MAPPA Annual Report 2003


National Introduction

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



Dorset Police and National Probation Service Dorset are the Responsible Authority which make multi-agency public protection arrangements for the assessment and management of the risks posed by sexual, violent, and other offenders who may cause serious harm to the public of Dorset. Multi-agency protocols have been agreed by Police, Probation, Health, Housing, and Social Services for the assessment and management of sex, violent, and other offenders. There is a two tier structure under the arrangements. • Multi Agency Public Protection Panels (MAPPPs) consider the few most serious cases, where the risk of serious harm is considered to be imminent. • Risk Assessment and Management Panels (RAMPs) consider cases requiring multi agency involvement but harm is not considered to be imminent. This second annual report provides details and an update of local arrangements and gives contact points for any additional enquiries including agencies other than Police and Probation.


Local Updates
Authority with a central point of reference and decision making. This year the Probation Sex Offenders Team and the Police Sex Offenders Investigation Unit are co-locating at Bournemouth. This will enable ‘face-to-face’ timely sharing of information and decision making. The MAPPA secretary will also be co-located at Bournemouth. seven project areas, it was decided to appoint only one member to the Dorset MAPPA strategic board. As the involvement of lay members are pilot projects, and the subject of evaluation, this contrast with other areas may provide a useful comparison. Following induction training provided by the Police and the Probation Service I attended a Strategic Management Board meeting during December. From my perspective this was largely for familiarisation and an opportunity to see the various components of what initially appeared a fairly convoluted multi agency landscape relate to each other. Further training was provided at Birmingham University in early

Dorset was selected as one of the eight MAPPA Areas to pilot the appointment of a Lay Member on the MAPPA Strategic Management Board. A report from the Lay Member forms part of this annual report. The Lay Member role will be subject of evaluation this year and the reports from the eight areas will form the basis for the National rollout of the Lay Member Scheme. Dorset Police and National Probation Service, Dorset have jointly funded a MAPPA secretary who will provide the admin services for MAPPPs and RAMPs. (Appendix A) Dorset Police have also recently appointed a MAPPA co-ordinator who will provide the Responsible

a) Lay Members Report
Dorset has been chosen as one of the eight project areas in England and Wales to pilot the involvement of lay members in the Multi Agency Public Protection Panels. The Dorset positions were advertised in the local press in September 2002 and interviews conducted the following month. Unlike the other

2003. The event was hosted by Gill MacKenzie who is responsible to the Home Office for the development of the pilot involvement of lay members on MAPPA strategic boards. Sessions were led by Donald Findlater and Alice Newman, respectively Deputy Director and Principle Therapist of the Lucy Faithful Foundation. The weekend covered a variety of subjects but concentrated on sexual abuse with links to other abusive behaviours, risk assessment, and risk management. Case studies were used in relation to assessment techniques such as Risk Matrix 2000 and an introduction made to OASys. A plenary session was recorded and I was interviewed by BBC Radio 4 for the PM programme. The resulting broadcast was considered fair, sensitive and positive by the training group, but had however already generated discussion regarding the future role of lay members in this area, leaving unresolved issues. A further training event is scheduled for autumn 2003 which will concentrate on victims but will also look at the development of the role prior to the national rollout of the scheme in early 2004. Thus far there have been two full quarterly MAPPA Strategic Management Board meetings

which I have attended, the spring meeting being cancelled. Research however has continued, and several informal meetings have taken place both face to face and at a distance which have provided input to the Home Office evaluation. It should be remembered, at this juncture, that the role is still somewhat loosely defined and is in a stage of dynamic development, the evaluation of which will contribute to the guidance issued upon national roll-out. Some questions regarding the role remain unanswered including such topics as the actual relationship between the lay member and the public, the relationship between the lay member and the media, and the strategies needed following ‘exposure’, whether controlled or uncontrolled. The introduction of lay members to the system brings with them some of the concerns of the public, ideas from other disciplines and hopefully the courage to ask the questions that others may not be in a position to ask. This, combined with the overseeing role that an ‘outsider’ to the panel provides, should contribute to strong and active boards.

Training has been provided for staff of a wide variety of agencies. The events were funded by the three local Area Child Protection Committees The aims of the training were: • to give greater understanding of the purpose of MAPPPs and RAMPs and their place in the wider context of public safety • to ensure that attendees knew who was appropriate to be considered • to increase awareness of what each agency has to do and how they do it. This training reinforced the information and procedures that have been agreed by the Strategic Management Board and has been provided to agencies as a written document. Mock panel meetings gave each person present the opportunity to see the importance of sharing information and working together to increase protection of the public. The aim is that staff who attended the training can cascade what they have learnt to others within their organisation. c) Current Situation The statistical figures for this year are very similar to the figures for last year. The figures show that those who live in Dorset who present a very high risk are small in number.

b) Training


Case Study
unsupervised journey via train to Dorset which was not an acceptable risk. The Prison Service was unable to transport the offender to Dorset, so the Police agreed with the prison to transport the offender the day before his release to Dorset. The Governor of a Northern prison via the Dorset Probation Service prepared all of the release ‘’licence conditions” and released the offender into the custody of the Dorset Police. The Police with the co-operation of the local prison Governor placed the offender in a local prison. The following day the offender was placed in local accommodation, met by a Senior Probation Officer, the Police Divisional Detective Inspector, and the

The MAPPA received late notification that there was a sex offender due to be released from a Northern Prison with a requirement to live in Dorset A MAPPP was convened and accommodation was found via Probation and Social Services. Due to the distance involved, it would have meant an

Accommodation supervisor. ‘Reliance Monitoring Services’ who are the “approved” fitters of the Electronic Monitoring system fitted a tag by appointment at that time. The rules of the

establishment, licence conditions, and the multi agency response were all reinforced and it was explained that he should attend the necessary health treatment programmes. This example

demonstrates the co-operation between nearly all of the agencies in Dorset, something that would not have been possible prior to MAPPA.

5. Victims work
The National Probation Service, Dorset contacts victims of violent and sexual offenders sentenced to 12 months custody or more. The Probation Victim Liaison Unit Dorset provides a county-wide service. Victims are asked if they wish to be consulted about the release arrangements for the offender. Approaches to victims are made in a manner which respects their wishes to be involved in the conduct of the case. Victims are offered information about the sentence, the prison system, and general public protection strategies. Victims are invited to contribute to a discussion about the licence conditions which will ensure their future safety. This information is passed to the Probation Officer responsible for preparing the offender’s parole or pre-release report. Victims are also asked to specify the degree to which they wish to be kept informed about stages in the offender’s sentence. It has been decided that the Victim Liaison Officer should be a member of the MAPPPs and RAMPs to ensure that the views and concerns of victims are represented. That information will then be taken into account in developing the risk management strategy for the offender. Staff in the Unit ensure that victims have been offered appropriate help to recover from the offence, and where necessary, assist individuals to obtain services such as criminal injuries compensation, counselling, or protection in the home. Victim Support is the national charity for people affected by crime. It is an independent organisation, offering a free and confidential service, whether or not a crime has been reported. Trained staff and 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 a trial. You can also call the Victim Supportline for information and support and details of local services and other relevant organisations. The contact numbers for local victim support services are provided at Appendix B.


One role of MAPPA is to recommend notifications based on the careful and rigorous examination of all information shared at a meeting. However the ultimate decision to make the disclosure rests with a senior police officer within the Dorset Police. Dorset always seeks to let the offender self disclose, followed by checks to ensure that the disclosure was accurate. In most cases this has been successful or the offender has removed themselves from the situation that warranted disclosure in the first instance. If the offender refuses to disclose, a decision is made to disclose or not. An example of disclosure is: A prisoner who was imprisoned for several indecent assaults on females under 14 years of age was forming a pen-friend relationship with a girl resident in the family home. Other girls in the family included a 13 year old who the offender continually asked to write to him. A request was made for a decision on

To reduce and manage risk, an offender’s convictions can be disclosed to individuals, groups, or sections of the community if it is felt that this is proportionate and justifiable. Community disclosures are only made where there is a pressing need. Even a decision on whether or not to disclose has to be justified on the basis of the likelihood of the harm which nondisclosure might otherwise cause.

disclosure to the parents of the girls. This was granted and the Dorset Police Sex Offender

Investigation Unit undertook the disclosure.


Roles and Responsibilities of Agencies
Probation arrange and chair MAPPPs in relation to violent, sexual, and other offenders countywide. The Sexual Offences Investigation Unit provide the management, registration, and monitoring of all sex offenders within the county. PROBATION The National Probation Service, Dorset, is a law enforcement agency. It delivers community punishments, supervises and works with offenders to enable them to reduce their re-offending and protect the public. The service works in collaboration with Police and Prison colleagues, as well as the Crown Prosecution Service, Courts, local authorities, health, education, housing, and a wide range of independent and voluntary sector partners. The National Probation Service Dorset carries out its statutory responsibilities towards the victims of the most serious violent, including sexually violent, crimes. Staff and their line managers with responsibility for the supervision of sex, violent, and other offenders attend the relevant area MAPPPs and RAMPs. A senior manager acts as a core panel member at all meetings of the area MAPPP. SOCIAL DEPARTMENTS SERVICES groups, both adults and children. This applies to children in need and their families, older people, disabled people, and those with mental health needs. The services promote safety and welfare, which balance the needs and wishes of individuals with the safety of the wider community. Through the Area Child Protection Committees and the Adult Protection Committee there is a commitment to work together with all agencies in the management of risk and the protection of the public. Social Services Departments receive notifications on adults and young people convicted of offences against children. A response is made to ensure any child protection issues are considered. There is consultation with Police, Probation, Youth Offending Teams, and any other agency relevant to the circumstances. When potential risk to a specific child is identified, a child protection conference is required unless the risk is immediately alleviated by the intervention of Social Services and it is evident that there is no continuing risk. Social Services have a specific role when: • a child who is looked after by the Authority is convicted of an offence under the Sex Offenders Act 1997, a sex offender is subject to detention in hospital or a guardianship order under the Mental Health Act 1983 following conviction or cautioning for relevant offences.

DORSET POLICE The protection of life and property is a fundamental aim and purpose of the Police Service. Dorset Police are committed to improving the quality of life in the county and making the community safer by targeting and reducing crime, disorder, and anti-social behaviour in partnership with Dorset County Council, Bournemouth and Poole Unitary Authorities, and other agencies. This includes identifying dangerous and high risk offenders, sharing information with other agencies, and taking joint decisions as to any subsequent actions. The Sex Offender Act 1997 places a responsibility on the Police Service to work with other agencies in carrying out risk assessments in relation to offenders required to comply with the Act and manage that risk on a multi agency basis. Divisional Detective Inspectors together with the local Senior Probation Officer arrange and chair RAMPs that involve violent and other offenders living within that division. The Detective Sergeant of the Sex Offences Investigation Unit together with the Senior Probation Officer of the Probation Sex Offender team arrange and chair RAMPs that involve sex offenders living within Dorset. The Detective Chief InspectorMAPPA-Co-ordinator together with the Assistant Chief Officer,

The duties and responsibilities of Social Services Departments include services to vulnerable

YOUTH OFFENDING TEAMS Youth Offending Teams are responsible for all young offenders aged 10 to 17. They prepare reports and attend MAPPPs and RAMPs involving young offenders. MENTAL HEALTH SERVICES The Dorset Forensic Team represented by the Forensic Psychiatrist and psychologists attend all MAPPPs. There is no requirement for the offender to have had a history of contact with psychiatric services. A member of the Dorset Forensic Team attends RAMPs on patients who are currently under the caseload of the Dorset Forensic Team. A member of the Dorset Forensic Team also attends RAMPs on individuals who are currently not engaged with the Mental Health Services but have been assessed by the Dorset Forensic Team within the last year. Part of their role is to recommend and facilitate psychiatric intervention. PRISON SERVICE The role of the Prison Service is to give appropriate notice of home visits and release dates to enable MAPPP and RAMP

procedures to be considered, and to attend MAPPP and RAMP meetings prior to the release of a prisoner in appropriate cases and to ensure that appropriate treatment is offered whilst the person is in custody. EDUCATION Educational establishments have a direct interest and involvement if a convicted offender is: • • • a young person who is a pupil or student, known to have connections with the school, living near the school or loitering in the vicinity of a school.

offence or other dangerous offence. In reaching decisions about the type and location of accommodation the following is considered: • • location of any victims of the sex/violent offender, the nature of the offences committed and the offending pattern.


The Education representative will consider the implications and will arrange and advise the person who attends the MAPPP or RAMP. HOUSING Housing Authorities and Associations have a role in connection with: • housing applicants/tenants who have been/are convicted of sex offences or other dangerous offences, housing applicants/tenants who live in proximity to a person convicted of a sex

The NSPCC in partnership with Poole and Dorset Social Services and the National Probation Service, Dorset provides an assessment, intervention and treatment programme for both convicted and unconvicted sex offenders within the County. Offenders will be engaged in the accredited Thames Valley Sex Offender Treatment Programme if they meet the criteria. The NSPCC liaises with the Police and Probation Services, Youth Offending Teams and other relevant Agencies, providing assessment reports as necessary. During the course of intervention, if it comes to the attention of the NSPCC that there may be a risk to a child, liaison immediately takes place with the relevant agencies.


The Operational Arrangements for MAPPA
Any agency with concerns may request a MAPPP/RAMP conference by contacting the MAPPA representatives of the Police or the Probation Service. All registered sex offenders are initially assessed by the Dorset Police Sex Offender Investigation Unit using the Risk Matrix 2000 assessment tool. involves liaison professionals such Officers and Social may be involved. This process with other as Probation Workers who

There is an integrated system of mechanisms and structures throughout Dorset aimed at assessing the risks posed by sex, violent, or other offenders. This involves all relevant agencies sharing information and working closely together in order to protect the public.

All sex offenders subject to supervision by the Probation Service are managed by the

Dorset Probation Area Sex Offender Team. The team applies the Risk Matrix 2000 assessment tool and the Risk of Serious Harm section of the National Probation Service Offender Assessment System (OASys). The specialist Police and Probation Service sex offender teams work closely together and will be co-located in 2003. Violent offenders who serve sentences of 12 months or more are released under the supervision of the Probation Service. The risks posed by all such offenders are assessed using the Risk of Serious Harm section of OASys. Where any of the following criteria are present a case is referred to a MAPPP: • there is an imminent risk of serious harm. The potential event is more likely than not to happen imminently and the impact would be serious. This will include cases due to be released from prison. when a notification is made to the Home Office prior to release of an offender from prison because of the degree of concern (Probation Circulars 15/1999 and 27/2000). other agencies not usually involved in the management of sex, violent, and other offenders are required to attend a meeting and participate in decision making unusual resource allocation that may require authorisation by Senior Management. there are serious community concerns/media implications.

managers and staff involved from a range of agencies relevant to the case. Attendees are required to provide a written report and submit key information and/or documents in advance of the Panel Meeting. Consideration is given to all reports, risk assessments and the views of agencies. The Panel: • • decides on the level of risk posed by the offender, agrees the action necessary to manage the risk including any contingencies. Risk Management plans will include, for example, measures to monitor behaviour, sometimes involving police surveillance, as well as the provision of resources, such as the allocation of a place at a Probation hostel and the provision of appropriate services and methods of intervention (psychiatric assessments, sex offender treatment programmes etc.) aimed at helping subjects

The panel is chaired by the MAPPA Co-Ordinator. MAPPP meetings are minuted in order to record exactly what information was considered and, therefore, on what basis decisions were made. MAPPP minutes are considered highly confidential documents and will only be shared with parties not attending MAPPP meetings where this is necessary in order to protect the public. People whose names are placed on the Very Dangerous Offender Register are usually informed that this is the case. However, where the Panel takes the view that such disclosure would increase the risks to potential victims or the public in general then this information can be withheld. Cases registered by the MAPPP are regularly reviewed in order to assess progress in implementing the agreed risk management plan and to take account of changed circumstances. In addition to any review that the MAPPP may undertake, the supervising Probation Officer prepares a review of the supervision plan for the offender at least every four months. The degree of risk is reassessed. The plan is presented at a supervision meeting between the Probation Officer and Senior Probation Officer who endorses or amends the plan. It is then passed to the Assistant Chief Officer (Probation) or Detective Chief Inspector (Police). They discuss and endorse the review or refer it back to the Senior Probation Officer for further action. RAMPs are convened with all relevant agencies participation. The panel shares information on the offender, decides upon the level of risk posed by the offender, and recommends the action necessary to manage the risk. RAMP reviews are held to monitor and ensure the

work with the relevant agencies to reduce the risks they pose to others. • considers the need for community disclosure and other community issues. • agrees a media strategy where appropriate. • determines if the case should be placed on the Dorset Police/Probation Service (Dorset) Very Dangerous Offender Register. In order to ensure consistency and objectivity, all MAPPP meetings adopt a standard agenda. MAPPP meetings usually take about an hour to consider each case. Typically, five cases will be considered by the Dorset MAPPP each month. Some of these will be previously considered cases that are due for review.

The MAPPP meets every month to consider those cases which are assessed as posing the highest and most imminent risk of harm to others. All cases are considered by a group of senior

implementation of the agreed action and review the level of risk and the action plan in light of any changes in circumstances or behaviour. Offenders under Probation supervision who are considered

by RAMPs are reviewed by the supervising Probation Officer at least every four months and the reviews are discussed by the Probation Officer and Senior Probation Officer who endorses or amends the proposed plan. The Police and any other agency

involved are contacted to ascertain if there is further relevant information. MAPPA cases are reviewed taking into account the case circumstances but within a maximum period of three months.

9. Strategic Management of MAPPA
The MAPPA Strategic Management Board includes representation at a senior level from the Police, Probation, Social Services, Health, Housing, Education, Youth Offending Teams, NSPCC and Dorset Prisons. The group: • develops and agrees local policies and procedures for inter-agency work to protect the public within national guidance, • encourages and helps to develop effective working relationships between different services and professional groups, based on trust and mutual understanding, ensures that there is a level of agreement and understanding across agencies about operational definitions and thresholds for intervention works in conjunction with the Dorset, Bournemouth and Poole Area Child Protection Committees, the countywide Adult Protection Committee, the Mentally Disordered Offenders Strategy Group, and Housing strategy groups, improves local ways of working in the light of knowledge gained through national and local experience and research and ensures that any lessons learned are shared, understood, and acted upon. helps to improve the quality of public protection work and of inter-agency working through specifying needs for inter-agency training and development, and ensuring that training is delivered, audits and evaluates how well local services work together to protect the public, determines community and media communication,

10. Statistical information

Number of offenders


The number of registered sex offenders in the community on 31 March 2003



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



The number of Sex Offenders Orders applied for and gained between 1 April 2002 and 31 March 2003

(a) (b) (c) iv

The total number of Sex Offenders Orders applied for The total number granted The total number not granted The number of Restraining Orders issued by the courts between 1 April 2002 and 31 March 2003 for offenders currently managed within MAPPA The number of violent and other sexual offenders considered under MAPPA during 1 April 2002 and 31 March 2003 (as defined by section 68 [3], [4], and [5]) 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 two categories, as defined by s.67[2b] 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: MAPPP – registered sex offenders

0 0 0










MAPPP – violent and other sex offenders



MAPPP – other offenders Of the cases managed by the MAPPP during the reporting year what was the number of offenders: Who were returned to custody for breach of licence Who were returned to custody for breach of a Restraining order or Sex Offender Order Charged with a serious sexual or violent offence









APPENDIX A National Probation Service Dorset Area contact for enquiries.
Job Title: Assistant Chief Officer (Public Protection) Wadham House 50 High West Street DORCHESTER DT1 1UT 01305 228046

Dorset Police contact for enquiries.
Job Title: Detective Chief Inspector HQ C.I.D Support (MAPPA Co-Ordinator) Dorset Police Force Headquarters Winfrith DORCHESTER DT2 8DZ 01305 223878

Probation/Police MAPPA Secretary

Dorset Police 01202 222031 Sex Offenders Investigation Unit Bournemouth Divisional Headquarters Madeira Road Bournemouth

APPENDIX B Victim support services in Dorset
Victim Supportline Tel: 0845 30 30 900 Victim Support Dorset, Barnack Chambers, 9-9A West Street, Blandford, Dorset DT11 7AW Tel/Fax:01258-453100 Supports victims, witnesses and family members who have experienced crime. SAMM South Christine and Ron Tel/Fax:01305-787869. Offers support after murder, manslaughter or unlawful killing. Rape Crisis Line 01202-547445. 24 hour answerphone line offering confidential support to woman and girls who have been raped or sexually abused. Dorset Women’s Outreach Project 01305-768999. Confidential service for women and families with experience of domestic violence in West Dorset Poole Domestic Violence Project 01202-710777. Confidential service for Women and Families Bournemouth Women’s Helpline 01202-547755. Confidential 24hour Helpline with refuge and outreach facilities for women and families Police Domestic Violence Co-ordinator 01202-222451. Police Domestic Violence Units: Bournemouth Division 01202-222374 Poole Division 01202-227835 Eastern Division 01202-226253 Western Division 01305-226547 Social Services Departments: Dorset County Council: Policy Officer for Child Protection County Hall, Dorchester DT1 1XJ Tel: 01305-224643 Borough of Poole: Children and Families 14A Commercial Road, Poole, BH14 0JW Tel:01202- 735046 Borough of Bournemouth: Children’s Services New Century House, 24 Christchurch Road, Bournemouth, BH1 3NL Tel: 01202 458000 StoP – Supports mothers of children who have been sexually abused PO Box 4493, Boscombe, Bournemouth, BH1 4YZ Tel: 01202 773667 (24 hour answerphone, answered Monday and Tuesday 10.30-12.30)