Wiltshire Chief Officer: Diana Fulbrook

MAAPA Annual Report 2003

1. 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 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

2. 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 cooperate’ on a wide range of organisations including local health authorities and trusts; housing authorities and registered social landlords; social services departments; Jobcentres; Youth Offending Teams; and local education authorities. In addition, the Prison Service will join the police and probation services and become part of the MAPPA ‘Responsible Authority’. Supporting and co-ordinating the development of the MAPPA throughout the 42 Areas of England and Wales, is the National Probation Directorate’s Public Protection Unit (PPU). This Unit acts as a central point for advice and, increasingly, involvement in the management of difficult cases. These include, for example, UK citizens who have committed serious offences abroad and return to this country without anywhere to live. The Unit is also able to provide financial support when the risk management plans make exceptional demands upon local resources. Involving the public MAPPA developments in the next 18 months will also include the appointment by the Home Secretary of two ‘lay advisers’ to each Area. The eight Areas of England and Wales which have been piloting these arrangements since January (Cumbria, Greater Manchester, Durham, South Wales, Dorset, Hampshire, Surrey and West Midlands) report that they add real value. Lay advisers will contribute to the review and monitoring of the MAPPA which is undertaken by each Area’s Strategic Management Board – the work of which you can read more in this report. The purpose of appointing ‘lay advisers’ is to ensure that communities understand more of what is done to protect them and that those involved professionally with the MAPPA are aware of the views of the community. The lay advisers will not ‘represent’ the community in the way, for example, that local councillors do, nor will they be involved in operational decisionmaking. And, given the sensitivity of much of what the MAPPA does. especially with the few offenders who pose a very high risk of serious harm to the public, it is not practicable for the general public to be involved. Lay advisers will, however, ensure an appropriate and a practical level of community involvement. MAPPA Offenders This year the annual report provides a more detailed breakdown of the number of sexual and violent offenders who are covered by the MAPPA in your Area. As last year, the figures include the number of registered sex offenders. Because sex offender registration is for a minimum of 5 years (and generally for much longer) the figures are cumulative. This is why they have increased – by 16 per cent in England and Wales. Only a very small proportion (about six per cent throughout England and Wales) are considered to pose such a high risk or management difficulty that they are referred to the highest level of the MAPPA – the Multi-Agency Public Protection Panels (the MAPPP). Figures alone do not, of course, tell the whole story. The anonymised case studies illustrate the practical work of the MAPPA, and demonstrate the preventive action which can be taken. Prior to the MAPPA, action of this kind was mainly taken by one agency alone, with the effect that on occasion offenders’ behaviour which might have triggered preventative action went unnoticed. The multi-agency approach of the MAPPA helps ensure that if an offender does breach the condition of the licence under which they were released from prison or a court order prohibiting certain activities, then action to enforce the condition or order and protect the public can be taken more swiftly.

If you are interested in reading the reports of other Areas, they will be published on the National Probation

Service’s website 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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3. What is MAPPA?
MAPPA stands for Multi-Agency Public Protection Arrangements. It is the means by which agencies work together to protect the public from offenders who pose a risk of harm to the public. Local arrangements in Wiltshire began in response to the Sex Offenders Act 1997 when the police and probation services set up joint arrangements for the assessment and management of registered sex offenders and other offenders and persons assessed as potentially posing significant harm to the public. In recognition that better public protection can only be achieved through collaborative arrangements, the Police and Probation Service secured the commitment and active involvement of all relevant statutory agencies and a number of voluntary organisations whose responsibilities can contribute substantially towards effective public protection. Disclosure of information either between agencies or indeed between agencies and individuals and the public inevitably raises questions of human rights and civil liberties. The principle at work here, however, is one of public protection superseding the rights of individuals. Decisions whether and how to disclose information are balanced according to these two imperatives Measures to protect the public fall broadly into three approaches: those which are designed to directly act on or treat the offender, so that they will be less inclined or able to commit offences; those which alter the offenders environment and circumstances in a way which will reduce the likelihood of further offences; and those which are designed to control the offender. Examples of measures which treat or contribute to the treatment of offenders include: • Use of a new comprehensive offender assessment tool (OASys) which identifies both the risk that an individual poses, the likelihood of further conviction and the factors which have contributed to their offending behaviour A thinking skills programme designed to address offending related factors such as: an inability to appreciate the impact their behaviour has on victims; poor problem solving skills; an inability to relate consequences to actions; acting without thinking For violent offenders a programme designed to: increase skills in dealing with social situations where violence is most commonly associated, such as handling an argument; teach anger control techniques and; improve the likelihood of offenders making non offending choices in potentially violent situations A programme which aims to prevent further offences committed by sex offenders through sensitising them to: the impact which their offending has on victims; the circumstances where they are most likely to offend; the likelihood of being caught and the consequences Other programmes including those designed to tackle domestic violence, and those whose offences are drug related. Psychiatric treatment Depending on the assessment, probation supervision designed to tackle a whole range of risk and offending behaviour factors such as: sensitising the offender to the circumstances when they are most likely to commit offences (time, place, with whom use of alcohol, emotional state etc); increasing pro-social attitudes at the expense of antisocial attitudes; controlling the use of alcohol; improving the proportion of non offending friends and acquaintances and: increasing willingness to accept responsibility for offending behaviour and the impact on victims, their families and themselves.

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Measures which alter the offender’s environment and circumstances in a way which will reduce the likelihood of further offences include: • • • • • Ensuing appropriate accommodation Improving literacy Providing help with securing and maintaining work Improving budgeting skills Improving key relationships

Measures designed to control the offender include: • • Varying degrees of police surveillance Enforced requirements for an offender to keep to strict reporting schedules

Orders which prohibit an offender from: travelling to certain areas; entering certain premises, such as public houses; being out of their home at certain times (curfew orders); approaching certain individuals. On occasion such restrictions

are enforced via electronic tagging and licence conditions (in respect of offenders on release from custody) which if breached can result in the offender being immediately recalled to prison.

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4. Which Organisations are Involved and What do they Contribute?
It will be seen from the above range of activities that keeping the community safe from the potential for some individuals to commit offences is a complex matter. To be effective it therefore requires the involvement and co-operation of a range of statutory and on occassions voluntary organisations. Wiltshire Constabulary The Constabulary has worked with partner agencies on a formal basis for a number of years with the primary objective of “Keeping Wiltshire Safe”. The responsibility of the Constabulary includes working with partner agencies and voluntary groups to produce sound working practices which aim to minimise the risk posed to the public from Sex and Dangerous Offenders. In conjunction with other departments around the Force area the Constabulary conducts and manages the registration of offenders, risk assessments, and the administrative processes which surround the information sharing procedures between organisations. In the course of this work we explore opportunities to link in with other procedures which deal in areas such as Child Protection and Vulnerability to minimise the risk of harm. Finally, the overriding responsibility is to enforce the legislation and to prevent crime throughout the Force area. Wiltshire Probation Area Wiltshire Probation Area is one of 42 which make up the National Probation Service. It is a law enforcement agency delivering and enforcing community punishments, supervising and working with offenders within the terms set by the Court or Parole Board in ways that help offenders to reduce their offending and better protect the public and working with victims. In recognition that better protection can only be achieved through collaborative arrangements the Probation Service is committed to working closely with colleagues from other criminal justice agencies and statutory agencies and a wide range of independent and voluntary sector partners. Swindon Social Services Swindon Social Services has a wide range of statutory responsibilities, including the provision of services, which sustains and contributes to the quality of life for individuals and the communities across the Borough. The duties and responsibilities of Social Services include providing Wiltshire County Council Department for Children, Education & Libraries The Department for Children, Education and Libraries includes children's social services and services to children with special educational needs. This includes services to children who are in need services to vulnerable people whether they be children in need, older people, disabled people or those with mental health needs. All services promote safety and welfare, which balances the needs and wishes of individuals with the safety of the wider community. Swindon now has a Vulnerable Persons Committee (VPC), which has replaced the ACPC (Area Child Protection Committee) and involves all agencies working together to protect children and vulnerable adults from significant harm and abuse and to prevent such incidences of abuse occurring. All relevant member agencies have signed up to supporting the aims and objectives of the VPC and have given the commitment to working together to tackle the incidence of domestic violence and the management of risk and the protection of the public.

of protection. In conjunction with other agencies working with vulnerable children, and working through the Wiltshire Area Child Protection Committee, there is a strong commitment to working together with other agencies in the management of risk and the protection of the public Wiltshire County Council Department of Adult and Community Services Adult care services are provided to older people, disabled people and those with mental health needs. The Department of Adult and Community Services is also responsible for the Council's contribution to community safety and works through partnerships to support vulnerable groups in the community. North Wiltshire District Council North Wiltshire District Council is committed to an inter agency approach in all aspects of its work. Within the area of housing, officers work in close contact with Social Services, Probation and Housing Providers to ensure a holistic approach is taken in respect of meeting the housing and support needs of high-risk offenders and other vulnerable persons.

Avon and Wiltshire Mental Health Partnership N.H.S. Trust (Wiltshire Part) The Wiltshire part of the Partnership Trust is an integrated mental health and social care provider which was established in April 2001, bringing together three health trusts and two social services departments. The Trust provides a full range of mental health services, with risk assessment and management being an integral part of work with service users. Both Social Services and Mental Health workers have been working closely with criminal justice agencies over recent years and have been fully involved in the development of the MAPPA. Wiltshire Youth Offending Team Established in May 1999, Wiltshire Youth Offending Team is a multiagency partnership that provides and co-ordinates services to victims and to young offenders and their families, with the overall aim of preventing offending and reoffending by children and young people. Through comprehensive assessment and intervention they seek to enhance protective factors and tackle those factors associated with increased risk. The YOT is founded on the principle of multiagency co-operation as the best way to achieve outcomes for young people and communities.

Swindon Youth Offending Team Swindon Youth Offending Team was formed, in partnership with the Police, National Probation Service, Social Services, Health and Education Departments, in 1999 to prevent offending and re-offending by young people. The assessment of each young person using the Asset structured assessment tool, includes an assessment of risk. Young people who are assessed as ‘high risk’ are managed in accordance with the RAMP/MAPPA protocol. HMP Erlestoke HMP Erlestoke is a category ‘C’ adult male prison with a current prisoner population of 330. However, due to the increase nationally of the prison population, Erlestoke is likely to expand to accommodate approximately 100 further prisoners. We work closely with other agencies in order to reduce the risk of further offending, both whilst the prisoner is in custody and also on release. We work with other agencies on MAPPA, and are fully committed to the ethos of multi-agency working and intend to participate with our partners in protecting the public, both adults and children.

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5. How Does MAPPA Work?
There is an integrated system of mechanisms and structures within Swindon and Wiltshire aimed at assessing the risks posed by potentially dangerous offenders, including all sex offenders, and any violent offenders who serve sentences of 12 months or more. This involves all relevant agencies sharing information and working closely together in order to protect the public whenever this appears to be necessary. This is facilitated via a joint protocol which sets out the agreed arrangements that agencies are required to sign and adhere to. All registered sex offenders are initially assessed by the Police Force Intelligence Bureau using the Matrix 2000 assessment tool. This process involves visiting offenders at their homes and liasing with other professionals, such as Probation Officers and Social Workers. Violent offenders and sex offenders subject to licence or community supervision are assessed by the probation service using the Offender Assessment System (OASys). This information is then considered by a panel meeting fortnightly at police HQ, with representatives from the police and probation service and any other agency deemed appropriate in a particular case. The Risk Assessment and Management Panel (RAMP) is responsible for agreeing the level and nature of risk posed in each case and based on this assessment deciding on one of the following options: • • • • • No action – revew date set. Single agency action – review date set. Further assessment required (i.e. home visit) – new date set. Referral to Multi –Agency Public Protection Panel (MAPPP). De-registration. • approach or have contact with named individuals or groups. Requirements to undergo various forms of treatment including offending behaviour programmes and psychiatric treatment. Measures to secure appropriate housing. Disclosure to specific individuals or groups. Conduct of the meetings is guided by a formal agenda and confidential written minutes produced which clearly outline: the risk management plan, aimed at reducing, containing or managing the risks posed by subjects considered by the Panel; responsibilities; timescales and; the review process. As well as their respective experience and expertise, each Panel Member also has the authority to make an initial commitment of resources to the risk management plan. MAPPP cases are regularly reviewed in order to assess progress in implementing the agreed risk management plan and to take account of changed circumstances. Cases which pose an immediate and serious threat can be fast tracked directly from the registration stage to the MAPPP. The following are examples of recent MAPPA cases: Through the MAPPA process the police were able to pass on information to the probation service concerning behaviour which although not constituting an

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MAPPP meetings are scheduled to operate in three locations in the county, each meeting once a fortnight, in either police or probation service premises. In addition to the police and probation service, the standing membership includes Health purchasers and providers, Social Services and Local Authority Housing. Other relevant parties are invited on a case by case basis. The Panel agrees a risk assessment which clearly sets out the risk profile and factors involved in the case, including the particular circumstances where the individual poses the greatest risk. A formal risk management plan is then agreed designed to manage and reduce the risk factors. A typical risk management plan might include some or all of the following: • • • Various degress of police surveillance. Reporting schedules. Specific licence or Community Rehabilitation Order conditions, for instance: stipulating where an offender must live; exclusion from specific geographical areas or premises; electronic tagging; imposition of a curfew or; not to

offence in itself, was known to be a pre-curser to previous serious offences committed by this person. This resulted in a recommendation to the sentence enforcement unit that this man be recalled to prison, a course of action which was followed within the space of a few hours. The MAPPA process was then used to support the police in obtaining a Sex Offender Order resulting in him having to register with the police on release from prison and providing various powers to ensure future good conduct.

An offender convicted of a violent offence was assessed by the probation service as being medium risk of harm and low risk of re-offending. He had a suitable release address, the benefit of a supportive family and moderately good work prospects. He also had a positive attitude towards probation supervision and a willingness to work on factors which contributed to his offending. At the Risk Assessment and management Panel (RAMP) it was therefore agreed that this was a case which could be handled by the probation service on a single agency basis.

Cases over the past year involving disclosure include disclosure to: • • the employing school of a man convicted of internet child pornography the Singapore Authorities on a registered sex offender employed by them the partner of a registered sex offender the parents of a man convicted of serious violent offences

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6. How is MAPPA Managed and Regulated?
A Board comprising of senior managers from the signatory agencies has responsibility for developing and overseeing MAPPA. The Board meets quarterly and its primary aim is to 'keep the arrangements established by it under review with a view to monitoring their effectiveness and making any changes to them that appear necessary or expedient'. In pursuant of this aim the Board's activities, recently articulated by the Secretary of State, include: • • Monitoring and evaluating the operation of the MAPPA Establishing connections which support effective operational work with other public protection arrangements, such as Child Protection Committees, local Crime and Disorder • • Partnerships and Local Criminal Justice Boards Preparing and publishing an annual report Planning the longer-term development of MAPPA in the light of regular reviews of the arrangements and with respect to legislative and wider criminal justice changes Identifying and planning how to meet common training and developmental needs of those working in the MAPPA • Strengthening links with Area Child Protection Committees and Vulnerable Persons Committees Considering and responding to the impact of relevant new legislation, guidance and proposals Strengthening the Board by ensuring that the right organisations are represented Reviewing funding arrangements Contributing to the development of a regional MAPPA strategy Planning for the introduction of a national computer database

Over the past year the work of the Board has focused on: • Ensuring that the new arrangements are working well and making changes where required Reviewing the arrangements in light of new guidance issued by the Secretary of State

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7. How are Victims Protected?
The safety of victims is a major preoccupation of MAPPA. Their needs are always carefully considered and measures to ensure their protection built into individual offender's risk management plans. This includes disclosure when this is considered to be in the interests of victim protection. In addition to the above Section 69 of the Criminal Justice and Court Services Act 2000 places a statutory duty upon the National Probation Service, Wiltshire to contact victims and ask if they wish to be consulted about the release arrangements for violent and sexual offenders sentenced to 12 months custody or more. Trained specialist Victim Liaison Officers undertake victim contact work within the Wiltshire Area. Victim’s addresses are provided by the police. Within the requirements of the Act, a central principle in Wiltshire Probation Area’s work with victims is to be sensitive, responsive and flexible to a victim’s desire to have contact (or not) and the nature and means of facilitating that contact. As a first step, Victim Support is contracted to establish whether or not they have had any previous, or ongoing contact with the victim. If this is the case, a Standard Initial Contact Letter (offering a specific appointment) is forwarded on to the victim by Victim Support. The preferred model for contact with victims is joint working between Probation Service and Victim Support staff. This model is supported by a Partnership contract between Victim Support Wiltshire and Wiltshire Probation Area. Contact may be by way of a home visit, office visit or other agreed venue and will be largely informed by any knowledge or insights gained from other agencies contact with the victim and through telephone contact confirming the appointment. Victims are entitled to be kept informed of the offender’s release arrangements, the month and general location, and details of any licence conditions that restrict the offenders movements in ways which could impact on them.

8. Statistical Information

Number of Offenders

1. Number of Registered Sex Offenders

255

2. 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

13

3. Sex Offender Orders:

Applied for Granted

5 5

4. Restraining Orders

3

5. Number of Violent and other Sex Offenders considered under MAPPA

214

6. 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

28

7. Number of Offenders by category dealt with by MAPPP:

Registered Sex Offenders Violent and other Sex Offenders Other Offenders

36 21 28

8. Of cases dealt with by MAPP number who were:

Returned to Custody for Breach of Licence Returned for Breach of Restraining Order or Sex Offender Order Charged with a Serious Sexual or Violent Offence

9 1 1

Contacts
Wiltshire Probation Area Assistant Chief Officer Address Rothermere Bythesea Road TROWBRIDGE Wiltshire BA14 8JQ Phone 01225 781950

Wiltshire Police Detective Inspector: Force Intelligence Bureau

Address Wiltshire Constabulary London Road DEVIZES Wiltshire SN10 2DN

Phone 01380 722341

Victim Support Area Manager

Address Victim Support Wiltshire 31a The Brittox DEVIZES Wiltshire SN10 1AJ

Phone 01380 729476