County Durham

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 [2002/2003] 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 the 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 Area.

The National Picture
This section of the report draws attention to the 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 Court Services Act [2000] formalised that relationship and built on the existing experience by requiring the Police and Probation Services to establish arrangements [the MAPPA] for assessing and managing the risks posed by sexual and violent offenders. The Act also required the Responsible Authority to publish an annual report on the operation of those arrangements. This report, covering April 2002 to March 2003, is the second annual report. The Importance of Partnership Key to the development of the MAPPA in the past year has been the closer involvement of other agencies, such as Housing, Health and Social Services, working alongside Police and Probation. The truly multi agency nature of the MAPPA and the collaboration which underpins it is to be strengthened further by the Criminal Justice Bill. The Bill will place a “duty to co-operate” on a wide range of organisations including local Health Authorities and Trusts; Housing Authorities and Registered Social Landlords; Social Services Departments; Jobcentres; Youth Offending Teams; and local Education Authorities. In addition, the Prison Service will join the Police and Probation Services and become part of the MAPPA “Responsible Authority”. Supporting and co-ordinating the development of the MAPPA throughout the 42 Areas of England and Wales, is the National

Probation Directorate’s Public Protection Unit [PPU]. This Unit acts as a central point for advice and, increasingly, involvement in the management of difficult cases. These include, for example, UK citizens who have committed serious offences abroad and return to this country without anywhere to live. The Unit is also able to provide financial support when the risk management plans make exceptional demands upon local resources. Involving the Public MAPPA developments in the next 18 months will also include the appointment by the Home Secretary of two “Lay Advisers” to each Area. The eight Areas of England and Wales which have been piloting these arrangements since January [Cumbria, Greater Manchester, Durham, South Wales, Dorset, Hampshire, Surrey and West Midlands] report that they add real value. Lay Advisers will contribute to the review and monitoring of the MAPPA which is undertaken by each Area’s Strategic Management Board – the work of which you can read more in this report. The purpose of appointing “Lay Advisers” is to ensure that communities understand more of what is done to protect them and that those involved professionally with the MAPPA are aware of the views of the community. The Lay Advisers will not “represent” the community in the way, for example, that local councillors do, nor will they be involved in operational decisionmaking. And, given the sensitivity of much of what 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% in England and Wales. Only a very small proportion [about 6% 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 preventative 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 are 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.

1. Area Summary
This second MAPPA Annual Report for County Durham and Darlington aims to update and inform local communities about the ongoing and developing Inter Agency Work that operates in this area to ensure that individuals who pose a risk of serious harm are jointly managed within local Multi Agency Public Protection Arrangements [MAPPA]. The first Annual Report described at length our structure. The intention of this report is to summarise that information, but provide more examples of how together both statutory agencies and individuals in the community assist making County Durham and Darlington safer places to live. The local strategy is fully supported by the following agencies: National Probation Service County Durham Durham Constabulary County Durham and Darlington Social Services Department County Durham and Darlington Housing Departments County Durham and Darlington Health Authority, NHS Trusts and Primary Care Organisations The Prison Service Crown Prosecution Service Youth Offending Services – County Durham Youth Offending Service and Darlington Youth Offending Service Education – County Durham and Darlington Victim Support

Origins of Multi Agency Public Protection Arrangements in County Durham and Darlington
In April 1997, County Durham and Darlington Police, Probation, Prisons, Housing, Health and Social Services agreed a joint approach in dealing with Sex Offenders and Dangerous Persons in the community. A partnership agreement was put in place prior to the introduction of the Sex Offender legislation, which came into force in September of that year. In November 1999, the establishment of a unique Public Protection Unit, comprising Police and Probation personnel within one team, strengthened the role of Public Protection in County Durham and Darlington. This also improved the level of inter agency co-operation within the area. The County Durham and Darlington Public Protection Unit is now supported by a Public Protection Strategy Group and Steering Group. These body’s ensure that all agencies are involved in the development and oversight of the Unit’s work. This uniqueness resulted in national recognition and County Durham and Darlington is now to be a pilot area for a new national database VISOR [Violent Offender and Sex Offender Register] that will considerably aid the tracking of these people in the community. The local initiatives described above resulted in significant work being undertaken prior to the legislative duty placed on Police and Probation Services by the Criminal Justice and Court Services Act 2000. This Act required the assessment and management of dangerous offenders and the convening of Multi Agency Public Protection Panels [MAPPP’s] to manage those people considered to pose a risk of serious harm to the public. Our local strategy fully meets the legislative duty placed on the Police and Probation Services. Beyond these expectations, we also have arrangements in place for convening other Public Protection Meetings [PPM’s]. These manage those people whose level of risk falls outside that defined in the Criminal Justice and Court Services Act 2000 but which, if realised, would cause harm to the public. The strategy is underpinned by the creation of productive and manageable partnerships with key local agencies, which make a significant contribution to the process.

MAPPA Areas of Responsibility
The following are the key areas of MAPPA responsibility: a) The joint assessment and management of Sex Offenders who are required to register under the Sex Offender Act 1997. b) The oversight of all other serious violent offenders and other sex offenders who are not required to register under the 1997 Act [the definition used related to offenders who receive a custodial sentence of 12 months or more for such an offence]. This links directly to responsibilities the National Probation Service has to victims of serious sexual and violent offenders. c) The co-ordination of Multi Agency Public Protection Panel’s [this enables any agency to bring concerns about an offender believed to pose a risk of serious harm to the community, to the Public Protection Unit and request a Multi Agency Public Protection Panel Meeting]. offending behaviour, in a rigorous and accountable way. This can involve accessing specialist mental health provision, specialist housing provision, etc. We share and use the best information available to us – we need to remember that cases such as Safeguarding Children emphasise the need for agencies to share information, and use the best assessment tools available. We remember that the rights of children are paramount and that frequently Child Protection Procedures are the priority and MAPPA has to link to those procedures. We provide the best advice and support to victims, through requirements under the Victims

Principles of MAPPA
It is important in managing dangerousness that we remember some important principles: We operate within existing legislation and remember that Human Rights legislation impacts on all individuals including offenders. We monitor known offenders, based on individual risk assessments, and enforce Orders when required promptly. We provide accredited treatment programmes both in Prisons and in the community to address

Charter, through links to Victim Support, the specialist service for victims, and through physical security measures if required. We review out inter agency arrangements and links with the community to ensure we are providing the best standards within legislative requirements and the resources available.

Significant Events in the Last Year
1. We believe that we are the first Area in the Country to have a full time Senior Youth Offending Team Officer seconded to work within the PPU to enable the development of best practice for the management of young perpetrators in County Durham. The recognition of alternative approaches to young people is identified and by sharing skills we hope this will evolve utilising the best knowledge available. 2. We appointed Lay Members to our Public Protection Strategy Group for County Durham and Darlington in the first phase of the national pilot to improve links with local communities. 3. Links with ACPC [Child Protection] have been strengthened through a formal protocol building bridges between Public Protection and Child Protection. 4. We have installed equipment to pilot the Violent Offender and Sex Offender Register [VISOR] and have an Interim Programme running which has all Registered Sex Offenders details listed. Following the pilot period this is intended to be linked to all parts of the Country and enable selected Police and Probation personnel by way of a National database to quickly locate details about all Multi Agency Public Protection Arrangement [MAPPA] offenders.

5. Education Departments in Durham and Darlington are now members of the Public Protection Strategy Group. 6. Victim Support is now a member of the Public Protection Strategy Group. 7. Audit of the work of the Public Protection Unit found that it is meeting all requirements. 8. We have worked with Darlington’s Scrutiny Committee for Public Protection to assist elected members review this area of work. 9. We have implemented N-SOGP [Northumbria Sex Offender Group Programme], which is an accredited treatment programme for sex offenders. This operates at 4 levels. i. Assessment and Psychometric Testing – by Police, Probation and Psychologists using approved assessment tools. Full Treatment Programme – runs 6 hour sessions over a 15 month period with interim contacts and reviews.

MAPPP Referral
Referrals to a MAPPP should only be made when the process is judged as being an aid to securing protection of the public. Only those cases in which the high risk of harm is imminent and can be effectively managed on an inter agency basis should be referred. This enables the speedy allocation of appropriate resources if immediate action is required to reduce risk. The MAPPP can authorise disclosure about dangerous offenders to members of the community. County Durham and Darlington also operate a second tier level of inter agency meeting. Public Protection Meetings [PPMs], enable a multi agency approach to managing offenders who pose a High Risk of Serious Harm, but who did not meet the MAPPP criteria. It is credit to the people who established this locally that this practice is now included for all areas to implement in the new National MAPPA Guidance published in March 2003 and confirms how the County Durham and Darlington Public Protection Unit has informed National good practice.


iii. Relapse Prevention Programme – for offenders who have completed a full programme in Prison or in the community. iv. Short Programme – for people who do not have a Court Order or Licence long enough for a full programme to run.


2. Roles and Responsibilities
The new MAPPA Guidance places increased expectations on a number of statutory agencies and we are currently examining the implications of implementing this. However existing roles and responsibilities have been as follows: 1. Police provide 1 Police Sergeant and 3 Police Constables [1 temporary] to work within PPU. There is Senior Manager representation at Steering Group and Strategy Group level. In addition Divisional support for all PPM and MAPPP meetings, press liaison, and Prison liaison exists. 2. Probation provide 1 Manager and 3 full time staff to the PPU plus Senior Management oversight, Chairing of MAPPP’s, accommodation and administrative support for PPU and MAPPA work, as well as 1 Victim Liaison Officer and Manager for MAPPA work, and Case Managers for prisoners and violent offenders. There is also Senior Management representation at Steering Group and Strategy Group level. 3. County Durham Youth Offending Scheme [YOS] provides 1 full time Senior YOS worker within the Public Protection Unit [PPU] and Senior Management oversight regarding Steering Group and Public Protection Strategy Group [PPSG]. In addition links to Victim Liaison Officer regarding MAPPA offenders. 4. Darlington YOS are members of Public Protection Steering Group [PPSG] and have a nominal link officer to PPU. They attend PPM’s and MAPPP’s. 5. Social Services Department in County Durham and Darlington provide Management input to MAPPP’s and PPM’s and are members of PPSG and engage in development work with Area Child Protection Committee and MAPPA links. 6. Prisons provide links through a Police Officer, attendees to MAPPP’s and PPM’s and links to internal Prison MAPPA processes. This provides critical intelligence. They also are represented at PPSG level. 7. The Housing Departments have 2 representatives on PPSG and link to MAPPP’s and PPM’s as required. The development of Supporting People has identified areas for further clarification and development. 8. Victim Support are represented on PPSG and also have links with Police and Victim Liaison Officer in the direct and specialist support of victims. 9. Education as new members on PPSG have offered valuable input in identifying problems with young offenders placed in Schools and the management issues that arise. 10. Health are represented at Primary Care Trust [PCT] and Trust level on PPSG, and this year has been one of transition for them. A significant input is the work of the 2 MDO nurses who provide regular assessments and input to PPM’s and MAPPP’s and provide valuable expertise. 11. Crown Prosecution Services provides consultancy advice at PPSG level.

MAPPA In Practice
This section aims to demonstrate what all the meetings and often unseen work means for our communities in practice. It therefore provides examples of situations addressed during the last year. 1. “I think there is a sex offender in my ward who is causing problems – what can I do about it?” This enquiry came through a Councillor, through Social Services Department [other calls had come direct from the public]. Providing people are prepared to provide the details of their concerns we will respond immediately. The information was sufficient for us to check on certain individuals known to be in that area and confirm whether any changes to their circumstances could increase risk. In this case they had not – but we were glad of the call. We would not provide direct feedback to the referrer but could confirm that the matter had been properly addressed.

2. “I need to know if there is a paedophile living in the neighbourhood” This is a well publicised issue, and an understandable anxiety. It is important for communities to know that when an individual is at risk then they are told. For example, an offender from another area bought a house in County Durham and was visiting it without the agreement of his supervising officer. He was immediately challenged and this resulted in the house being sold. However the immediate neighbours who had children were advised. Their responsible approach to working with the Police improved monitoring of others safety, and avoided major panic. In reality the most dangerous offenders are the ones we do not know. Public concern can create situations where offenders disappear or need to be relocated at short notice. If this occurs the risk of harm increases for everyone. It also takes precious resources away from planned interventions. 3. “How can you watch them all the time?” The honest answer is we can’t and that is why we have to use the best risk assessment available and work together with others. All MAPPA offenders are assessed regarding the level of danger they pose at a given time and all of these assessments are reviewed. Police and Probation staff in County Durham and Darlington are trained to use appropriate tools and resources are allocated on the basis of the resulting judgements. Priority is given to those who are assessed as being of highest risk.

An offender who was considered high risk had additional Police Surveillance provided to establish more details of his movements and associates. The offender, conscious of local monitoring, attempted to go to another area to offend, and was quickly apprehended before serious harm occurred. Excellent co-operation between Police Areas subsequently meant the offender was apprehended and detained attempting to leave the country. 4. “All the support goes to the offender – what about the victim?” Our Victim Liaison Officer attends all MAPPP meetings where there are victim concerns and in the last year we have frequently: Added prison licence conditions that mean the offender will be returned to custody if contact with the victim is made [in one situation a MAPPP offender was released from Prison at 8.30am and was back in Prison by 5.30pm as he had not complied with one condition on his licence]. Provided alarms, improved locks, and put in place contact measures to provide reassurance. 5. “Nearly all sex offenders live in Darlington” and “There are 5 sex offenders in our village”. In 2002/2003 the PPU heard such comments as; “nearly all sex offenders live in Darlington”, and “there are 5 sex offenders in our village”. Fear and/or misinformation drive these comments. All of us are members of the community – are all likely to have sex offenders

living in our area. To manage known offenders we ensure that where possible there are no vulnerable children or adults living in close proximity. However we can all contribute to protecting our community. These simple things can help: i. Do not let people you don’t know look after your children. Ensure you know where your children are and that they know the importance of not getting into conversations with strangers. Encourage openness with children and young people you know. It is “secret conversations” that help sex offenders get close to children and win their trust. If you are suspicious ask someone to check it out – you can speak to Police, Social Services, Councillors, PPU and any other agency connected to MAPPA. Your concerns will be investigated. Please remember the majority of sexual offending against children is committed by people known to the children





6. “What does the Lay Person do?” Lay Members were appointed in a voluntary capacity. This role is still evolving – here is a flavour of the local member’s initial response. “My belief that ordinary members of the public can and should make a contribution to the

strategic direction of public protection activities led to my application to be a Lay Member on the Strategic Management Board. Having now been in the role for seven months, that belief has been strengthened. I was encouraged by the way I was welcomed by all the major agencies involved in protecting the public, and by their assurances of readily available advice and support. The formal induction and training I have undertaken was thorough and informative, as have been the opportunities to observe Public Protection procedures at first hand. This has enabled me to see how decisions are made and implemented for public protection. My experience so far has confirmed that as someone with no professional attachment to any of the agencies involved. I can challenge and enhance their professional expertise by helping

to keep them in touch with ordinary citizens. This can help prevent professional agencies becoming too “inward looking” and help ensure that they are as interested in, and responsive to, the concerns of the public as they are about their own organisational legitimacy. Since my appointment, I have gained insight into challenges of dealing effectively with those people who may pose a risk to public safety. Although these are few in number, it is important that everything possible is done to protect victims from further harm and reduce the possibility of harm to others. Effective management and supervision of sex offenders in the community, for example, is of vital importance. By enhancing public understanding of sexual offending, we can have more confidence in accepting some responsibility for our own safety. I am encouraged by the greater

openness and public participation afforded by the inclusion of lay people in the decision-making processes involved in public protection. By working with the professional agencies, we have the potential to help make our community a safer place in which to live”. “If you would like to let me know your comments or views – either from a community group or as an individual – I’d be happy to receive them” Contact address [in writing only] to : Lay Member, National Probation Service County Durham, Forest House, Aykley Heads Business Centre, Durham DH1 5TS.


3. The Strategic Management of MAPPA
In County Durham we have had two levels of Management oversight. 1. The Public Protection Strategy Group meets quarterly and addresses issues of concern across agencies and tracks national developments. The role of the group is still evolving with the emphasis this year being on integrating learning into policies and sharing practice across agencies. The Public Protection Steering Group reviews all re-offending and practice issues. It also ensures that the recommendations of audits and inspections are implemented.


4. Victim Work
Section 69 of the Criminal Justice and Court Services Act 2000 places a duty on the Probation Service to provide a service to victims of serious sexual and violent offenders. In respect of young offenders this is undertaken in conjunction with YOS colleagues across the area. In 2002/2003 we met our requirements in 100% of all relevant cases. In MAPPP and PPM Meetings we consider the needs of victims and ensure that where possible action plans address victim concerns. Over the year we have represented the views of victims in requesting specific conditions to be placed on licences to the Prison Service. When a licence is enforced due to victim concerns it is normally expedited and the recall actioned within the same day. Victim Support are the National organisation which support Victims and they are represented on our Strategic Board. Their local contact point is:Area Manager VSCD Area Office 5 Court Lane Durham DH1 3AW Tel : 0191 3831389.

5. Statistical Information
The Annual Report in 2003 provides more detailed breakdown of information about offenders considered under MAPPA than we had last year. You will see some numbers have risen significantly and it is important to understand the reason for this. 1. The Number of Registered Sex Offenders Many offenders are required to Register for Life and therefore it is anticipated that this number will rise steadily each year as more offenders are convicted for offences and become Registered for the first time. 2. The Number Breaching their Requirement to Register We are pleased this number has not increased. All breaches relate to failing to register on time, the majority for people who were moving address. 3. The Number of Violent Offenders and Other Sex Offenders This has increased for 2 reasons: i) ii) Greater clarity on how this group are measured. Offenders who commit offences of this nature have to be serving at least 12 months imprisonment, and many of them significantly longer, some for Life. Therefore, again this number is likely to rise over time.

Statistical Information

No. of Offenders


The number of registered sex offenders on 31 March 2003


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


iii. The number of Sex Offender 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


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


County Durham Probation Area Sue Hine Assistant Chief Officer Address NPS County Durham Forest House Aykley Heads Business Centre Durham DH1 5TS Phone 0191 3839083

Durham Police Ian Scott Detective Chief Superintendent

Address Durham Constabulary Aykley Heads Durham DH1 5TT

Phone 0191 3864929

County Durham

List of Abbreviations


Area Child Protection Committee Multi Agency Public Protection Arrangements Multi Agency Public Protection Panel Mental Disordered Offender National Health Service National Probation Directorate Northumbria Sex Offender Programme Group Primary Care Trust Public Protection Meeting Public Protection Strategy Group Public Protection Unit Violent Offender & Sex Offender Register Youth Offending Service