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Contacts

Greater Manchester Probation Area Address Phone

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

Head of PR & Communications (As above) 0161 886 4802

Greater Manchester Police Address Phone

Director of Intelligence Crime Operations Department 0161 872 5050


Bradford Park
3 Bank Street
Clayton
Manchester
M11 4AA

Head of the Public Protection Unit (As above) 0161 856 6571

Media enquiries Force Headquarters 0161 856 2239


Assistant Director (Corporate Communications) Boyer Street
Stretford
Manchester
M16 0RE

Greater Manchester Victim Support and Witness Service Address Phone

Chief Executive/Deputy Chief Executive 153-157 Chorley Street 0161 727 0244
Swinton
Manchester
M27 4AE
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 encouraging responsible behaviour. Youth Offending Teams
overall responsibility for ensuring Housing professionals contribute Although dangerous offenders are
that management arrangements are significant expertise in placing usually adults, there are a few cases
in place for all serious violent and offenders in suitable each year where young offenders
sexual offenders in the community, accommodation, both in terms of the are assessed as being a danger to
as defined in the Criminal Justice offender’s requirements and public the public. These cases may well
and Court Services Act 2000. protection. be under the supervision of Youth
Offending Teams (YOTs). YOTs
In Greater Manchester, housing can develop intensive supervision
Where cases are assessed as being providers who have attended arrangements for such offenders; it
of low or medium risk management MAPPPs include local authorities, is vital therefore that in appropriate
is primarily undertaken by police and Housing Associations and staff from cases YOTs are represented at
probation services. High risk cases both statutory and voluntary hostels. MAPPPs.
are managed through Multi-Agency
Public Protection Panels (MAPPPs). Greater Manchester has seven Youth Offending Teams themselves
These arrangements are outlined in approved premises (hostels). These consist of multi-disciplinary teams
further detail in Section 3. have strict rules and conditions of (including police, probation,
residence, including an overnight education and social workers) and
Greater Manchester comprises 10 curfew, which allows the rigorous are therefore well-placed to co-
local authority areas. Each of supervision of offenders who live ordinate arrangements to closely
these 10 areas – Bolton, Bury, the there. manage these dangerous young
City of Manchester, Oldham, offenders.
Rochdale, Salford, Stockport,
Tameside, Trafford and Wigan – Social Services Health
have arrangements in place for Social Services departments have Health issues maybe a significant
MAPPPs in their locality. primary responsibility for child factor in managing dangerous
protection matters and staff often offenders. Some offenders have
MAPPPs are chaired by either the have significant valuable information mental health problems which are
District Manager for the Probation regarding the family networks that identified as needing proper
Service or a local senior police dangerous offenders have. Their assessment and treatment where
officer. A countywide protocol, perspective on the management of appropriate. For example,
agreed by all the agencies involved, dangerous violent and sexual dangerous behaviour can be
sets out how MAPPPs are convened offenders is often crucial. exacerbated if offenders are not
and administered. This serves as a receiving appropriate medication.
template for all MAPPPs, who may There is often an overlap between
amend the protocol to suit local the work of MAPPPs and Area Child Appropriate representation at a
needs. Protection Committees, where police MAPPP can include a local GP
and probation are represented in and/or specialist psychiatric staff.
A MAPPP can be requested by any appropriate cases.
agency. Some health professionals have
attended MAPPPs, but it has proved
All MAPPPs can call upon the Education difficult to secure the consistent
attendance of other agencies within Schools and occasionally Further attendance of health service
the community, such as local Education colleges can be a representatives. This is a matter to
authority housing officials and social valuable aid to the management of be pursued by the county’s Strategic
services representatives as required. younger dangerous offenders. Such Management Group next year. The
These agencies fulfil particular roles examples are few, but they have the organisational structure of the health
in helping to manage dangerous potential to cause considerable service across the county makes it
offenders. These are described disruption in local communities. difficult to find appropriate
below. representation.
There are a critical few dangerous
Housing offenders who target children. In
Stable accommodation can play a such cases, action plans to manage Victim Support
key role in ensuring that dangerous those offenders may require the Greater Manchester Victim Support
offenders are rigorously managed, in involvement of education officials, in and Witness Service is totally
terms of surveillance and terms of protecting children and supportive of the MAPPP process.
reassuring parents.
Staff from the service have Other agencies • Two Mosque elders, where an
participated in MAPPP meetings in On occasions, MAPPPs are offender was being considered
most districts across the county. Its attended by other community for employment at a local
aim is to develop links in the agencies and individuals, where they mosque, subject to certain
remaining districts; work will be have a particular perspective to add conditions
undertaken to achieve this over the to any discussion. In Greater • Prison officers
next year. Where Victim Support’s Manchester, those attending have • Staff from the Police’s Domestic
involvement is requested at a included:- Violence Unit
MAPPP, a staff member will attend • The Guardian ad Litem service, • Probation Service victim liaison
the MAPPP meeting and will then reflecting their involvement in officers
liase with the appropriate victim cases concerning child welfare • An offender’s family members.
worker in the case.

_____________________________________________________________________________________________

3. Outline of the arrangements made


3.1. In addition to the day-to-day subsequent supervision - are the important in managing offenders in
work of police and probation responsibility of Youth Offending the community.
services outlined in this report, Teams.
Greater Manchester has developed 3.5. If an offender is sent to prison,
multi-agency assessment 3.3. Reports assist the court in a further assessment will be carried
procedures for the assessment and determining a suitable sentence and out if the offender is to be released
management of sexual, violent and will also be used by the probation subject to a period of supervision by
dangerous offenders. The service if the offender is the probation service. Depending on
assessment and management of subsequently made the subject of a the length of the supervision period
these offenders is at three levels:- community sentence such as a after release, the offender will be
Community Punishment Order or reassessed regarding the level of
(a) Information exchange (for the Community Rehabilitation Order. dangerousness whilst in the
lower risk cases) see par. 3.6 Probation staff have many years of community and appropriate public
(b) Joint police and probation experience in working with protection plans will be put in place.
agreed risk assessment (for offenders, many of whom are now
potentially dangerous required to attend special 3.6. The Criminal Justice and Court
offenders); this could be programmes to help stop them Services Act 2000 defines those
described as the medium risk committing further crimes. cases requiring joint assessment
group see par. 3.7 between police and probation
(c) Multi-Agency Public Protection 3.4. Those offenders serving services. In many cases, the
Panel meetings, for the critical community penalties continue to live probation assessment will conclude
few most dangerous offenders and work in our community. They that the risks to the public are low.
see par. 3.9 may live in their own homes or in In these cases, the probation
These processes are explained private rented accommodation. assessment will be communicated to
more fully below. Some live in accommodation the police. If police information
provided by a registered social systems reinforce the probation
3.2. Initial risk assessments on landlord (such as a housing assessment, this will become the
serious violent and sexual offenders association or local authority). agreed joint assessment.
are normally undertaken at the point Research evidence shows that
of sentence, via a Pre-Sentence having stable accommodation and 3.7. The probation service keeps a
Report. These reports are employment is very important in register of potentially dangerous
prepared by the probation service, in reducing the risk of reoffending. offenders (PDOs) in each district
the case of adult offenders; for Stable accommodation, at an across the county. Following an in-
offenders under the age of 18, address which is known to the depth assessment, if a case is
reports and risk assessments – and agencies involved, is also very considered sufficiently worrying to be
placed on a PDO register; it is staff who will have case 3.10. In direct response to the
carefully reviewed at least every four management responsibility. statutory requirements outlined in
months. Reviews are always the Criminal Justice & Court
undertaken with a senior officer. The Panel will work towards an Services Act 2000, and following
agreement on the level of risk and consultation with the Probation
3.8. In some cases, the probation will formulate an Action Plan to Service, Greater Manchester Police
assessment will suggest the offender manage that risk. All agencies elected to make a significant
is potentially a serious risk to the represented will be closely held to commitment towards future work in
public, or on receipt of the probation account for any tasks to be carried this area by the formation of a
assessment the police may find they out under the Action Plan. dedicated, centralised ‘Public
have information that suggests the Protection Unit’.
assessment should be higher. In Regular review meetings are held,
these situations, police and usually bi-monthly although any The unit provides a central resource
probation representatives will meet agency involved can request an and support framework, with specific
to share information and reach a emergency MAPPP if they feel expertise in this field, to work closely
joint assessment of risk. They will circumstances have changed; with local police and probation
also draw up an Action Plan to attendance is given top priority. officers across Greater Manchester;
manage the risk identified. Agencies involved in the case will it covers all issues involving the
keep in close contact between management of sexual, violent and
3.9. With regard to the critical few meetings to ensure the Action Plan dangerous offenders.
most dangerous offenders, a Multi- is being implemented appropriately.
Agency Public Protection Panel will There are currently 52 MAPPP The Public Protection Unit (PPU)
be convened. The chair of the cases across the whole of Greater began work on the 1 May 2001,
meeting (a probation District Manchester. staffed by over 20 police personnel
Manager or a local senior police and a dedicated Probation Service
officer) adheres to agreed protocols In some cases, offenders considered co-ordinator; all have received in-
regarding the format of the meeting, by a MAPPP are not the subject of depth multi-agency training in
format of minutes and rules any statutory supervision in the offender risk assessment,
regarding confidentiality. All relevant community. These tend to be management and monitoring. It
agencies are represented at these offenders who were convicted of provides a central point of contact for
meetings – including those with serious offences in the past but who liaison with all other agencies
particular knowledge relevant to the have not re-offended; their recent involved in this work across the area
case - and a full information behaviour may be of sufficient and with the GMP Force Intelligence
exchange takes place. concern, however, to warrant referral Bureau.
to a MAPPP.
In the case of those offenders who Following the initial success of the
are awaiting release, prison staff will There are also offenders who are unit, it has been confirmed that
sometimes travel to attend the required to register under the Sex increased staffing for the PPU will be
MAPPP in order to provide additional Offenders Act 1997 who require joint provided by the Probation Service
information to the Panel. assessments under the new for the forthcoming year, capitalising
Representatives from the agency arrangements; many were previously on the success of the joint working
which will provide accommodation monitored only by the police. arrangements already in place.
for the offender will also attend,
alongside local police and probation

_____________________________________________________________________________________________

4. Strategic Management Arrangements


In Greater Manchester, a Multi- their operation. This group, with The group is jointly led by a
Agency Risk Panel Steering Group some changes, then became the Superintendent from Greater
had already been set up to tackle county-wide MAPPP Steering Group Manchester Police and by an
strategic issues around MARPs and following the CJ&CS Act 2000. Assistant Chief Officer from the
National Probation Service (Greater prison service and Clerks to the achieve countywide coverage from
Manchester). Other members of the Justices; it is hoped that these amongst the membership. Those
group include other police and agencies will be able to attend future appointed to the Steering Group are
probation representatives, a local meetings. Membership of the group not strictly representatives of their
authority housing manager, Deputy will be reviewed annually. own authority or agency, but bring a
Chief Executive of Victim Support, a perspective from their particular area
member of a local Youth Offending The county of Greater Manchester is of work. All have working
Team, and representatives from large and because it covers 10 local responsibilities for areas relevant to
departments of Social Services and authority districts, it is not practicable MAPPPs.
Education. Representation has to seek representatives from all 10
been sought from the health service, boroughs. The aim, however, is to

_____________________________________________________________________________________________

5. Disclosure
The power to decide whether to son. Police disclosed the man’s and is handled sensitively by the
disclose information about an background to the woman, who professionals involved.
offender rests with the Police. ended the friendship as a result.
Disclosure to the media may happen
Each MAPPP has Disclosure as a In another case, a man with a history where they may be able to assist
specific agenda item. This means of extreme violence against his public protection by wide coverage
that disclosure is considered at previous partners was found to have of an individual case. The media
every meeting, and a decision made begun a new relationship. Police can play a major role in helping to
on each case on its merits. disclosed details of the man’s alert the public. For example, if an
offences to his new partner, who offender deliberately fails to comply
There are many examples of was unaware of his background. with supervision and his where-
disclosure in the day-to-day work of abouts become unknown, the
MAPPPs. Where an offender has a In the very rare cases of predatory responsible authority may make an
history of sex offences, for example, sex offenders, there may be appeal for information through the
agencies would ensure that there is disclosure to schools in a particular media. This may allow them – and
disclosure to a new partner if there neighbourhood. A letter to be used the public – to help track down the
are concerns about the partner or in such circumstances has been offender and thereby protect the
any children of the family becoming approved by the Multi-Agency Risk public.
a potential victim. Panel Steering Group. It is intended
for use by Head Teachers to alert Plans for such a scenario are always
One case involved a 63-year-old parents and carers to the potential in place, but because of the
man with convictions for sexual danger to children; it also provides management arrangements already
offences against teenage boys. useful educational information and established, they may rarely be
Although he had not re-offended for local contacts. Such a letter has needed. There have been no
some time, police were concerned only been needed once in Greater occasions so far when such
when he tried to recruit 13-year-old Manchester. disclosure has been required in
boys for a local football team. It Greater Manchester.
became known that the man had Disclosure rarely means provision of
formed a relationship with a woman information to the media; it usually
neighbour; she had an 11-year-old takes place on a one-to-one basis,
6. Victims Work
There is a network of police Family release. For example, some Involvement in the MAPPP process
Support Units throughout the offenders can be forbidden from has added to the pressure on
Greater Manchester area which making contact with victims or from resources; no additional funding has
support child victims and their coming into an area where the victim been identified to support this work.
families through the process of may be living. The views of victims
reporting, investigation and are reported back and where Where an offence is one of violence
prosecution following a crime. appropriate will be taken into or of a sexual nature, the needs of
Family Support Units help people account in the offender’s licence. victims are greatly increased. The
who are victims of domestic violence impact upon a victim can be
and those children who are subject The probation service’s remit is substantial, particularly where the
limited to provision of information, offender has the potential to be
to violence or sexual assaults.
but it is recognised that victims are released back into the community.
often anxious and have an ongoing For this reason, Victim Support staff
The St. Mary’s Sexual Offence
need for emotional support and have been keen to become involved
Referral centre, supported by
counselling. Although the probation in MAPPPs, in order to properly
Greater Manchester Police, is a
service is unable to provide such represent the victim’s interests and
national leader in supporting women
additional support, it maintains links perspectives. They aim to work with
and men who have been the victims
with local Victim Support services. agencies to assist in fulfilling their
of sexual crimes. Counsellors are
obligations, whilst passing on the
available to talk to in confidence.
Victim Support is a national charity concerns of victims and ensuring
for people affected by crime. It is an that victims are kept fully informed.
Greater Manchester Police have
independent organisation, offering a
also acquired considerable expertise
free and confidential service, Victim Support also supports local
in pursuing criminal investigations
whether or not a crime has been victims and vulnerable witnesses
where the victims are unknown or
reported. Trained staff and through the court process, through
difficult to reach, for example child
volunteers at local branches offer its Witness Service. This service is
victims of internet pornography.
information and support to victims, available to both adults and children.
witnesses, their families and friends.
Greater Manchester Probation Area
employs a number of Probation In Bolton, a specific Young Witness
Victim Support provides the Witness Support Scheme is in place which
Service Officers who undertake
Service, based in every criminal can provide support for young
liaison work with victims. This is
court in England and Wales, to offer victims of crime who are required to
required under Section 69 of the
assistance before, during and after give evidence in court proceedings.
Criminal Justice and Court Services
trial. You can also call the Victim A Support Worker will help prepare
Act 2000. These staff are based in
Supportline – 0845 30 30 900 - for the young person for the court by
district offices and their role is to visit
information and support and details telling them what to expect and
those victims of serious violent or
of local services and other relevant arranging familiarisation visits.
sexual offences where offenders are
organisations. They will also accompany the young
sentenced to over 12 months’
imprisonment. person to court and offer ongoing
Greater Manchester Victim Support support after the case.
and Witness Services is a charity
Victim Liaison Officers will provide
providing local support and Contact details for Greater
victims with information about the
assistance to victims of crime and to Manchester Victim Support are listed
offender’s sentence, parole eligibility
vulnerable witnesses. As a charity, in the Contacts section at the end of
and any plans for release. They will
its resources are limited; it therefore this document.
also ask the victim if they have any
makes an assessment in each case
views which might affect the
in order to direct resource towards
offender’s licence conditions on
areas of greatest need.
7. Statistical Information Number of offenders

i. The number of Registered Sex Offenders (RSOs) in the community on 1158


31/03/02 (s68 (2) CJ & CS Act 2000)

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 35


requirement 01/04/02 – 31/03/02 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 – 1607
31/03/02 (s 68 (3) (4) & (5) CJ & CS Act 2000)

The number of other offenders 01/04/01 – 31/03/02 (s67 (2) (b) CJ & 20
CS Act 2000)
v. The cost of the local arrangements to include initial set-up costs
and staff hours

Agency costs COST

Probation Board £60,000

Police £750,000

Other agencies (e.g. Victim Support) £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.