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 undertaken. 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

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 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’ nationally on a wide range of organisations including local health authorities and trusts; housing authorities and registered social landlords; social services departments; Jobcentres; Youth Offending Services; 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 lay involvement adds 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. 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 in last year's report, 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 the figures 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) with all of them being available once the last Area has published its annual report in September.

Q. A.

What is the position in Cambridgeshire?

Local arrangements to deal with the cases of serious sexual or violent offenders in the Cambridgeshire area began in September 1997 with a pilot project that marked the beginning of Dangerous Offender Conferences. These regular conferences enabled the local Senior Probation Officer and the Detective Inspector for the Divisional Intelligence Unit to discuss and monitor the cases of offenders who had committed serious sexual or violent offences. The conferences were also attended by Probation Officers who had supervisory responsibility for working with such offenders and by the local Police Officer responsible for the Registration of Sex Offenders under the Sex Offenders Act 1997. The successful working of the pilot project in Peterborough led to similar regular conferences being introduced on a county wide basis under a protocol agreed between the Cambridgeshire Probation Service and the Cambridgeshire Constabulary in September 1998. With the advent of the new statutory duty these Dangerous Offender Conferences were officially redesignated as “MAPPPs” (Multi Agency Public Protection Panels). The initial protocols between Police and Probation were replicated with other agencies so that Social Services, Youth Offending Teams, Health Services and a range of Housing authorities and providers are now also involved. During the first full year of operation other agencies, including Turning Point, a national charity that helps socially excluded people, and Bridgegate, an organisation providing drugs counselling, have given their commitment to the protocol arrangements. You can find details of those currently signed up to the arrangements in the next section of the report. The MAPPP Manager, a Senior Probation Officer, was appointed in March 2002 and there has been a significant advance in the work of the panel by seconding the MAPPP Manager to work at police headquarters alongside a Police Officer. Both the Police and Probation have the shared statutory duty and provide the funding. During the first year of operation the role of the MAPPP (where the very highest risk offenders are discussed) has been developed and there has also been a developing understanding that wider Multi Agency Public Protection Arrangements (the MAPPA) are as significant. Further details of how information sharing between agencies takes place in a variety of ways as part of the overall MAPPA can also be found in later sections of this report.

Q. A.

What are the principles that underpin the work of public protection?

RISK ASSESSMENT: One of the most important principles is that effective risk management has to start with accurate risk assessment and to do this agencies need to share information. This means that we have to balance the individual’s right to privacy and confidentiality against the rights of past, present and future victims to be protected from serious harm. This can only be done properly on a case by case basis so that we can be clear about the actual risks that the individual poses. It is at the Multi Agency Public Protection Panels that the most significant levels of information sharing occurs - so it is important, in having regard to any individual’s rights to confidentiality, that those Panels only discuss individuals believed to pose an imminent risk of serious harm where sharing confidential information can clearly be justified. Where the Panel goes on to set up an agreed action plan between the agencies and keeps the individual under review the offender should be informed that agencies are pooling information and working together. This disclosure is only withheld from an offender if the risk to an identified victim would be increased. Telling people that they are being monitored by the MAPPP and that they are considered to pose a very high risk of serious harm can act as a means of external control. In putting together a plan to manage the risks posed by very serious offenders the Panel may also include further controlling elements such as surveillance, tagging, hostel residence, Sex Offender or Anti-Social Behaviour Prohibition Orders (ASBOs). The Panel may also order the offender to attend sex offender treatment and relapse prevention programmes etc. to assist the offender develop or improve their internal controls. PROTECTION OF THE PUBLIC: Staff in all the agencies work under clear policies and practice guidelines designed to protect the most vulnerable members of society. Through sharing information and developing joint action plans the MAPPPs can add value to the normal day to day work of the agencies. The protection

of children and vulnerable adults is above all a fundamental principle of the work and their rights will always take precedence in all cases. ACCOUNTABILITY: The MAPPP Manager is accountable to the Strategic Management Board as the Responsible Authority, and staff members who work through the MAPPPs are accountable to their own agencies. The publication of an Annual Report reflects the appropriate degree of openness about the systems that are in place and the dissemination of the information about local MAPPP arrangements to the wider public. For the first time this Annual Report will be available on the Cambridgeshire Constabulary Website – which is widely accessed by the community.

Q. A.

What does this MEAN in practice? What is actually done?

Throughout this report you will find case examples to try to give a clearer picture of the work of the MAPPPs in particular but also how information sharing takes place under the wider Multi Agency Arrangements. We can’t identify the exact locations or actual people involved but all the cases are true with the names changed to protect identities. Here is the first case example:

Mr A originally received 5 years imprisonment for offences including Indecent Assault and Unlawful Sexual Intercourse. Although his sentence was reduced to two years on appeal, it was decided that he could not return to his home area and indeed that his licence conditions should contain an exclusion zone preventing his return to his home town. Cambridgeshire agreed to place him at a Probation hostel, initially on an extended curfew, and dealt with him under MAPPP procedures. Mr A was warned that this would mean significant scrutiny of his activities. After several months residence he was reported to have approached a couple of young girls and asked them for “drugs”. He denied it but was then arrested for shoplifting and these two events together were sufficient for the Home Office to order his recall to prison, using information shared between police and probation.

Q. A.

Which agencies in Cambridgeshire support the work of the MAPPP’s?

The Initial Protocol drawn up in January 2002 focused on the role of the Multi Agency Public Protection Panels rather than on the wider Arrangements. Further guidance from the Home Office on the overall Arrangements has recently been published and a second protocol will be drawn up to reflect the advice. At present the list of agencies which have signed the protocol, looks like this:

National Probation Service – Cambridgeshire Area Cambridgeshire Constabulary Cambridgeshire Social Services Department Peterborough Social Services (now split into Education & Children’s Department and Adult Social Care) Peterborough Youth Offending Team (now Youth Offending Service) Cambridgeshire Youth Offending Team (now Youth Offending Service) Peterborough City Council Housing Department Cambridge City Council Housing Department East Cambridgeshire District Council Housing Department South Cambridgeshire District Council Housing Department Fenland District Council Housing Department Huntingdonshire District Council Housing Department Hereward Housing Association Ltd Huntingdonshire Housing Partnership Muir Housing Nene Housing Society Cambridgeshire & Peterborough Mental Health Partnership NHS Trust Bridgegate (Voluntary Agency) Turning Point (Voluntary Agency) Drinksense (Voluntary Agency)

Separate protocols have been signed with both Bedford and Littlehey Prisons concerning the coordination of the work between the community MAPPP and the public protection systems within prisons. This includes the timely exchange of information, and participation by prison staff in the community MAPPP and vice versa when considered appropriate. The purpose of this shared work is to ensure that the controlled release of prisoners into the community has been properly planned. Good communication systems are also in place with HMP Whitemoor – who hold a public protection meeting on any individual due for release. Mr B is a relatively young offender who has committed serious offences of indecent assault against younger boys. He is a registered sex offender and has been continually tracked by police since his original release from prison in April 2001. He has previously been made the subject of a Sex Offender Order which includes prohibitions from approaching young children under the age of 16 and allowing young children to visit him at his home address. He disappeared from his last known address in Cambridgeshire but was tracked down to a new address in a northern town. He was arrested for breach of his Sex Offender Order and given a further sentence of 12 months. As his release date approached, there was good liaison between the other area and the Cambridgeshire MAPPP and a plan was agreed to insist on hostel residence. There were concerns that Mr B would not co-operate and the police arranged for officers to maintain surveillance on him. He was followed from the prison gates and by the middle of the day it was clear he was not intending to arrive at the hostel by his agreed time. Emergency recall procedures were implemented and Mr B was arrested and returned to prison.

The roles of most of the statutory agencies are generally well known but it may be useful to state what they do:

The Cambridgeshire MAPPPA links to the Services provided by two separate Authorities, Cambridgeshire County Council and Peterborough City Council.

Cambridgeshire County Council and Peterborough City Council
The councils are committed to creating safer communities by working in partnership with statutory authorities.

Child Protection
Child Protection is a lead responsibility for the Councils. Their responsibilities are undertaken in partnership with the agencies that make up the Cambridgeshire and Peterborough Area Child Protection Committees. These responsibilities include: • • • • • • Undertaking enquiries with the Police into allegations of abuse of children Organising multi-agency child protection case conferences Providing key workers for all children on the child protection register With ACPC partners ensuring that the procedures for safeguarding the welfare of children are up to date and effective Promoting keeping children safe work in all child care settings e.g. schools, pre-school settings, after school clubs Ensuring safe recruitment practices are implemented across the councils and promoted in all child care settings

Protection of Vulnerable Adults from Abuse
Cambridgeshire Social Services and Peterborough Adult Social Care have the lead role in ensuring that statutory agencies work in partnership to protect vulnerable adults from abuse. The Cambridgeshire and Peterborough Vulnerable Adult Protection Committee brings together representatives from the statutory, voluntary and private sectors responsible for working with and providing services for adults. The responsibilities of the committee include: • To develop, implement and monitor local policies, guidance and procedures for inter-agency work.

• • • •

To improve ways of working in the light of national and local experience and research. To improve the quality of adult protection work through further development of training opportunities and programmes. To ensure agreement and understanding across agencies about operational definitions and thresholds for intervention. To audit and evaluate how well local services work together to protect vulnerable adults.

Mr C is a violent offender who had seriously assaulted his ex-partner and her friend. He was released to a hostel and registered under the MAPPP. Although he broke no conditions of his licence he remained difficult. Concerns remained about his risks and when his licence ended, and Mr C moved out of the hostel, he continued to be monitored by the police. Housing officials, aware of his MAPPP status, revealed he was the new partner of a woman with a child who was seeking re-housing. She was scared of her former partner’s imminent release from prison. This lead to a child protection investigation and assessment in relation to the risks posed to the child. Mr C continues to be watched and intelligence is sought about his activities.

Youth Offending Services
Youth Offending Teams are organised to work in a multi-agency way with representatives from Social Services, Police, and Probation. Other professionals (such as psychologists) are also involved. YOTs supervise a range of young offenders up to the age of 18 on a variety of court orders and staff also work with their parents. It is only the most serious young offenders who present a very high risk of harm who are referred to the MAPPP. Interagency sharing of information under the wider arrangements has long been in place through the nature of their organisational structures.

Statutory and Voluntary Housing
The number of statutory and voluntary housing agencies that have signed up to the MAPPP protocol is particularly significant as it illustrates that accommodation for offenders on release is one of the most difficult and challenging issues surrounding public protection. Many serious offenders are initially released to a hostel. These places are limited and in high demand and inevitably there has to be move on provision. A great deal of work is undertaken to place offenders as sensitively and safely as possible in local accommodation. Reports concerning an individual’s risk assessment and other information help housing agencies make informed and responsible decisions. The new Supporting People Legislation will create greater opportunities to provide accommodation support through workers that will keep in regular touch with offenders in community provision. These workers will provide another way of monitoring offenders’ activities and helping them lead responsible lives.

Health Services
The involvement of health care professionals can often be highly beneficial in the work of the MAPPPs. The Cambridgeshire & Peterborough Mental Health Partnership NHS Trust has signed up to the protocol and has arranged for a local CPN to attend the MAPPPs in each of the police areas. There is a particular sensitivity about patient confidentiality in relation to health services which has to be respected. The involvement of the CPN is proving invaluable in ensuring good practical arrangements for such things as making sure newly released prisoners, in need of medication, do not have problems arranging prescriptions, or in smoothing referral processes for quick access to psychiatric assessment. Work on a multi agency basis is also targeting the sizeable group of offenders who exhibit worrying, and sometimes dangerous behaviour, who “fall between” the criminal justice system and the mental health system. Since Primary Care Trusts (PCTs) are not yet signatories to the protocol the MAPPP ensures information is sent to GP’s as necessary to warn them of particular risks associated with their patients. There is in particular good communication between the local GP practice and those responsible for offenders in hostel provision.

Mr D was sentenced to six years for offences that included a serious attack. During his prison sentence he exhibited bizarre behaviour at times and was for a while treated at a Medium Secure Unit though returned to prison before release. Community Mental Health provision was difficult to secure on release although an appointment with a psychiatrist was arranged. His mental health deteriorated badly just before release and once back home he was quickly causing alarm to the family and behaving in a bizarre way. He was putting himself and others at risk. Police and Probation worked together to recall him and arrested him without injury to anyone. He received further psychiatric assessment in prison and was diagnosed as suffering from paranoid schizophrenia. An Assertive Outreach Team (specialist community mental health provision for “hard to reach” patients) became involved and worked through the MAPPP to set up a further release plan. This involved intensive home visiting to give daily medication and the support of police should anything go wrong. Once again his condition deteriorated dramatically before release and after great difficulty he was admitted onto a local psychiatric ward and subsequently sectioned. The Assertive Outreach Team have continued to work with him and his family and through medication and support have enabled him, some months later, to live peacefully at home again. His case illustrates how managing risk is a very active process where changing circumstances need a quick response.

Bridgegate and Turning Point have signed up to the original protocol.

Bridgegate provides advice, information and counselling to drug users, concerned others and professionals. Their Team Manager writes “We have specialist projects for young people and Drug Using Parents. Bridgegate also manages the Communities against Drugs Project which works closely with the Police and Communities. We also work closely within the Child Protection system and with many statutory and nonstatutory partners. We also provide services to the National Probation Service - Cambridgeshire, Peterborough Youth Offending Team and Cambridgeshire Youth Offending Services. We are pleased to sign up to MAPPP.”

Turning Point
Turning Point is a leading national charity that helps the socially excluded build more independent lives. The organisation provides locally tailored services helping people recover from the effects of substance misuse and provides care and support for individuals with mental health problems or learning disabilities. There are projects in Cambridge and in Huntingdon and since 1998 a service has been provided for the whole of Southern Cambridgeshire. Both projects work closely with and alongside statutory agencies, assisting them in their discharge of their responsibilities under the Mental Health Act and the NHS and Community Care Act. They also have a history of liaison with the Probation Service, working with offenders who have mental health problems.


What do the statistics show about how the overall system is working in Cambridgeshire?


The figures collated for England and Wales after the publication of MAPPA Annual Reports last year showed that Cambridgeshire, with 36 Registered Sex Offenders per 100,000 population was very close to the national average, i.e. 35 per 100,000. Of the current 282 Registered Sex Offenders living in the community in Cambridgeshire it is important to clarify that only 12 have been assessed by police as being Very High Risk. The police make their assessment by using a process called the Risk Matrix 2000 Static Assessment Tool. All such Very High Risk offenders MUST be referred to a MAPPP for discussion, and all have been dealt with in this way.

The statistics set out in Appendix A of this report show that in total we have the 282 Registered Sex Offenders mentioned above plus a total of 425 Violent and Other (ie non registered) sex offenders who we consider as being covered by the totality of the Multi Agency Public Protection Arrangements, and on whom some level of information exchange is required. There are a small number of “other” cases which we can identify, which include a few individuals where there are grave concerns but a recent conviction has not been secured.

The overall statistics include all those currently in custody as well as in the community and some individuals will not of course be returning to the community for some time. Whilst in the prison system there is routine exchange of information concerning prisoners between the Prison Service, Police and Probation in a number of areas including: • • assessments for release on Home Detention Curfew (commonly known as tagging) the release of a prisoner to their approved address so that police records can be updated. and • information on victims of all offenders serving 12 months or more for crimes of sex or violence so that victims can be offered information and the opportunity to comment on release arrangements. (There is more information about this in section 6).

The majority of the offenders that come under the overall MAPPA are effectively managed under these normal agency arrangements. The Probation Service supervises offenders on licence after release from prison and rigorously enforces the licence conditions. If a condition has been breached, this can lead to the offender being recalled to prison. The Probation Service will also refer offenders to programmes designed to address their offending behaviour such as the “Think First” Programme or the “Aggression Replacement Programme.” In the case of Sex Offenders, the National Probation Service - Cambridgeshire has implemented the Thames Valley Accredited Sex Offender Groupwork Programme.

Q. A.

What does the Thames Valley Sex Offender Groupwork Programme involve?

The Thames Valley Sex Offender Groupwork Programme (TV-SOGP) has been developed by international experts in the field of sex offender research. This programme has been designed to meet the needs of sex offenders living in the community who are subject to supervision either directly from the court or following release from prison. The TV-SOGP is essentially for males over the age of 21 who have committed any sexual offence, including internet offences. The treatment programme is based on structured group work, with some work being undertaken with individual offenders where necessary. TV-SOGP uses cognitive behavioural methods to challenge how the thoughts, feelings and emotional responses of offenders link to their abusive behaviour. The programme has four main components – Foundation Block, Victim Empathy Block, Life Skills Block and Relapse Prevention Block – with a total treatment time of 160 hours. Offenders will be expected to repeat elements of the programme deemed necessary for their progress. The groupwork component of the programme takes approximately one year to complete. Key elements of the programme include: • • • • • Risk assessment and management Making sex offenders aware of the damage caused to their victims Challenging denial by encouraging offenders to take full and active responsibility for their sexual offending behaviour Increasing the level of social competence frequently lacking in sex offenders Development of effective Relapse Prevention Strategies

An additional structured element of the Thames Valley Programme has been developed for the partners of offenders. This part of the programme can be a supportive element in the offender’s plan for a new, abuse free lifestyle. The “partner component” is 36 hours long and is for either female partners or a significant female family member e.g. the mother or a sister. The programme is particularly appropriate for low risk sex offenders whose cases have involved deviant family abuse. However those whose partners have sexually abused adults or who have committed non-contact offences may also attend. The programme is designed to support and develop the offender’s own means of control to prevent reoffending. Where offenders appear unable to develop this approach and are unwilling to address their offending behaviour, other restrictive measures can be introduced. In such cases the Police have an increasingly significant part to play, both in monitoring offenders through the work of the Sex Intelligence

Registration Officers attached to each Police Division, and in intelligence gathering to support the early detection and prosecution of further crimes. There are also growing examples of police and probation working together on joint home visits. Some of the most effective examples of good practice combine working with the offender to teach self control while making use of external back-up measures that impose restrictions on lifestyle and freedom of movement. Mr E was convicted of an offence of burglary and a Pre Sentence Report prepared by a Probation Officer. He had a history of such offences and on further investigation it was decided that there was a sexual motive behind the offences. Mr E seemed to some extent to target young, “student type” women as his victims. During the assessment process Mr E agreed that concern about his sexual interests was well founded. He agreed to co-operate with the Probation Service and a three year Community Rehabilitation Order was imposed with a condition of treatment on the Sex Offender Treatment Programme. Further assessment lead to the Probation Service being very concerned about the level of risk he posed and Mr E was brought to the MAPPP. The proposed actions included some surveillance work on Mr E’s movements, and it was agreed that a Police Officer would be asked to work jointly with the Probation Officer and see him for joint sessions. This approach was to reinforce the concerns and to help him avoid further offending. The joint work has gone well, as has his level of co-operation and work on the programme. A further assessment indicated that his level of risk had dropped below the MAPPP threshold and he was discharged from the process. Mr E remains on probation supervision and is continuing contact with the Police Officer when needed. He will be brought back to the MAPPP process if necessary but all the indications are that the twin approach has been extremely effective in reducing and managing the risk.


In what other ways is information exchanged?

A. The standard information exchange in relation to release addresses and victim information is now greatly improved by the appointment of the MAPPP Manager who is based at Police Headquarters. The MAPPP Manager (a Seconded Senior Probation Officer) works alongside the Force HQ Sex Offender Intelligence Officer so there can now be a particularly effective exchange of information between the two agencies on a daily basis. This has been useful for instance in clarifying the whereabouts of an offender for Police and in sending information swiftly to Probation Officers about details of allegations of renewed criminal activity. This information is invaluable when collating evidence on whether to recall an offender. Q. A. What role does the MAPPP Manager have with the Very High Risk Offenders?

The role of the MAPPP Manager is also to coordinate and manage the Multi Agency Public Protection Panels on behalf of the participating agencies. A regular monthly meeting is held in each of the three Police Divisions, chaired by the MAPPP Manager, who can also call an emergency meeting at short notice if, for example, a dangerous offender is known to have moved into the area. The MAPPP Manager is a central point of reference for all subscribing agencies and can give advice on managing risk as well as determining whether an offender should appropriately be discussed at a Panel. The MAPPP Manager holds a central register of offenders dealt with by the Panel and liaises with those responsible for the Child Protection Register and the Social Services database of Schedule One Offenders (Offenders convicted of offences against children.) Panel discussions are held, and decisions are recorded in written minutes that are circulated to the relevant parties.

The main agencies all have procedures for making it clear on their individual recording systems when someone has been MAPPP registered to help inform any subsequent operational decisions. All agencies are strictly bound by the requirements for confidentiality. In the case of very high risk offenders where there are significant accommodation or victim concerns on release, or where there is expected to be significant media interest in the case, the MAPPP Manager will liaise with the Dangerous Offender Unit of the Home Office which takes an interest in the proposed arrangements under an “Early Warning” Scheme that has been in place since 1999.

Mr F had served a lengthy prison sentence for Indecent Assaults against his daughter. On release he was sent to a hostel away from Cambridgeshire because of concerns about his daughter who was still young. He was recalled because of repeated inappropriate sexual comments and behaviour towards staff at the hostel. Having served the full amount of his original sentence he was not on a further licence when released. There were concerns that there would be no restriction on his activities other than his requirement to Register with Police as a Sex Offender. He was dealt with by the MAPPP and the Home Office notified through the Early Warning Scheme. A risk management plan was put together that involved a place in a statutory hostel even though he would not have normally been eligible because he was not on licence. Housing officials are working to identify suitable long term accommodation where he can be appropriately monitored but this takes time to arrange as the placement must be sensitively made to avoid risks to others. He received mental health assessments and medication whilst in prison that has been followed through into the community to keep him calm. His ex-wife was contacted to ensure that if she had any cause for concern for her daughter there would be a swift response. A church contact that he had made was followed up to ensure that those concerned knew of his background so that risks could be properly monitored. He remains subject to the MAPPP.

Q. A.

So when do the public get told about someone dangerous?

Although the exchange of confidential information between agencies is fundamental to the risk management process, it must comply with the Data Protection Act 1998 and the Human Rights Act 1998. The Court of Appeal ruled (in R v North Wales Police ex parte A, B & CD) that disclosure of the identity and whereabouts of an offender can only be authorised when, after all the relevant factors have been considered, it is deemed necessary for the protection of the public and the disclosure is part of a risk management plan. It is against this background that the controversial issue of disclosing information by agencies to the public arises. The Cambridgeshire MAPPP meetings consider the need for disclosure on a case by case basis, and this discretion has been exercised where necessary. Recent examples include:

• • •

Disclosure to a manager of a multi-purpose community centre potentially used by an offender for access to computer training. The centre houses a café likely to accommodate women with young children. Disclosure to the owner of a night club proposing to run a Junior Disco about the convictions of a temporary bouncer. Disclosure to the warden of a sheltered housing complex about sexual offending of an elderly resident so she could monitor any interest in other resident’s visitors. Disclosure of convictions to a care worker who had been persuaded to allow her child to visit her “client” for music lessons.

These examples of the work done by the MAPPP to identify and specifically address the risks posed by the individual are in addition to the conditions on licences that are often used by the Probation Service in relation to preventing sex offenders living or working with children. This work has been assisted by the increasing use of the Sex Offender Order, to bar sex offenders from any kind of action that may lead to opportunities to re-offend, and by the use of Restraining Orders that can be imposed at the time of conviction and which can last for five years after release.

Mr G was released after serving a sentence in Norwich prison for failing to register as a Sex Offender. He disappeared but was eventually discovered living in Cambridgeshire with a woman and her children. He was arrested and served a further term. The children were taken into care by Social Services. Whilst he was still in prison, police brought his case to the MAPPP and a full assessment of his risk was made. It was then agreed to obtain a Sex Offender Order which would place him under further prohibitions. A Sex Offender Order was made which banned him from contact with the particular family and from the area in general, prohibited him from contact or communication with children under 14 or from contact or communication with a woman knowing or suspecting her of having children under 14. He has left Cambridgeshire and is being monitored under the terms of this Order by Police in another county.

Q. A.

What about the offenders who are not Very High Risk but need more than just single agency management?

Agencies will sometimes call other kinds of multi agency meetings to try to co-ordinate work in a particular case. This may include a Probation Officer getting together with an offender and a worker from a Drug Agency, or a Child Protection Strategy Meeting. A Probation Officer may arrange for a Community Psychiatric Nurse and an offender to meet to discuss how the offender is coping emotionally with their problems.

There are many examples of good practice continuing in this way. Some offenders are brought to a MAPPP because of concerns about their risky behaviour but are not in the end regarded as being “very high risk” or one of the “critical few” . However, actions can be agreed that will assist the agencies and reduce the level of risk. In the course of 2002 – 2003 a total of 36 offenders were discussed at MAPPP meetings but not formally “registered” as dangerous.

Q. A.

What kind of feedback has been given so far – does this all work?

We have not yet developed formal feedback mechanisms but hope to do this over the next few months. Informally we already know that key professionals working in all the agencies have expressed their support for this increased opportunity to develop better quality risk assessments and risk management plans. Detective Constable Andy Mulligan, responsible for the Sex Offenders Register in Cambridgeshire, writes “The different views, perspectives and experiences brought to the MAPPA conference table assist me, as a Police Officer, to appreciate the far wider picture of risk posed. The precise actions emanating from the MAPPP give a strong sense of direction.” Sue Nash, Child Protection and Review Manager, Peterborough Education and Children’s Department states “The inter-agency perspective has proved invaluable in several cases, with each agency contributing from their professional background. Risks have been identified which may not have been picked up otherwise and responsibility for a risk management plan shared across the agencies. I think Panel members work together constructively.”

Q. A.

What does all this mean for victims? Is this really helping them?

The Criminal Justice and Court Services Act 2000, which set up the MAPPA also consolidated earlier developments that required the Probation Service to offer face-to-face contact with a member of the Probation Service to the victims of all those sentenced to 12 months or more for crimes of sex or violence. The Victim Contact Co-ordinator – assisted by additional Probation Service Officer time, as needed - has this responsibility for Cambridgeshire. The Co-ordinator acts as the central contact point for liaison with other Probation Services and is also responsible for continuing contact with victims where other Services have responsibility for the offender.

The purpose of the Probation Service's work with victims continues to be to:

• • •

provide victims with general information about criminal justice and custodial processes. consult victims about whether they wish to provide information which may be relevant to the consideration of any requirements or licence conditions placed upon the offender on his release from custody. consult victims about whether they wish to be informed about those licence conditions. transmit any such information put forward by victims to the authority considering the offender's conditions of release. inform the victim of any conditions or requirements attached to the offender's release which are relevant to contact with the victim or his family, and any other information.

The Probation Service is set targets for contacting the victims of relevant crimes within eight weeks of sentence. For 2002 – 2003 the targets set were that 85% of victims of two groups of relevant offenders – those sentenced to between 12 months and 4 years and those sentenced to above four years - should be contacted within eight weeks. The figures available for the first nine months of the year show that Cambridgeshire met its targets for both groups in all but one month of the year. This means that local victims of sexual and violent criminals were offered a timely service and can find out, if they want to know, when offenders will be released and under what conditions. This “information offering” helps people who “need to know” but is not the full answer. Many victims need support to try and cope with the trauma they have undergone and it is the national charity Victim Support that plays a vital role in helping them pick up the pieces. Victim Support offers a free and confidential service, whether or not a crime has been reported. Trained staff and volunteers at local branches offer information and support to victims, witnesses, their families and friends. Victim Support provides the Witness Service, based in every criminal court in England and Wales, to offer assistance before, during and after a trial. You can call the Victim Support line 0845 30 30 900 – for information and support and details of local services and other relevant organisations.

Q. A.

What about very high risk offenders? Can victims attend the MAPPP?

No but the MAPPP Manager will ask the Victim Contact Coordinator to attend and raise any issues where there is an identified victim who needs protection. Police Officers usually liaise closely in such cases and may offer the installation of an alarm system and other advice as needed. One of the most important tasks involving the MAPPP is to ensure that past victims are not again put at risk when an offender is released. To achieve this protective measure, arrangements are often made to release offenders to a different area and to impose exclusion zones whilst the offender is under licence. In some cases of severe Domestic Violence, arrangements will need to be made with Housing Authorities to move a family and legal measures such as injunctions may also be necessary.

Mr H is currently of concern to the MAPPP as he is serving a prison sentence for breach of a Restraining Order in relation to his step daughter who has suffered sexual harassment from him over a period of years. He also has a past conviction for rape against an ex-partner. In discussing his release and putting together a risk management plan the MAPPP have agreed that police will have continuing contact with his step daughter to inform her of his release and give ongoing response to any further breaches. The Probation Service will contact his earlier rape victim so that she is aware of his re-release and can raise any concerns.

CAMBRIDGE VICTIM SUPPORT The Bath House Gwydir Street Cambridge CB1 2LW ELY & DISTRICT VICTIM SUPPORT 41 Fore Hill Ely Cambridge CB7 4AA

Tel: 01223 329000
FENLAND VICTIM SUPPORT March Business Centre Old School Buildings Dartford Road March PE15 8AN Tel: 01354 658231 PETERBOROUGH VICTIM SUPPORT 252a Lincoln Road Millfield Peterborough PE1 2ND

Tel: 01353 666641
HUNTINGDON VICTIM SUPPORT Primrose Centre Primrose Lane Huntingdon PE29 1WG Tel: 01480 417600

Tel 01733 349897


Who is in overall charge of the system?

A. Initial arrangements for the creation and funding of the MAPPP Manager post in Cambridgeshire arose through a joint Police and Probation Initiative in response to the new Statutory Duty. To meet initial requirements and in order to broaden the ownership of the arrangements a Steering Group was established comprising representatives from all the agencies who initially signed the protocol. The Steering Group was constituted to meet every six months to:
a) b) c) d) monitor the performance of the Multi-Agency Public Protection Panels identify and disseminate best practice review the arrangements approve the Annual Report.

A complaints procedure was agreed in relation to process and procedural issues, which will be referred to the MAPPP Manager in the first instance. Where the complaint is about the MAPPP Manager this will be investigated by his or her line manager but if this proves unsuccessful the case will be referred to the Steering Group for resolution. Further Guidance published in April 2003 has directed that a Strategic Management Board needs to be established to take over from the Steering Group. The Strategic Management Board is to have an enhanced function as follows: a) monitoring (on at least a quarterly basis) and evaluating the operation of the MAPPA, particularly that of the MAPPPs; b) establishing connections which support effective operational work with other public protection arrangements such as Area Child Protection Committees, local Crime and Disorder Partnerships and local Criminal Justice Boards; c) preparing and publishing the Annual Report and promoting the work of MAPPA in the area; d) planning the longer term development of the MAPPA in the light of regular reviews of the arrangements and with respect to legislative and wider criminal justice changes; e) identifying and planning how to meet common training and developmental needs of those working in the MAPPA. The future membership of the Strategic Management Board is being considered by those agencies previously committed to the Steering Committee. Senior Managers from both Police and Probation have the responsibility to work together to carry these issues forward. We are delighted to have learnt that the Huntingdonshire Primary Care Trust has taken the lead, through its Chief Executive, in sending a representative to the Strategic Management Board from the autumn of 2003. This should lead to a fuller commitment to the necessary liaison between MAPPA and the Health Sector.

Q. A.

So what does the future hold?

Andrew Deller, Assistant Chief Officer, National Probation Serivce – Cambridgeshire sums up the new developments as follows:

“In March 2003, the Home Office issued ‘MAPPA Guidance,’ which has statutory authority. In Cambridgeshire, we will be able to build on the good practice which has been established and will seek to strengthen confidence in the value of multi agency management of risk. We all know there is no such thing as zero-risk – MAPP Arrangements cannot provide an absolute protection. In about a third of all extremely serious cases, the perpetrators were first-time offenders. Such people are not known to the public protection agencies, in advance. However, when there are concerns to do with risk of harm to others, the MAPP Arrangements will mean that the agencies that may have some potential influence on a situation, can be brought together to be made aware of concerns and then work to identify the best possible contribution each agency can make, in a preventative way.

Risk assessment is not an infallible science. It is our aim, and commitment, that by creating settings in which agencies and professionals work together we shall achieve outcomes which are more effective than singleagency working, in cases where there is a possibility of high or very high risk of harm to others. Over the next year, these are the things we plan to achieve:MAPP Arrangements continue as a shared Police and Probation responsibility. MAPP Arrangements which have been put into place will in future be managed by a Strategic Management Board (SMB). The SMB will consist of senior managers from key agencies in the public and voluntary sector. All agencies will be encouraged to use documented Risk Assessment Tools. The tools currently used are called Offender Assessment System (OASys) and Risk Matrix 2000. Risk will be identified as either low, medium, high or very high. All MAPP cases will be assessed and categorised at one of three levels. At Level 1, the majority of cases which are assessed as low and medium risk will continue to be dealt with by the main agency involved – this will usually be Police, Probation or Youth Offending . At Level 2, we will develop inter-agency Panels which will have fixed membership and will review all identified high risk cases, at regular monthly meetings. Some cases will be reviewed fortnightly. Level 3 is reserved for those cases in which there is a high or very high risk of serious harm. We intend to be able to call Level 3 meetings at short notice, to ensure all key agencies are aware of and can respond to cases which require close co-operation at senior level due to the seriousness and complexity of the case, or because of the heavy resource commitment the case requires. These cases we will refer to as the ‘critical few.’ In Cambridgeshire we anticipate there may be around twenty such cases to be considered in a twelve month period. In addition, the arrangements in Cambridgeshire are being bolstered by an increase in the support we will experience from the National Probation Directorate. There, a specialist Public Protection Unit has been reshaped and strengthened, to be available to develop national practice and to assist local areas with all aspects of case management and risk-management. There are ways in which the movement of high risk offenders between counties, and also in travelling in and out of this country, can be monitored - these MAPP Arrangements give us the scope to identify and consider such risks. In all our activities, we will be strengthening the important connections between our work and Child Protection. In Cambridgeshire, senior managers in all key organisations have well-established collaborative working practices, and we will continue to develop and improve our procedures to reflect our total commitment to shared working and the fullest possible level of co-operation. In the year ahead, we are committed to respond promptly - and with enthusiasm - to any Government initiative or advice. We are waiting for Government guidance on two important areas of development, and have been told to expect this towards the end of this year. Firstly, there is the concept of legislating for a ‘Duty to Co-operate’ – this should give other public sector organisations a clear framework in which to operate with us and exchange information fully. Secondly, we will be keen to appoint lay people as representatives of our communities; lay involvement is being taken forward as a pilot in some areas, and their experience will inform an extension of this as a national development.”

6. Statistical Information
i. The number of registered sex offenders in Cambridgeshire on 31 March 2003

No. of Offenders


ii. The number of sex offenders in Cambridgeshire having a registration requirement who were either 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


(b) The total number granted


(c) The total number not granted


iv. The number of Restraining Orders issued by the courts between 1 April 2002 and 31 March 2003 for offenders currently managed within MAPPA ie, under S5A(1) of the Sex Offenders Act 1997


v. The number of violent and other sexual offenders considered under MAPPA 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 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 by:

a) MAPPP - registered sex offenders


b) MAPPP - violent and other sex offenders


c) MAPPP - other offenders


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


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


c) charged with a serious sexual or violent offence


Cambridgeshire Probation Area Andrew Deller Assistant Chief Probation Officer Address Probation Headquarters 1 Brooklands Avenue Cambridge CB2 2BB Phone 01223 712345

Carol Ashford Multi Agency Public Protection Manager

Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP

01480 422672

Cambridgeshire Police Julian Eales Detective Superintendant

Address Cambridgeshire Constabulary HQ Hinchingbrooke Park Huntingdon PE29 6NP

Phone 01480 456111