MAPP panel meeting usually Probation Officer arranged a MAPP
consists of: panel to discuss the case, and invited • Police would ensure that Ms L’s
the following agencies: address was registered for an
• Senior Probation Officer immediate response to a call for
• Supervising Probation Officer • Probation assistance
• Detective Inspector • Hostel Manager • The Local Housing Trust would
• Detective Constable • Police – both Domestic Violence explore with Ms L the option of
• Victim Liaison Officer Unit and the Intelligence Unit moving out of the area
(probation) • Victim Liaison Officer
(probation service) • Prior to Mr J’s release, the
When a panel meeting is called by • Social Services . Probation Officer would seek
the Senior Probation Officer, other additional conditions on his licence.
agencies will be invited to attend as The victim, Ms L, also attended for the
is deemed necessary. All agencies first part of the meeting to tell the panel Licence Conditions:
are bound by the statements of of her concerns at her ex-partner’s
confidentiality contained in the release and of the history of their ‰ Forbidding contact with Ms L,
MAPP protocol. relationship previously. Both Social her family, or visiting within the
Services and Police Intelligence vicinity of her home.
Agencies who may be involved are: confirmed that they had received several
referrals on the family in the past, and ‰ Compulsory attendance on the
• Bedfordshire County Council Ms L agreed that she had called the domestic violence programme
Social Services police but had been too afraid to give a while in residence at the
• Luton Council Social Services statement against Mr J. Since his probation hostel
• Local Authority Housing conviction, Ms L had received support
Departments and information from both the Police ‰ Compliance with all hostel rules,
• Education Services in Luton Domestic Violence Unit and the including curfew restrictions.
and Bedfordshire Probation Victim Liaison Officer.
• Mental Health Teams The panel arranged for the Hostel
• Prison Establishments After Ms L left the meeting, the Manager and Probation Officer to visit
supervising Probation Officer revealed Mr J prior to his release to explain fully
that Mr J had very recently expressed a the conditions that would be attached to
his release from prison on licence, and The case demonstrates the role of protection and support on a
that any infringement would result in his each agency in being able to temporary basis, the involvement of
return to prison. contribute vital information about the the housing agency ultimately
case. In addition, while police and enabled a permanent solution to be
probation were able to provide found.


3. The Operation of MAPP Arrangements

How do MAPP panels work in better manage an offender’s would not pursue contact with them, this
Bedfordshire? An offender referred risk (eg. electronic monitoring, was not truthful.
for discussion under the MAPP surveillance) and who is
arrangements may come to the responsible for this? The family reported that a mutual friend
attention of the panel either as a visiting Mr B had been told he intended
result of the serious nature of the • What information (if any) to seek contact directly with the children
offending and assessment by should be released to the on release, especially his two sons, aged
police/probation/prison services as victim, the community or any 12 and 15. All of the children had stated
high risk, or because of concerns other agency, and how will they did not wish to have contact with
expressed by another agency about this be done? their father.
the offender’s behaviour (or both).
The Senior Probation Officer who • What are the risk factors that Mr B had indicated that he wished to
chairs the MAPP panel then could cause the offender to re- live with his elderly parents on release
convenes a meeting to discuss the offend and what can be done from prison, both of whom needed care,
case. The MAPP panel can be to reduce these? which he was in a good position to
convened at very short notice in an provide. However, they lived only two
emergency. But it is often timed to At the end of the meeting an action streets away from Mrs B and her
precede an offender’s planned plan is drawn up by the Senior children. .
release from prison. Probation Officer as MAPPP Chair,
identifying what is to be done and by A MAPP panel met some months prior
Those agencies which are not core whom, in order to better manage the to Mr B’s release, to formulate a release
members of the MAPPP (as offender’s risk. Review meetings are plan and examine the consequences for
described in the previous section) then held on a monthly basis, but in all involved. In attendance were:
would be invited to attend the initial the meantime information will
meeting by the Senior Probation continue to be exchanged between • Supervising Probation Officer
Officer as appropriate in each the agencies involved. The police • Police Intelligence
particular case. S/he would ask the will make a significant contribution to representatives
agency representative to bring with the effective management of • Probation Victim Liaison Officer
them any relevant information about offenders who are subject to MAPP • Mr B’s personal (prison) officer
the offender, their family panel processes.
circumstances or the victim(s). This Information was also obtained about the
ensures that the subsequent children’s current wishes relating to
discussion at the MAPP panel their father’s release, and the manager
meeting is fully informed from a Mr B had been convicted of indecent of the sheltered housing unit where Mr
number of perspectives, ranging assault against his daughters over a B’s parents lived submitted a written
from the supervising probation three year period. His daughters, now report. This stated that it was not
officer, police, other agencies and, if aged 17 and 14, were living with their possible for Mr B to live with his parents
appropriate, the victim. The purpose mother and their two brothers. Concern in their one-bedroom flat, and that the
of each meeting is to establish the was expressed by the family to the elderly couple were being visited on a
following: Probation Victim Liaison Officer that daily basis by the district nurse and a
although Mr B had sent letters of carer.
• What practical arrangements apology to his daughters and stated he
need to be put in place to
The panel was concerned that living in conditions of the licence and has not DISCLOSURE OF INFORMATION
such close proximity would give Mr B made contact with his children. He is
the opportunity to ‘accidentally’ meet currently undertaking the probation There may be occasions when
with the children, and this would be very service Sex Offender Programme. disclosure of information is valuable
distressing for them. in assisting in reducing the risk
posed. The MAPP Arrangements
The MAPP panel agreed it would be recognise that there may be
more suitable for Mr B to be placed in a When planning for an offender’s occasions when disclosure of
hostel away from his family’s home. Mr release from custody (e.g. in the information could be helpful in
B. claimed he was sorry for what he had case of Mr B), the panel will give assisting professionals or particular
done, and his probation officer consideration both to what sorts of sections of the local community, eg.
recommended that he undertake the internal agency facilities and what in the very rare case of a predatory
probation sex offender programme on external controls may be available in sex offender, police could decide on
release (which had not been available to the successful management of the disclosure to local schools.
him in prison). This would provide a offender. Probation Officers have Disclosure to wider sections of the
means of monitoring his behaviour and access to a number of different community would only be made
assessing whether his remorse was programmes (e.g. Mr B and the Sex where there is a pressing need, and
genuine. Offender Programme) which can the decision would have to be
help to further develop the offender’s justified on the basis of the harm
The panel also agreed that electronic understanding of why they have which non-disclosure would
monitoring (‘tagging’) should be offended, and how to change their otherwise cause.
applied, to further monitor his behaviour behaviour. Of equal importance are
and whereabouts. The meeting decided the conditions that an offender has Disclosure to the media is
that the probation officer should apply to comply with, which are attached to recognised as potentially of value,
for a condition to be attached to Mr B’s his/her Licence or Supervision where they may be able to assist
release on licence from prison so that Order. These may be both specific with public protection by widespread
he could only visit his parents at certain, (e.g. do not contact a certain person) coverage of an individual case. Eg.
set times of the day/week. This and general (e.g. keep all if a high risk offender absconded,
information would be shared with Mrs B appointments with your Probation and his whereabouts became
so she could be certain of when he might Officer), and failure to comply with unknown, the police could decide to
be in the area. If Mr B failed to abide by any part of the Licence or Order can make an appeal for information
the conditions of his release on licence, lead to an offender going to prison. through the media. Bedfordshire
he would be returned to prison. Police act as the lead agency in all
media-related cases.
Mr B was subsequently released from
prison and the panel’s plan
implemented. Mr B has abided by the


4. The Strategic Management of MAPPPs

Strategic responsibility for the ownership and accountability to all • Probation
management of the MAPP panels the main agencies involved in the • Electronic Monitoring provider
has largely been held by the Police MAPP arrangements. The • Social Services Department
Service and the Probation Service in membership of the new Board • HMP Bedford
Bedfordshire. However, in February currently consists of representatives • Mental Health Services
2003, the Strategic Management from: (commissioning)
Board (SMB) was established. This
is a multi-agency strategic group that • Police
gives a much greater degree of local • Youth Offending Team
The Strategic Management Board agencies involved in MAPP information, confidentiality and roles
provides a framework to ensure arrangements are providing and responsibilities will all be agreed
consistency of operational practice consistent information and making a shortly by the Board.
across the area and the newly proper contribution to enable the
appointed MAPP Panel Co-ordinator most effective management of high
(funded by both police and probation risk offenders. Protocols and
locally) will report to the Board on a procedures on the exchange of
regular basis on the work of the
panels. The Board will also need to
ensure that at operational level all


5. Victim Work
Since the implementation of the Bedfordshire Probation Area was concerns, and this ensures that
Criminal Justice and Court Services one of the first to establish a MAPP panel assessments are
Act 2000 it has been a requirement freestanding Victim Liaison Unit to informed by the victims’ views and
of the Probation Service to offer ensure the needs of victims are met. interests, and that any risk to the
contact to victims of serious crime Victim liaison staff in Luton and victim is better managed as a
where the offender has been Bedfordshire provide assistance to consequence.
sentenced to one year’s custody or MAPP panel meetings where there
more. are specific victim issues or
6. Statistical Information No. of Offenders

i. The number of registered sex offenders on 31 March 2003 220

ii. The number of sex offenders having a registration requirement who were either 7
cautioned or convicted for breaches of the requirement, between 1 April 2002
and 31 March 2003

iii. The number of Sex Offenders Orders applied for and gained between 1 April
2002 and 31 March 2003

(a) The total number of Sex Offenders Orders applied for 2

(b) The total number granted 2

(c) The total number not granted Nil

iv. The number of Restraining Orders issued by the courts between 1 April 2002 Nil
and 31 March 2003 for offenders currently managed within MAPPA

v. The number of violent and other sexual offenders considered under MAPPA 290
during the year 1 April 2002 and 31 March 2003 (as defined by section 68 [3],
[4] and [5])

vi. The number of "other offenders" dealt with under MAPPA during the year 1 10
April 2002 and 31 March 2003 as being assessed by the Responsible Authority
as posing a risk of serious harm to the public (but who did not fall within either
of the other two categories, as defined by s.67 [2b])

vii. For each of the three categories of offenders covered by the MAPPA
("registered sex offenders", "violent and other sex offenders" and "other
offenders"), identify the number of offenders that are or have been dealt with

a) MAPPP - registered sex offenders 14

b) MAPPP - violent and other sex offenders 24

c) MAPPP - other offenders 2

viii. Of the cases managed by the MAPPP during the reporting year what was the
number of offenders:

a) who were returned to custody for breach of licence 10

b) who were returned to custody for breach of a Restraining Order or Sex 6

Offender Order

c) charged with a serious sexual or violent offence 1


Bedfordshire Probation Area Address Phone

Lis Pace Bedfordshire Probation Area 01234 213541

Assistant Chief Probation Officer Head Office 3 St Peters Street
Bedford MK40 2PN

Chris DeSouza Luton Probation Office 01582 413172

MAPP Panel Co-ordinator Frank Lord House 72 Chapel Street
Luton LU1 1QX

Bedfordshire Police Address Phone

Geoff Comb Head of CID 01234 842356

Detective Chief Superintendent Bedfordshire Police Police Headquarters
Woburn Road
Bedford MK43 9AX

Force Co-ordinator Sex & Dangerous Offenders Unit 01234 842356

Bedfordshire Police
Police Headquarters
Woburn Road
Bedford MK43 9AX
Published by Bedfordshire Probation Area, 3 St Peters
Street, Bedford MK40 2PN September 2003