Contacts

Greater Manchester Probation Area Assistant Chief Officer (Risk Assessment & Management) Address 6th Floor Oakland House Talbot Road Old Trafford Manchester M16 0PQ Phone 0161 872 4802

Head of PR & Communications

(As above)

0161 886 4802

Greater Manchester Police Director of Intelligence

Address Crime Operations Department Bradford Park 3 Bank Street Clayton Manchester M11 4AA

Phone 0161 872 5050

Head of the Public Protection Unit

(As above)

0161 856 6571

Media enquiries Assistant Director (Corporate Communications)

Force Headquarters Boyer Street Stretford Manchester M16 0RE

0161 856 2239

Greater Manchester Victim Support and Witness Service Chief Executive/Deputy Chief Executive

Address 153-157 Chorley Street Swinton Manchester M27 4AE

Phone 0161 727 0244

Greater Manchester
MAPPA Annual Report 2002

1. Introduction
Local arrangements in Greater Manchester began with a pilot project in Rochdale in 1995. The working partnership between police and probation was so successful that Multi-Agency Risk Panels (which were later re-named Multi-Agency Public Protection Panels) were set up throughout Greater Manchester two years later. The official launch was carried out by the then Home Secretary, the Rt. Hon. Jack Straw MP, and the initiative had support at the highest possible Government level. The Criminal Justice and Court Services Act 2000 (CJ&CS Act 2000) brought a new duty on police and probation to make joint arrangements for the assessment and management of the risks posed by sexual, violent and other offenders who may cause serious harm to the public. The arrangements which were put in place locally in 1997 have been developed and strengthened in recent years. Protocols between all the agencies concerned were agreed and signed, with police and probation taking a lead. Multi-Agency Public Protection Panels have succeeded in achieving the participation of a wide range of agencies across the county; these include housing, social services, health, Victim Support, prisons, Clerks to the Justices, YOTS and education. This document will provide further details of the arrangements made in Greater Manchester and give contact points for any additional enquiries, including agencies other than police and probation.

2. Summary of roles and responsibilities
Police and probation services have overall responsibility for ensuring that management arrangements are in place for all serious violent and sexual offenders in the community, as defined in the Criminal Justice and Court Services Act 2000. encouraging responsible behaviour. Housing professionals contribute significant expertise in placing offenders in suitable accommodation, both in terms of the offender’s requirements and public protection. In Greater Manchester, housing providers who have attended MAPPPs include local authorities, Housing Associations and staff from both statutory and voluntary hostels. Greater Manchester has seven approved premises (hostels). These have strict rules and conditions of residence, including an overnight curfew, which allows the rigorous supervision of offenders who live there. Youth Offending Teams Although dangerous offenders are usually adults, there are a few cases each year where young offenders are assessed as being a danger to the public. These cases may well be under the supervision of Youth Offending Teams (YOTs). YOTs can develop intensive supervision arrangements for such offenders; it is vital therefore that in appropriate cases YOTs are represented at MAPPPs. Youth Offending Teams themselves consist of multi-disciplinary teams (including police, probation, education and social workers) and are therefore well-placed to coordinate arrangements to closely manage these dangerous young offenders. Health Health issues maybe a significant factor in managing dangerous offenders. Some offenders have mental health problems which are identified as needing proper assessment and treatment where appropriate. For example, dangerous behaviour can be exacerbated if offenders are not receiving appropriate medication. Appropriate representation at a MAPPP can include a local GP and/or specialist psychiatric staff. Some health professionals have attended MAPPPs, but it has proved difficult to secure the consistent attendance of health service representatives. This is a matter to be pursued by the county’s Strategic Management Group next year. The organisational structure of the health service across the county makes it difficult to find appropriate representation.

Where cases are assessed as being of low or medium risk management is primarily undertaken by police and probation services. High risk cases are managed through Multi-Agency Public Protection Panels (MAPPPs). These arrangements are outlined in further detail in Section 3. Greater Manchester comprises 10 local authority areas. Each of these 10 areas – Bolton, Bury, the City of Manchester, Oldham, Rochdale, Salford, Stockport, Tameside, Trafford and Wigan – have arrangements in place for MAPPPs in their locality. MAPPPs are chaired by either the District Manager for the Probation Service or a local senior police officer. A countywide protocol, agreed by all the agencies involved, sets out how MAPPPs are convened and administered. This serves as a template for all MAPPPs, who may amend the protocol to suit local needs. A MAPPP can be requested by any agency. All MAPPPs can call upon the attendance of other agencies within the community, such as local authority housing officials and social services representatives as required. These agencies fulfil particular roles in helping to manage dangerous offenders. These are described below. Housing Stable accommodation can play a key role in ensuring that dangerous offenders are rigorously managed, in terms of surveillance and

Social Services Social Services departments have primary responsibility for child protection matters and staff often have significant valuable information regarding the family networks that dangerous offenders have. Their perspective on the management of dangerous violent and sexual offenders is often crucial. There is often an overlap between the work of MAPPPs and Area Child Protection Committees, where police and probation are represented in appropriate cases.

Education Schools and occasionally Further Education colleges can be a valuable aid to the management of younger dangerous offenders. Such examples are few, but they have the potential to cause considerable disruption in local communities. There are a critical few dangerous offenders who target children. In such cases, action plans to manage those offenders may require the involvement of education officials, in terms of protecting children and reassuring parents.

Victim Support Greater Manchester Victim Support and Witness Service is totally supportive of the MAPPP process.

Staff from the service have participated in MAPPP meetings in most districts across the county. Its aim is to develop links in the remaining districts; work will be undertaken to achieve this over the next year. Where Victim Support’s involvement is requested at a MAPPP, a staff member will attend the MAPPP meeting and will then liase with the appropriate victim worker in the case.

Other agencies On occasions, MAPPPs are attended by other community agencies and individuals, where they have a particular perspective to add to any discussion. In Greater Manchester, those attending have included:• The Guardian ad Litem service, reflecting their involvement in cases concerning child welfare

• Two Mosque elders, where an offender was being considered for employment at a local mosque, subject to certain conditions • Prison officers • Staff from the Police’s Domestic Violence Unit • Probation Service victim liaison officers • An offender’s family members.

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3. Outline of the arrangements made
3.1. In addition to the day-to-day work of police and probation services outlined in this report, Greater Manchester has developed multi-agency assessment procedures for the assessment and management of sexual, violent and dangerous offenders. The assessment and management of these offenders is at three levels:(a) Information exchange (for the lower risk cases) see par. 3.6 (b) Joint police and probation agreed risk assessment (for potentially dangerous offenders); this could be described as the medium risk group see par. 3.7 (c) Multi-Agency Public Protection Panel meetings, for the critical few most dangerous offenders see par. 3.9 These processes are explained more fully below. 3.2. Initial risk assessments on serious violent and sexual offenders are normally undertaken at the point of sentence, via a Pre-Sentence Report. These reports are prepared by the probation service, in the case of adult offenders; for offenders under the age of 18, reports and risk assessments – and subsequent supervision - are the responsibility of Youth Offending Teams. 3.3. Reports assist the court in determining a suitable sentence and will also be used by the probation service if the offender is subsequently made the subject of a community sentence such as a Community Punishment Order or Community Rehabilitation Order. Probation staff have many years of experience in working with offenders, many of whom are now required to attend special programmes to help stop them committing further crimes. 3.4. Those offenders serving community penalties continue to live and work in our community. They may live in their own homes or in private rented accommodation. Some live in accommodation provided by a registered social landlord (such as a housing association or local authority). Research evidence shows that having stable accommodation and employment is very important in reducing the risk of reoffending. Stable accommodation, at an address which is known to the agencies involved, is also very important in managing offenders in the community. 3.5. If an offender is sent to prison, a further assessment will be carried out if the offender is to be released subject to a period of supervision by the probation service. Depending on the length of the supervision period after release, the offender will be reassessed regarding the level of dangerousness whilst in the community and appropriate public protection plans will be put in place. 3.6. The Criminal Justice and Court Services Act 2000 defines those cases requiring joint assessment between police and probation services. In many cases, the probation assessment will conclude that the risks to the public are low. In these cases, the probation assessment will be communicated to the police. If police information systems reinforce the probation assessment, this will become the agreed joint assessment. 3.7. The probation service keeps a register of potentially dangerous offenders (PDOs) in each district across the county. Following an indepth assessment, if a case is considered sufficiently worrying to be

placed on a PDO register; it is carefully reviewed at least every four months. Reviews are always undertaken with a senior officer. 3.8. In some cases, the probation assessment will suggest the offender is potentially a serious risk to the public, or on receipt of the probation assessment the police may find they have information that suggests the assessment should be higher. In these situations, police and probation representatives will meet to share information and reach a joint assessment of risk. They will also draw up an Action Plan to manage the risk identified. 3.9. With regard to the critical few most dangerous offenders, a MultiAgency Public Protection Panel will be convened. The chair of the meeting (a probation District Manager or a local senior police officer) adheres to agreed protocols regarding the format of the meeting, format of minutes and rules regarding confidentiality. All relevant agencies are represented at these meetings – including those with particular knowledge relevant to the case - and a full information exchange takes place. In the case of those offenders who are awaiting release, prison staff will sometimes travel to attend the MAPPP in order to provide additional information to the Panel. Representatives from the agency which will provide accommodation for the offender will also attend, alongside local police and probation

staff who will have case management responsibility. The Panel will work towards an agreement on the level of risk and will formulate an Action Plan to manage that risk. All agencies represented will be closely held to account for any tasks to be carried out under the Action Plan. Regular review meetings are held, usually bi-monthly although any agency involved can request an emergency MAPPP if they feel circumstances have changed; attendance is given top priority. Agencies involved in the case will keep in close contact between meetings to ensure the Action Plan is being implemented appropriately. There are currently 52 MAPPP cases across the whole of Greater Manchester. In some cases, offenders considered by a MAPPP are not the subject of any statutory supervision in the community. These tend to be offenders who were convicted of serious offences in the past but who have not re-offended; their recent behaviour may be of sufficient concern, however, to warrant referral to a MAPPP. There are also offenders who are required to register under the Sex Offenders Act 1997 who require joint assessments under the new arrangements; many were previously monitored only by the police.

3.10. In direct response to the statutory requirements outlined in the Criminal Justice & Court Services Act 2000, and following consultation with the Probation Service, Greater Manchester Police elected to make a significant commitment towards future work in this area by the formation of a dedicated, centralised ‘Public Protection Unit’. The unit provides a central resource and support framework, with specific expertise in this field, to work closely with local police and probation officers across Greater Manchester; it covers all issues involving the management of sexual, violent and dangerous offenders. The Public Protection Unit (PPU) began work on the 1 May 2001, staffed by over 20 police personnel and a dedicated Probation Service co-ordinator; all have received indepth multi-agency training in offender risk assessment, management and monitoring. It provides a central point of contact for liaison with all other agencies involved in this work across the area and with the GMP Force Intelligence Bureau. Following the initial success of the unit, it has been confirmed that increased staffing for the PPU will be provided by the Probation Service for the forthcoming year, capitalising on the success of the joint working arrangements already in place.

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4. Strategic Management Arrangements
In Greater Manchester, a MultiAgency Risk Panel Steering Group had already been set up to tackle strategic issues around MARPs and their operation. This group, with some changes, then became the county-wide MAPPP Steering Group following the CJ&CS Act 2000. The group is jointly led by a Superintendent from Greater Manchester Police and by an Assistant Chief Officer from the

National Probation Service (Greater Manchester). Other members of the group include other police and probation representatives, a local authority housing manager, Deputy Chief Executive of Victim Support, a member of a local Youth Offending Team, and representatives from departments of Social Services and Education. Representation has been sought from the health service,

prison service and Clerks to the Justices; it is hoped that these agencies will be able to attend future meetings. Membership of the group will be reviewed annually. The county of Greater Manchester is large and because it covers 10 local authority districts, it is not practicable to seek representatives from all 10 boroughs. The aim, however, is to

achieve countywide coverage from amongst the membership. Those appointed to the Steering Group are not strictly representatives of their own authority or agency, but bring a perspective from their particular area of work. All have working responsibilities for areas relevant to MAPPPs.

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5. Disclosure
The power to decide whether to disclose information about an offender rests with the Police. Each MAPPP has Disclosure as a specific agenda item. This means that disclosure is considered at every meeting, and a decision made on each case on its merits. There are many examples of disclosure in the day-to-day work of MAPPPs. Where an offender has a history of sex offences, for example, agencies would ensure that there is disclosure to a new partner if there are concerns about the partner or any children of the family becoming a potential victim. One case involved a 63-year-old man with convictions for sexual offences against teenage boys. Although he had not re-offended for some time, police were concerned when he tried to recruit 13-year-old boys for a local football team. It became known that the man had formed a relationship with a woman neighbour; she had an 11-year-old son. Police disclosed the man’s background to the woman, who ended the friendship as a result. In another case, a man with a history of extreme violence against his previous partners was found to have begun a new relationship. Police disclosed details of the man’s offences to his new partner, who was unaware of his background. In the very rare cases of predatory sex offenders, there may be disclosure to schools in a particular neighbourhood. A letter to be used in such circumstances has been approved by the Multi-Agency Risk Panel Steering Group. It is intended for use by Head Teachers to alert parents and carers to the potential danger to children; it also provides useful educational information and local contacts. Such a letter has only been needed once in Greater Manchester. Disclosure rarely means provision of information to the media; it usually takes place on a one-to-one basis, and is handled sensitively by the professionals involved. Disclosure to the media may happen where they may be able to assist public protection by wide coverage of an individual case. The media can play a major role in helping to alert the public. For example, if an offender deliberately fails to comply with supervision and his whereabouts become unknown, the responsible authority may make an appeal for information through the media. This may allow them – and the public – to help track down the offender and thereby protect the public. Plans for such a scenario are always in place, but because of the management arrangements already established, they may rarely be needed. There have been no occasions so far when such disclosure has been required in Greater Manchester.

6. Victims Work
There is a network of police Family Support Units throughout the Greater Manchester area which support child victims and their families through the process of reporting, investigation and prosecution following a crime. Family Support Units help people who are victims of domestic violence and those children who are subject to violence or sexual assaults. The St. Mary’s Sexual Offence Referral centre, supported by Greater Manchester Police, is a national leader in supporting women and men who have been the victims of sexual crimes. Counsellors are available to talk to in confidence. Greater Manchester Police have also acquired considerable expertise in pursuing criminal investigations where the victims are unknown or difficult to reach, for example child victims of internet pornography. Greater Manchester Probation Area employs a number of Probation Service Officers who undertake liaison work with victims. This is required under Section 69 of the Criminal Justice and Court Services Act 2000. These staff are based in district offices and their role is to visit those victims of serious violent or sexual offences where offenders are sentenced to over 12 months’ imprisonment. Victim Liaison Officers will provide victims with information about the offender’s sentence, parole eligibility and any plans for release. They will also ask the victim if they have any views which might affect the offender’s licence conditions on release. For example, some offenders can be forbidden from making contact with victims or from coming into an area where the victim may be living. The views of victims are reported back and where appropriate will be taken into account in the offender’s licence. The probation service’s remit is limited to provision of information, but it is recognised that victims are often anxious and have an ongoing need for emotional support and counselling. Although the probation service is unable to provide such additional support, it maintains links with local Victim Support services. Victim Support is a 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 volunteers at local branches offer information and support to victims, witnesses, their families and friends. Victim Support provides the Witness Service, based in every criminal court in England and Wales, to offer assistance before, during and after trial. You can also call the Victim Supportline – 0845 30 30 900 - for information and support and details of local services and other relevant organisations. Greater Manchester Victim Support and Witness Services is a charity providing local support and assistance to victims of crime and to vulnerable witnesses. As a charity, its resources are limited; it therefore makes an assessment in each case in order to direct resource towards areas of greatest need. Involvement in the MAPPP process has added to the pressure on resources; no additional funding has been identified to support this work. Where an offence is one of violence or of a sexual nature, the needs of victims are greatly increased. The impact upon a victim can be substantial, particularly where the offender has the potential to be released back into the community. For this reason, Victim Support staff have been keen to become involved in MAPPPs, in order to properly represent the victim’s interests and perspectives. They aim to work with agencies to assist in fulfilling their obligations, whilst passing on the concerns of victims and ensuring that victims are kept fully informed. Victim Support also supports local victims and vulnerable witnesses through the court process, through its Witness Service. This service is available to both adults and children. In Bolton, a specific Young Witness Support Scheme is in place which can provide support for young victims of crime who are required to give evidence in court proceedings. A Support Worker will help prepare the young person for the court by telling them what to expect and arranging familiarisation visits. They will also accompany the young person to court and offer ongoing support after the case. Contact details for Greater Manchester Victim Support are listed in the Contacts section at the end of this document.

7. Statistical Information
i. The number of Registered Sex Offenders (RSOs) in the community on 31/03/02 (s68 (2) CJ & CS Act 2000)

Number of offenders
1158

This compares to a Greater Manchester population of 2.5 million (0.05%)

The number of RSOs per 100,000 population

45

ii. The number of SOs cautioned/convicted for breaches of registration requirement 01/04/02 – 31/03/02

35 1 caution, 34 convictions

iii. The number of Sex Offender Orders 01/04/01 – 31/03/02

(a) total applied for

3

(b) granted

2

(c) not granted

0

(d) applications still in progress

1 A further 5 applications are currently being prepared to put before the courts

iv. The number of violent offenders and other sex offenders 01/04/01 – 31/03/02 (s 68 (3) (4) & (5) CJ & CS Act 2000)

1607

The number of other offenders 01/04/01 – 31/03/02 (s67 (2) (b) CJ & CS Act 2000)

20

v. The cost of the local arrangements to include initial set-up costs and staff hours

Agency costs Probation Board Police Other agencies (e.g. Victim Support)

COST £60,000 £750,000 £1,400

Total

£811,400

NOTE In Greater Manchester, where a MAPPP system has been operating for some time, most agencies have not incurred any “new” costs. An estimate would be that each MAPPP meeting involves: • An average of one hour’s travelling time and expenses for each attendee • The main meeting lasting approximately one hour • Two to three hours’ administration and clerical time drawing up/amending the action plan. The cost of the above will obviously depend of the grade of staff attending the meeting and the complexity of each individual case. As a rough guide, each MAPPP meeting will involve a senior manager from either police or probation, two middle managers from both police and probation, one or two ‘main grade’ staff from police and probation, and one or two representatives from any other agency invited to attend. Each MAPPP case will be the subject of six meetings per year on average. In some cases, there are significant increased costs for agencies in terms of delivering on the Action Plans emanating from MAPPPs.