Lincolnshire

Multi-Agency Public Protection Arrangements
Annual Report 2002-3

Contents
Foreword The National Picture MAPPA Offenders Chair’s Introduction Area Summary Developments 2002/3 Roles and Responsibilities Outline of Arrangements Made Strategic Management Arrangements Disclosure Victim Work Procedures and Definitions Statistical Information Key Personnel 5 7 9 10 12 15 17 21 23 24 25 26 28 30

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Foreword
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
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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

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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'.
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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.
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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 www.probation.homeoffice.gov.uk (under the public protection section) with all of them being available once the last Area has published its annual report in September.

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Chair's Introduction
I am pleased to invite you to read the Second Annual Report about arrangements in Lincolnshire to assess and manage the risk presented by certain violent and sexual offenders. This work is carried out by organisations (sometimes called agencies) either acting alone in low to medium risk cases or in partnership with higher risk cases. Although this is only our Second Annual Report in this form, this work has built on many years of successful collaborative work. The Partnership involved in this work includes Police, Probation, Social Services, Health, Education, Housing, the Youth Offending Team, and the Prison Service. Staff from these organisations are now working together more closely, more frequently and at all levels. We work together because research and experience shows that this is the most effective way to assess, manage and reduce the risk presented by a small number of people. Fortunately Lincolnshire remains a very safe place to live. Crime levels are low, and all the organisations and their staff referred to in this Report are proud of their contribution to public protection in Lincolnshire. The Report provides specific details on the structure of Public Protection arrangements and information about the numbers of cases. In addition, we are providing for the first time descriptions of selected cases because we believe this can be one of the best ways of ensuring public confidence in this work. Towards the end of the Report are flow charts which explain diagrammatically how individual cases are
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dealt with, and what happens if a member of staff identifies an individual who poses a risk of serious harm. This Report includes contact details of senior staff responsible for Public Protection arrangements in Lincolnshire and although I hope this Report is selfexplanatory I know they would be happy to answer any queries you may have. Sally Lewis Chair - Strategic Board

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1. Area Summary
Official organisations, sometimes called statutory agencies, have, within Lincolnshire, a strong history of collaborative working arrangements which have focussed upon the protection of the public from potentially dangerous offenders. In January 1997 formal arrangements were made operational between Lincolnshire Police and the Probation Service in Lincolnshire to hold structured meetings in relation to dangerous individuals. Both agencies work within three co-terminous operational divisions: South, East and West. These meetings were held divisionally and their purpose was defined in the following statement of intent: "Lincolnshire Probation Service and Lincolnshire Police will work together to establish local panels with the aim of managing the risk offenders pose of serious harm to the public. They will seek to involve other agencies who may have a contribution to make in reducing the risk of further offences being committed." Local meetings made a significant impact upon the abilities of the Police and Probation Service to assess individuals and manage risks posed by them. The meetings were successful in involving representation from other agencies where this was appropriate. There was a strong commitment from the Police and Probation Service in Lincolnshire to build upon the success achieved by the local panels. In March 1999 the Lincolnshire Multi-Agency Public Protection Panel (MAPPP) was established. This project is a formal partnership between the following agencies in Lincolnshire:
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Multi-Agency Work High Risk Mr A was coming to the end of a prison sentence for affray little was known about his previous behaviour or the risks he might present. The Probation Service investigated his background and found that he had assaulted many women with whom he had lived. They assessed that he was a high risk to women and children. Working with Social Services departments, Women’s Aid and Lincolnshire’s Domestic Violence Manager, the Probation Service ensured that he would be accommodated on release where he could be monitored under a curfew and would undertake a programme designed to tackle his offending. This was the first time he had ever dealt with the cause of his offending. Later his behaviour deteriorated but the Probation Service used their powers and he was recalled to prison without anyone being harmed.

❏ ❏ ❏ ❏ ❏ ❏

Police Probation Health Social Services Education Housing Authorities or Providers

The establishment of the Multi-Agency Public Protection Panel acknowledged that risk of harm to the public is not restricted to offenders who are subject to supervision by the Probation Service or involvement of the Police. The recognition and management of that risk is a multi-agency responsibility. On that basis it was decided that the agencies listed above would work together to identify people, including children and young people, who are considered to be dangerous in accordance with criteria which were defined. The establishment of a Multi-Agency Public Protection Panel aimed to manage the risk of serious harm those individuals represented to the public in general and to children and vulnerable adults in particular. It was the stated intention of the approach to concentrate on those individuals who pose a major risk to public safety. Panel Members are senior officers from the partner organisations. They are members because of their experience, expertise, and because their seniority can ensure that required actions are carried out and resources provided. "The establishment of the Multi-Agency Public Protection Panel and the identification and management of those individuals presenting the highest risk to public safety has locally produced some excellent results." Louise Tomlinson Forensic Services Manager
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Lincolnshire has the benefit of a tiered approach to the assessment and management of dangerous offenders. Routine information is shared about prisoners released from custody. Locally operated Divisional Risk meetings are held in respect of the majority of offenders assessed as posing a risk to the community. For the critical few cases that pose the most serious risk of causing harm the Area Multi-Agency Public Protection Panel takes responsibility for the assessment and management of risk. All involved in Lincolnshire's Public Protection work have received specialist advice in relation to the Data Protection Acts and Human Rights Act. Issues of confidentiality are paramount and information is only shared and disclosed in order to protect the public from disproportionate risk. As you will read in the individual case reports our public protection has two constant themes: a) The provision of assistance to help the offender change their potentially dangerous behaviour particularly by the use of accredited and proven behavioural change programmes, and External controls effectively monitored and supervised normally by the Police and Probation Services.

Mr B has a long history of driving offences. Offences: Most Recent - Motoring - Driving whilst disqualified - No insurance - No MOT Offending History: 22 motoring offences in the last 17 years, including 2 Drink Driving. Sentenced to a Community Rehabilitation Order (formerly called a Probation Order). Mr B was required to work through a programme designed to change his behaviour managed by a Probation Services Officer. He had done this work including homework in order to understand the risk he is creating for the public and himself and to date has not reoffended. Probation Services Officer

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N.B. The Police and Probation Services have the powers to take action with the support of the Courts and the Home Office, including imprisonment when an order's requirements are not kept even though no further crime has been committed.

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Further developments in 2002/3 During this last year in addition to the work on many individual cases, the second tier of risk assessment and management, Divisional Risk Meetings, have been fully established and are working well. The Core Panel, which deals with the highest risk cases has been strengthened with the addition of a Prison Governor and, when relevant, senior staff from the Youth Offending Service. Of particular concern are offenders with mental health needs and Lincolnshire's public protection work has greatly benefited by the appointment of a Forensic Services Manager, who also sits on the Core Panel. However, it is important to note that the majority of mentally disordered individuals do not commit offences. Protection of victims is a core feature of Lincolnshire's Public Protection work. In all cases specialist Victim Contact Officers employed by the Probation Service attempt to contact victims and assess their concerns and need for information. These officers routinely attend Multi-Agency Public Protection meetings or provide information to assist in the short and longer term protection of victims. Joint training for staff from partner organisations is regularly provided. This not only ensures that staff's knowledge is up to date but also that working together between organisations is the norm. Specialist staff from the Probation Service who routinely work with offenders assessed as presenting a likelihood of serious harm meet regularly to ensure that they are up to date on all developments related to their public protection role.
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High Risk Offenders whose risk of re-offending is made worse because of their addiction to drink and drugs now have the benefit of a "fast tracking" approach to specialist treatment services. Regular meetings have begun between the Manager of the Multi-Agency Public Protection Panel and Lincolnshire's seven Crime and Disorder partnerships. These meetings are designed to ensure that there is a common understanding and a seamless development of Public Protection throughout the county.

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2. Roles and Responsibilties
Lincolnshire Police The protection of life and property is a fundamental aim and purpose of the Police Service. Lincolnshire Police are committed to improving the quality of life in the county and making the community safer by targeting and reducing crime, disorder and anti-social behaviour in partnership with local authorities and other agencies. This includes identifying dangerous and high risk offenders, sharing information with other agencies and taking joint decisions as to any subsequent actions. The Sex Offender Act 1997 places a responsibility on the Police Service to work with other agencies in carrying out risk assessments in relation to offenders required to comply with the Act and manage that risk on a multi-agency basis. Police Officers participate in all Divisional Risk Meetings in relation to dangerous offenders. Staff with involvement with the most serious dangerous offenders attend relevant area Multi- Agency Public Protection Panels. Detective Chief Inspector Ginty acts as a core panel member at all meetings of the area MultiAgency Public Protection Panel, and has a deputy Core Panel member Detective Inspector Martin Reeve, head of Child Protection. Lincolnshire Social Services The Social Services Directorate has a wide range of duties and responsibilities to provide services for individuals and families. The services the Directorate provides encompass people of all ages, abilities and social groupings. They include services to some of the most vulnerable groups in society, including children in need and their families, older people, disabled people and their carers and the mentally disordered, both in their homes and communities and by the provision of day care and care away from home. It is the range of responsibilities for vulnerable people which is at the heart of the Directorate's role in public protection. The staff of the Social Services Directorate participate in relevant Divisional Risk Meetings in relation to dangerous offenders. Staff with involvement with the most serious dangerous offenders attend relevant area Multi-Agency Public Protection Panels. Tim Barker, Child Protection Co-ordinator, acts as a core panel member at all meetings of the area Multi-Agency Public Protection Panel as well as advisor to Lincolnshire Area Child Protection Committee. Lincolnshire Education and Cultural Services Education and Cultural Services form an integral part of the child protection network alongside other agencies which make up the Area Child Protection Committee. It plays a significant role through schools, Youth Services and the Education Welfare Service in not only child protection but also crime prevention and education for citizenship and against substance misuse. Staff who may have direct involvement with the most serious dangerous offenders attend relevant Multi-Agency Public Protection Panels. Sheridan Dodsworth, Child Protection Officer, acts as a Core Panel member at all meetings of the area Multi-Agency Public Protection Panel, and also represents Education on the Area Child Protection Committee. Lincolnshire Health Lincolnshire Health Services are committed to providing effective support and services within the community where appropriate. Assessment and risk management procedures will continue to be developed in conjunction with other relevant agencies in order to provide a co-ordinated approach to this issue. Health staff participate in relevant Divisional Risk Meetings in relation to dangerous offenders. Staff with involvement with the most serious dangerous offenders attend relevant area Multi-Agency Public Protection Panels. Louise Tomlinson, Forensic Services Manager, acts as a core panel member at all meetings of the area Multi-Agency Public Protection Panel. Lincolnshire Housing Authorities or Providers The Housing Act 1996 changed the legal framework for the allocation of social housing in England and Wales. Allocations from the waiting list or housing register are covered in Part VI of the Act and the responsibilities of local authorities or providers towards homeless people are contained in Part VII. Lincolnshire Housing Authorities or Providers are committed to ensuring offenders rehousing needs are assessed with other agencies including the Police, Probation and Social Services to identify the risk particular groups of people pose to the community. This can only be done in partnership with other agencies and includes the sharing of information and making joint decisions on proposed action in relation to dangerous and high risk offenders. The staff of Housing Authorities or Providers participate in relevant

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Divisional Risk Meetings in relation to dangerous offenders. The following managers act as core panel members at meetings of the area Multi-Agency Public Protection Panel which relate to cases from their geographical area: John Cooch (Boston Borough Council) David Cressey (East Lindsey District Council) Neil Gray (ACIS Group, Gainsborough) David Ward (City of Lincoln Council) Kim Warren (South Holland District Council) Stuart Sheardown (South Kesteven District Council) John Tudberry (North Kesteven District Council) Each represents the area from which the case originates.

In dealing with a high risk sex offender I had close support, advice and guidance on the most suitable housing location relevant to the type of risk he posed. The Multi-Agency Public Protection Panel put in place a comprehensive risk management plan which ensured that the individual would continue to be monitored and thus allowed any potential problems to be identified and dealt with immediately. David Ward Lincoln City Housing Manager

as well as the Crown Prosecution Service, Courts, Local Authorities, Health, Education, Housing and a wide range of independent and voluntary sector partners. The NPS Lincolnshire has statutory responsibilities towards the victims of the most serious violent, crimes including sexually violent crimes. The staff of NPS Lincolnshire are responsible for convening and participating in all Divisional Risk Meetings in relation to dangerous offenders. Staff with responsibility for the supervision of the most serious dangerous offenders attend relevant area Multi-Agency Public Protection Panels. Sally Lewis, Assistant Chief Probation Officer, acts as a core panel member at all meetings of the Area Multi-Agency Public Protection Panel as well as chairing the Strategic Management Group for Multi-Agency Public Protection Arrangements, and representing Probation on the Area Child Protection Committee.

National Probation Service Lincolnshire Lincolnshire Probation Service became a part of the newly formed National Probation Service on 1 April 2001. The National Probation Service (NPS) is a law enforcement agency delivering community punishments, supervising and working with offenders within the terms set out by the Court or Parole Board in ways that help offenders to reduce their re-offending and better protects the public. The National Probation Service Lincolnshire works in a highly collaborative way with Police and Prison colleagues,

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Public Protection Arrangements Who are we dealing with? 1. Registered Sex Offenders Any offender convicted or cautioned for a sex offence since September 1997, or serving a sentence of imprisonment at that time. 2. Violent and Other Sex Offenders Normally sentenced to at least 12 months custody or detained under relevant mental health legislation. 3. Other Offenders who pose a risk of serious harm to the public. N.B. Full information about relevant offenders is available in Sections 67 and 68 of the Criminal Justice and Court Services Act (2000)

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Risk Assessment A number of statistically reliable tools for the assessment of risk of re-offending have been developed in recent years including MATRIX 2000 (for sexual and violent offenders), ASSET for young offenders and OASys for all adult offenders. All these are used as required in Lincolnshire. As well as using these well tested methods staff involved are required to collect and evaluate thoroughly all information, record and carry out decisions, follow policies and procedures and to take all reasonable steps in order to achieve high quality risk assessment and management.

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3. Outline of Arrangements Made
Certain routine information is shared in relation to those individuals who are likely to pose a risk to the community. For example: ➣ Channels of communication exist in relation to all offenders released from custody who are categorised within Schedule One of the Children and Young Persons Act 1933 as posing a potential risk to children and young people. ➣ The National Probation Service Lincolnshire notifies Lincolnshire Police of all offenders released into Lincolnshire from prisons or Young Offender Institutions subject to statutory supervision on licence. ➣ The National Probation Service Lincolnshire shares information about Higher Risk offenders with Local Housing Authorities where a tenancy or application for tenancy exists. ➣ Lincolnshire Police Divisional Intelligence Units and Probation case managers routinely exchange information about risk. Offenders assessed as high risk of causing harm who are managed by the National Probation Service are assigned to Probation Officer Case Managers resourced to provide a higher level of intervention than with other offenders. The assessment of risk establishes the level of harm the offender is assessed as capable of causing and the likelihood of that harm being perpetrated. A dangerous offender is at real likelihood of causing serious harm. All offenders released from Prison into the supervision of the National Probation Service Lincolnshire must keep to strictly enforced conditions designed to protect the public. Since 1997 sex offenders, or those released from prison, including those who offend against adults and within their own family, must register their address with the police and are similarly assessed in relation to their likelihood of causing harm. Sex Offenders and Dangerous Offenders Liaison Officers (specialist police officers) are responsible for managing the registration of sex offenders and prioritise their interventions towards those offenders assessed as higher risk; that is, presenting a real likelihood of causing serious harm. Officers within the Lincolnshire Police Service and National Probation Service Lincolnshire have received specialist training in the assessment of risk and utilise nationally accredited risk assessment tools which provide an important component of the risk assessment process. All Probation staff have also been trained to use the nationally accredited Offender Assessment System (OASys) which provides a comprehensive assessment system which will be used by all Probation services and Prisons. The majority of offenders are safely managed by one organisation and only a small proportion, who present a higher risk, require a multi-agency intervention. High risk offenders are subject to review at Divisional Risk Meetings which occur every month. These meetings involve Police and Probation staff as well as staff from other agencies who may have involvement with the offender. A very small number of offenders are assessed as posing an exceptionally high risk of causing the most serious harm. In these cases a referral is made to the Multi-Agency Public Protection panel (MAPPP). The Panel is a jointly funded enterprise which has area responsibility for offenders living throughout Lincolnshire. The Panel is governed by a written protocol which includes a strict code of confidentiality. The MAPPP meets at least monthly and comprises:➣ MAPPP Manager who is a seconded Senior Probation Officer ➣ MAPPP Administrator ➣ Senior Manager from Lincolnshire Police ➣ Senior Manager from Lincolnshire Social Services Directorate ➣ Senior Manager from the National Probation Service Lincolnshire ➣ Senior Manager from the Housing Authority or Provider ➣ Senior Manager from Lincolnshire Education and Cultural Services ➣ Senior Manager from Lincolnshire Health Services ➣ Senior Manager from HMP Lincoln ➣ Senior Manager from Lincolnshire Youth Offending Team (if a young person is being discussed)

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The MAPPP is based at Police Headquarters but can meet at venues throughout Lincolnshire. In the event that an individual is considered exceptionally high risk a referral is made to any Senior Manager / Panel Member involved in the MAPPP. If that Senior Manager deems there is sufficient concern about the case then a meeting is convened by the MAPPP Manager and any staff from agencies with involvement in the case are invited to attend the meeting (in addition to the Senior Manager / Core Panel members). Information about the individual is shared within a strict code of confidentiality and a decision made by the Core Panel Members as to whether the case should be registered for the continued oversight of the MAPPP. Where a decision is made for the MAPPP to maintain oversight of the case the subject of the meeting will normally receive a written notification of this decision. In exceptional circumstances where such notification is judged likely to exacerbate the risk of harm posed or interfere with investigations, notification will not occur. Thereafter the case will be reviewed on a regular basis, normally at least three monthly. A detailed written record is made of all meetings and distributed within the code of confidentiality by which the meetings are governed. MAPPP meetings will determine actions to be taken by agencies working together to reduce and / or manage the risk(s) posed by the subject of the meeting. All action points are monitored to ensure they are carried out. In addition to interventions focussing upon the subject of the meeting, attention is paid to the protections which can be afforded potential victims.

Wherever possible and appropriate, action will be taken to engage the offender and / or the potential
Mr C was to be released from prison at the end of his sentence. He has a long history of offending including drugs related and violent behaviour. Risk has been assessed as very high to the public, his partner and her children. He was required, as a condition of his release, to live in accommodation outside of Lincolnshire and take part in a programme of behavioural change, including violence prevention, and carry out work with his partner on resolving the risk he presented. These conditions were imposed as a result of recommendations by the Probation Service. The latter work was to be done under close supervision. Additionally, a contingency plan was created to protect potential victims if Mr C failed to abide by the conditions. When he broke the conditions the contingncy plan was promptly followed by Lincolnshire Police and Probation Services and he was re-arrested before anybody was harmed. This work involved Police, Probation, Education and Domestic Violence specialists in Lincoln and the neighbouring county in which he was accommodated. Multi-Agency Public Protection Panel Manager

and prevent offending by the individual in question. Probation, Prison and Youth Offending Teams operate a number of behavioural change programmes which have a proven record of success, these include the control of violence and sex offending as well as dealing with shortcomings in the offender's cognitive (thinking) abilities. Furthermore, in cooperation with Health and Addiction Treatment Specialists, offenders who abuse drink and drugs can be offered treatment to beat their addiction when its existence increases the risk they present. When dealing with the risk presented by higher risk offenders, it is rarely sufficient to rely on personal change and this must be backed up by credible external controls. In Lincolnshire the Probation Service in co-operation with the Prison Service placed clear and enforceable controls on relevant prisoners when they are released: these can include living only in appropriate premises, being subject to curfews, restrictions on where they may work or who they may contact, or requirements to participate in risk reduction programmes. These conditions are enforceable and are applied robustly including recall to prison. Work to monitor these conditions is frequently carried out jointly between specialist Police and Probation Officers. The Police Service plays a major part in the prevention of reoffending by persons assessed as high risk through these procedures. In recent years they have appointed officers who deal, specifically with sex offenders and perpetrators of domestic violence. These officers, in particular, play a key role in Divisional Risk Meetings and the meetings (MAPPPs) which deal with the exceptionally high risk offenders.

victim(s) in determining and participating in these plans and actions. The MAPPP is rigorous in relinquishing oversight of a case where the likelihood of dangerous behaviour is assessed as being reduced or adequately managed. Actions taken to reduce the risks of re-offending and harm to the public can be summarised as internal and external to the offender. Internal refers to methods used to teach the offender to change his / her behaviour, and external refers to the systems and sanctions used by organisations such as the Police and Probation Service to control

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Mr D was referred by the Probation service because of his record and current concerns of harm to his expartner and to Social Services staff. Conditions were attached to his release licence to prohibit contact with his ex-partner and child. They were provided with rapid response alarms by the Police. The multi-agency involvement also enabled a staff protection plan to be put into place thereby considerably reducing the risk to Social Services staff and enabling them to work more effectively with the case. To date there have been no incidents against Mr D’s partner, child or Social Services staff. Tim Barker Child Protection Manager Social Services Directorate

➣ A particularly valuable tool in public protection is the Sex Offender Order which Police can obtain through Magistrates Courts. These Orders which if broken can result in imprisonment, place prohibitions on sex offenders and can include conditions not to enter parks, schools or swimming baths, or not to go to other areas or take actions which are considered likely to lead to future offending. ➣ Disclosure of the risk presented by a specific offender has been

used to target public protection. This method of public protection must be used cautiously so as not to drive offenders underground or risk serious public disorder. In Lincolnshire all requests for disclosure must be approved by an officer of Chief Constable rank, and have the mandate of the Public Protection panel. Examples of successful disclosure have included disclosure to schools and workers in particular industries or situations.

4. Strategic Management Arrangements
The operation of the Multi-Agency Public Protection Panel and the development of provisions within the Criminal Justice and Court Services Act Section 67 and Section 68 are managed by the MAPPP Strategic Management Group (formerly the MAPPP Steering Group). The Strategic Management Group has met bi-annually since the inception of the area MAPPP and is chaired by the Assistant Chief Officer (Probation). Other members of the Strategic Management Group are the Assistant Chief Constable (Police); Head of Strategic Modernisation, Children and Family Services (Social Services), Director , Pupil & Schools Services Group, Education and Cultural Services; Divisional Manager, Countywide Adult Mental Health (Lincolnshire Partnership NHS Trust), and the Director of Housing and Environmental Health (City of Lincoln Council). The MAPPP Steering Group was established by Lincolnshire in Partnership: a strategic forum for Chief Executives of statutory agencies in Lincolnshire. The MAPPP commenced as a three year pilot in March 1999 and the MAPPP Steering Group was established to report to Lincolnshire in Partnership about the project. The MAPPP Steering Group has received sixmonthly written reports which include statistical information about the work of the project. In 2002 a decision was made by the Chief Executives at Lincolnshire in Partnership to resource the MultiAgency Public Protection Panel on a permanent basis and the MAPPP Steering Group was re-named the MAPPP Strategic Management Group accordingly. Members of the Strategic Management Group are: Sally Lewis, Assistant Chief Officer, National Probation Services Lincolnshire Peter Davies, Assistant Chief Constable, Lincolnshire Police Susan Twemlow, Head of Strategic Modernisation, Children and Family Services, Social Services Directorate

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Dick Pike, Pupil & Schools Services Group, Education and Cultural Services

Neil Greenfield, Divisional Manager, Countywide Adult Mental Health, Lincolnshire Partnership NHS Trust

John Bibby, Director of Housing and Community Services (City of Lincoln Council).

5. Disclosure
In a small number of cases it is important to inform members of the public of information about offenders. National and local guidance has existed for a number of years about those who present a risk of sex offending or a risk to children. In exceptional circumstances a recommendation can be made by the MAPPP to disclose information about a dangerous individual to a third party. Such disclosure would only be considered as an element of an overall plan of risk management. The final decision about such disclosure of information rests with the Assistant Chief Constable. Before making any disclosure the police will always be fully prepared to give advice and guidance on what action is required to be taken by the person(s) receiving the information and a contact person will be identified to provide further guidance and advice as required.

Mr F has sexually abused children. His behaviour is regularly monitored by the MAPPP Panel and a Police Specialist Officer who assesses and manages the risk presented by exoffenders to ensure maximum public protection. Staff who work in and patrol places such as parks have been made aware of his description and will inform police if they see any inappropriate approaches to children.

Mr G has a history of indecent assaults in another part of the UK. He now lives in Lincolnshire and through regular monitoring and assessment a specialist Police Officer became aware that he had joined a choir. The Officer was given permission to approach the Vicar and Choirmaster of the Church to ensure that they could protect any children in their choir and inform the Police if worrying behaviour began. this will ensure action can be taken before a child is harmed.

6. Victim Work
Section 69 of the Criminal Justice and Court Services Act 2000 places a statutory duty upon the National Probation Service, Lincolnshire to contact victims and ask if they wish to be consulted about the release arrangements for violent and sexual offenders sentenced to twelve months custody or more. Victims views are sought in respect of any continued risk to them on release of an offender. This information assists in ensuring appropriate risk management to supervise offenders in the community. Specialist staff (Victim Contact Officers) are based in each of the three divisions dealing with the victims of crime for whom the organisation has statutory
Mr H has convictions of a violent and sexual nature and made threats to his victim, after his trial. She is being contacted by a Probation Service Victim Contact Officer. She will be offered alarms and other protections and Mr H will have to obey release licence conditions which help to minimise the risk he presents. This work will require close cooperation between Police and Probation Services.

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responsibility. Extensive efforts are made to locate victims and an approach is made in a manner which respects the wishes of the victim to be involved in the conduct of the case. Where a victim chooses to be consulted about the case the Victim Contact Officer will normally meet with the victim(s) at a time and place convenient to them. The majority of victims are visited within their own home. Victims are entitled to be kept informed of the offender's release arrangement, the month and

general location, and details of any licence conditions that restrict the offender's movements in ways which would impact on them. In addition help is offered by Victim Support. Victim Support is the national charity for people affected by crime. It is an independent organisation, offering a free and confidential service, whether or not a crime has been reported. Trained staff 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. Individuals can also call the Victim Support line - 0845 30 30 900 - for information and support and details of local services and other relevant organisations.

Mr J was sent to prison as a result of substantial violence to his partner over many years. She believed he would attempt to contact her on his release and harm her and her two young children. The Victim Contact Offocer was able to provide information about release dates and set up a protection plan prior to Mr J’s release. This plan involved Probation, Police and Victim Support. It provided police contact alarms, and strict release conditions. In addition, the Victim Contact Officer has provided advice which should assist the victim in claiming criminal injury compensation and receiving professional counselling. Mr J has been released and is required to live at an address outside Lincolnshire which has provided massive relief for his victim and her family.

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Figure 1.

Lincolnshire Multi-Agency Public Protection Procedures

Individual Organisations assess risk of harm

If low or medium risk manage within own organisation If high risk - manage through Divisional Risk Meeting If very high risk - refer to Multi-Agency Public Protection Panel via a Core Panel Member Risk assessment can change due to new information or improvements or decline in offender behaviour, and procedures and practice are flexible to allow for changed risk assessment.

Risk Definitions
Low Risk No significant current indicators of risk Medium Risk There are identifiable indicators of risk of harm. The offender has the potential to cause harm, but is unlikely to do so unless there is a change of circumstance. High Risk There are identifiable indicators of risk of serious harm. The potential event is not imminent but could happen at any time and the impact could be serious. Very High Risk There is imminent risk of serious harm. The potential event is more likely than not to happen imminently and the impact could be serious.

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Figure 2.

Lincolnshire Multi-Agency Public Protection Procedures Review Meeting Process

Divisional Risk Meeting and Multi-Agency Public Protection Panel Review meeting Process (at least quarterly)

Review progress against risk management strategy and share any current concerns. Re-assess Risk Level.

Possible Outcomes

Consider to be Medium/Low Risk

Considered High Risk

Considered to be Very High Risk

● Remove from register and recommend single agency action to manage risk

● Continue registration as potentially dangerous offender. ● Formulate updated protection plan. ● Set review date.

● Continue registration as dangerous offender. ● Formulate updated protection plan. ● Refer to / continue with Multi-Agency Public Protection Panel (MAPPP) ● Set review date.

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7. Statistical Information
i. The number of registered sex offenders on 31 March 2003

No. of Offenders
250

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

9

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

4

(b) The total number granted

4

(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 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

0 1

389

80

12 3 16

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vii. 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

3

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

1

c) charged with a serious sexual or violent offence

0

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Multi-Agency Public Protection Panel Members
Chair Tony Eyres MAPPP Manager MAPPPs Manager since 2001. After a career in industry qualified as a Probation Officer in 1986. Qualifications include BA (Hons), CQSW and Dip. Management Studies. A Senior Probation Officer since 1991. Work has included team management and training in Risk Assessment and Management Systems and Tools. Formerly Chair of the Professional Committee of the National Association of Probation Officers. A member of the User Development Group for the National Violent and Sexual Offender Registration System (VISOR). Sally Lewis Assistant Chief Officer National Probation Service Lincolnshire Qualified Probation Officer since 1983. Previous responsibilities include National Training Manager, Bail Information Scheme, Groupwork Training and Approved Premises Manager. Current responsibilities include Public Protection and chairing the Multi-Agency Public Protection Managment Group. Det Chief Inspector John Ginty Crime Support Unit Lincolnshire Police A Police Officer since 1975. Trained at Toronto Police College before moving to England and has worked in Surrey and Lincolnshire. Further training has included Leadership Skills at Police National Training College, Bramshill. Wide experience of Public Protection Issues.

Karen Head Head of Regimes HMP Lincoln Joined HMP Service in 1988 and seved in a number of establishments included female and high security prisons. Transferred to HMP Lincoln in November 2002 as Head of Regimes with responsibility for the provision of constructive activities such as work, education and training. Currently Head of Regimes and Resettlement with the added responsibility for the provision of Induction and PreRelease courses and the delivery of Offending Behaviour Programmes which contribute to crime reduction, public protection and which meet the needs of offenders, enabling them to successfully re-integrate into the community.

Sheridan Dodsworth Child Protection Officer Education and Cultural Services Has worked for the Education & Cultural Services which is responsible for support services to schools and the Youth Service, for the last 7 years and was appointed lead officer for child protection in 2002. Holds a BSc in Psychology and has worked in residential care homes, as an Educational Welfare Officer, and part of a Criminal Defence Team. She represents the Directorate on LACPC, Case Monitoring Group and other forums. She coordinates training for and providing support to Directorate and school colleagues in all aspects of child protection.

Tim Barker Child Protection Manager Social Services Directorate Social Worker and Manager since 1976, specialising in child care/child protection. Tim worked for 2 years as chair of child protection conferences, then worked for the NSPCC where he managed a project specialising in assessments of families in child protection, and therapeutic work with abused children. Tim has been Child Protection Manager since 1996 and advises the Area Child Protection Committee.

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David Cressey Housing Manager Enabling David has been working in the Housing field since 1994. In 1999 he moved to East Lindsey District Council where he now manages the housing transfer function and is responsible for the Council’s Housing Development Programme; the Housing Strategy which was rated equal top in the region for 2002/3, and the Housing Advice and Homelessness function which were shortlisted for Beacon status this year.

Kim Warren Housing Operational Manager Kim has worked in Housing since 1993 as Housing Officer, Senior Housing for Rutland County Council and now as Housing Operational Manager at South Holland District Council. Holds an Hons Degree in Housing Studies and is a member of the Chartered Institute of Housing. Also holds a diploma in policing Domestic Violence. Is the Chair of the Domestic Violence Forum for SHC and a member of the Crime and Disorder Partnership.

David Ward Tenancy Enforcement Manager City of LIncoln Council David has 14 years Housing Management experience. Duties include Officer responsibility for Anti-Social Behaviours and Crime and Disorder Issues and High Risk cases housed by Local Authorities. Represents Lincoln City at Public Protection meetings for High and Very High Risk cases.

Neil Gray ACIS Group, Gainsborough Neil is currently Senior Housing Officer (Needs) and is responsible for a team of four officers who manage the Housing register, allocate accommodation and provide a homelessness service. He has been in post since mid May 2003 and prior to this worked for Westminster City council where he managaed their Temporary Accommodation Team. He has worked in Housing for 13 years.

Stuart Sheardown South Kesteven DC Stuart is a member of the Institute of Housing and holds an MSc Housing from Leicester de Montfort University. He has been working in Housing for 9 years and is currently Housing Services Coordinator for South Kesteven District Council. His responsibilities are allocations and homelessness and giving housing advice on the prevention of homelessness. Stuart’s work includes multi agency partnership work.

Karen Ashworth West Area Manager Youth Offending Service Karen is a qualified social worker with a CQSW, and BA in Applied Social Studies. In 1986 she worked for the Nottingham Youth Justice Services, in the Bail Support and Court Teams. She taught DipSw at the University of Nottingham, and socialcare studies to adult returning to education. She joined Social Services as Manager of the Youth Justice Team in 1996. In 2000 she became Youth Offending Team Manager for the West Area where her work includes implementation of the West Lindsey Crime and Disorder strategy and the wider government agenda in preventing offending. She has extensive experience of dealing with young people in trouble with the law at all levels of the criminal justice system.

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John Cooch Boston Borough Council Has been employed by Boston Borough Council in the Housing Department for 25 years, and is currently Principal Support and Court Housing Officer with direct responsibility for the Housing Register, Housing Aid & Advice, Homelessness, the Homelessness Hostel, and management of the Housing Needs Team. He works closely with the Council’s Registered Social Landlord Partners in provision of housing, development of housing policies and the rehousing of applicants. He is a member of the Chartered Institute of Housing, the Boston & East Lindsey Domestic Violence and County Domestic Violence Committees, Boston Homelessness Forum, SAYL, and NACRO Project Management Committee. He is Chairman of Lincolnshire Housing Aid & Advice Benchmarking Group and Vice Chairman Lincolnshire Housing Training Group.

Louise Tomlinson Forensic Services Manager Lincolnshire Partnership NHS Trust Qualified as a first level registered mental health nurse in 1989 and worked in acute psychiatric inpatients units, including managment of a low secure intensive psychiatric unit in Birmingham. In 1992 at HMP Winson Green was one of the first nurses to directly provide mental health care to prisoners. In 1995 moved into psychiatric nursing providing court diversion and diversion at point of arrest services; which led to joint initiatives to address needs of mentally disordered offenders. Developed a mental health awareness training programme for police and set up joint protocols with Probation to ensure information sharing to reduce risk. Has managed a Regional Forensic Secure Unit for Learning Disabilities specialising in treatment programmes for offenders and project managed the implemention of the 2000 National Service Framework for Mental Health. Appointed Forensic Service Manager in 2002 including management of Francis Willis Unit and inreach services at HMP Lincoln. Has developmental lead for community forensic services and strategies to meet the needs of people with personality disorder.

John Tudberry North Kesteven DC

No information avaiable at time of going to press.

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Responsible Authority Contacts
Lincolnshire Probation Area Address Phone

Sally Lewis Assistant Chief Officer sally.lewis@lincolnshire.probation.gsx.gov.uk

National Probation Service Lincolnshire 7 Lindum Terrace Lincoln LN2 5RP P O Box 999 Nettleham Lincoln LN5 7PH

01522 520776

Tony Eyres MAPPP Manager tony.eyres@lincolnshire.probation.gsx.gov.uk

01522 558668

Lincolnshire Police

Address

Phone

Assistant Chief Constable Peter Davies

P O Box 999 Nettleham Lincoln LN5 7PH P O Box 999 Nettleham Lincoln LN5 7PH P O Box 999 Nettleham Lincoln LN5 7PH

01522 532222

Det Chief Insp. John Ginty

01522 532222

Det Chief Insp Dave Lynch

01522 532222

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