DEVON AND CORNWALL AREA

Multi-Agency Public Protection Arrangements

Annual Report 2005-6
Foreword by Gerry Sutcliffe MP
Making our communities safer
and reducing re-offending is our
highest priority and one of our
biggest challenges. That is why
the work undertaken through these
multi-agency public protection
arrangements (MAPPA) is so
important. The supervision and
management of sexual and violent
offenders who pose the highest
risk of serious harm, whether in
the community or in custody, is
complex and challenging; and is
an aspect of public service where
the public rightly expects all
reasonable action to be taken.
Although we have made significant
progress in the last five years
with the development of MAPPA
across England and Wales, the
review this year of a number of
tragic incidents where people have
been murdered or seriously injured
reminded us of the importance of
reviewing performance, improving
practice and learning lessons.
It is vital that these tasks are
undertaken by the probation,
police and prison services, as well
as by those other agencies that
contribute to the assessment and
management of offenders. The
publication of MAPPA Business
Plans by each Area in this year’s
annual reports offers a helpful and
necessary programme of local
development and review and must
lead to enhanced practice. It will
be essential that this progress is
transparent and shared with local
communities.
In addition to this, however, it is
important that no opportunity
is missed to consider other
measures that will further enhance
public safety. That is why we
are undertaking the Child Sex
Offender Review, to look at how
a particular group of offenders,
who provoke anxiety for many, are
best managed in the community.
The review is consulting a wide
range of practitioners and key
stakeholders including the MAPPA
lay advisers, and will report around
the end of the year.
Finally, in commending this
report to you, I want to take the
opportunity to thank all those
involved locally in working with
sexual and violent offenders, or in
ensuring that these arrangements
are fit for purpose. Where MAPPA
is working well it is based on
maintaining high professional
standards and effective multi-
agency collaboration in the delivery
of robust risk management plans.
While it is not possible to eliminate
risk entirely, where all reasonable
action is taken the risk of further
serious harm can be reduced to a
minimum and fewer victims will be
exposed to repeat offending.
Gerry Sutcliffe MP
Parliamentary Under Secretary
of State for Criminal Justice and
Offender Management
Introduction
We are pleased to present the fifth
Annual Report about the work of
Devon & Cornwall’s Multi-Agency
Public Protection Arrangements
(MAPPA). This report offers our local
communities a unique insight into
how the management of dangerous
offenders is carried out to ensure
their safety.
It reflects the combined activities of
the ‘Responsible Authority’ – Police,
Probation and the Prison Service,
and our partners such as education,
social services, health, housing and
the Youth Offending Service.
Public Protection remains an
immensely challenging area of
work and we acknowledge the
enthusiasm and commitment of
professionals and volunteers across
a wide range of disciplines who work
together in ensuring public safety.
There is increasing public and media
scrutiny of Public Protection issues
and this report offers an opportunity
for a glimpse at the otherwise
un-publicised side of MAPPA. An
immense amount of co-operative
work is undertaken by the agencies
involved, in order to reduce risk to
the public. We hope that this report
will enlighten as well as reassure.
We commend this report to you
with our continued commitment
to further strengthening the public
protection arrangements that
safeguard the public of Devon and
Cornwall.

Nigel Arnold Mary Anne McFarlane

Chief Constable Chief Officer
Devon and Cornwall Constabulary Devon and Cornwall Probation Area

Alan Scott
HMP Regional Manager
(South West)
What is MAPPA?
MAPPA stands for Multi Agency
Public Protection Arrangements.
The MAPPA grew out of the closer
working relationship between
the police and probation (and
increasingly other agencies) in the
late 1990s.
The Criminal Justice and Court
Services Act 2000 placed a legal
requirement on all areas to establish
Multi Agency Public Protection
Panels (MAPPP’s) in order to
assess and manage offenders who
pose a high risk of serious harm to
the public. Police and Probation
were defined as the Responsible
Authority required to lead on this.
The Criminal Justice Act 2003
has re-enacted and strengthened
the MAPPA legislation, engaging
the Prison Service as part of the
Responsible Authority and placing
a Duty to Co-operate with MAPPA
on a range of other agencies and
organisations.
The Sexual Offences Act 2003
overhauls the many antiquated
sexual offences and plugs
loopholes in the law. In updating
sexual offences, it strengthens the
law on rape and on sex offences
against children. The Sexual
Offences Act also strengthens the
sex offenders register, which has
proved a valuable means by which
the police can monitor convicted
sex offenders within their area, also
introduced were new civil orders to
help prevent further offences from
being committed.
Who are MAPPA offenders?
Effective multi-agency public
protection needs efficient
identification of relevant offenders.
There are principally three
categories of offender who fall
within the MAPPA:
Category 1
Registered sex offenders (RSOs),
that is those sexual offenders
required to register under the terms
of the Sexual Offences Act 2003.
(Which replaced the Sex Offender
Act 1997);
Category 2
Violent offenders and those sexual
offenders who are not required to
register; and,
Category 3
Any other offender who, because
of the offences committed by
them (wherever they have been
committed) are considered to
pose a risk of serious harm to the
public. Offenders must have been
convicted of an offence which
indicates a capability of causing
serious harm to the public AND
the responsible authority must
reasonably consider that he/she
may cause serious harm to the
public.
Offenders from category 1 and 2
who still pose a risk at the point
they leave the MAPPA (i.e. at the
end of registration), can be included
under category 3.
How are they managed?
In Devon and Cornwall, all offenders
falling under the MAPPA are
assessed to determine the levels
of risk they pose to the public. This
assessment is carried out primarily
by staff from the probation area
and the police, sometimes jointly.
Validated methods of assessment
are used alongside professional
judgement to determine those
offenders who form part of the
‘critical few’ seen as posing a
very high risk of harm and those
who, although not in the highest
category, still pose a high risk of
causing harm to the public
A three-tier system is used for
dealing with offenders. The purpose
of the three tier system is to ensure
that the most high risk of harm
offenders receive the greatest
degree of scrutiny and oversight.
The three tiers are:
• Level 1:
Where the risks posed by offenders
can be managed primarily by one
agency (usually police, probation
or Prison Service) without actively
or significantly involving other
agencies.
• Level 2:
Local inter-agency risk management
– Where there is ‘active
involvement’ of more than one
agency in risk management plans,
either because of a higher level of
risk or because of the complexity of
managing the offender.
What is MAPPA?
• Level 3: Multi Agency
Public Protection Panel
(MAPPP):
Where offenders, assessed as
Very High risk, often referred to
as ‘the critical few’, are assessed,
managed and reviewed at a senior
level by all the agencies that play a
part in MAPPA.
What are MAPPP’s?
A Multi Agency Public Protection
Panel is a regular meeting of
agencies concerned with the
management of registered sex
offenders, violent offenders, and
other offenders who present the
highest levels of risk.
The purpose of the meeting is to
enable information to be shared
between the agencies so that the
best possible assessment of risk
can be made in respect of these
offenders.
An agreed risk management plan is
then developed for each offender
based on their risk assessment
Who sits on MAPPP’s?
MAPPPs in this area are chaired
by the MAPPA Manager, who is
a Senior Probation Officer. The
MAPPA co-ordinator assists the
MAPPP, recording the actions that
form part of the public protection
plan. The core members of the
panel are the police, probation
service, social services and
housing.
The prison service, education,
health and other professionals
attend as appropriate to the
individual cases under discussion
What can a MAPPP do?
A panel can advise particular
agencies of action they might take
to improve public protection and
effectively manage risk in individual
cases.
Usually the agencies present will
agree a range of measures, which
collectively form a public protection
plan.
This might include, for example,
restrictions or controlling measures,
accommodation, supervision or
treatment requirements, sharing of
information, advice to the offender
or potential victims or co-ordination
of contact arrangements.
In addition, the police will discuss
applications for Sexual Offences
Prevention Orders (SOPO’s) with
the panel. Panels are also the forum
for considering any form of public
disclosure.
What about confidentiality?
Information shared at MAPPPs
is confidential to the agencies
represented and will only be used
as agreed for the protection of the
public.
Each agency represented is
responsible for ensuring the
information and documentation are
handled and stored securely.
Do victims have direct
access to MAPPP’s?
No - the meeting itself is confined to
representatives from agencies and
organisations involved in MAPPA.
However, the views and concerns
of victims are crucial in helping
the agencies decide on the most
appropriate strategies for managing
individual offenders, and depending
on the circumstances of the case,
one or more of the MAPPA agencies
– eg; Social Services, NSPCC,
Probation, Police- will be able to
represent the interests of victims
and to make their views known.
Do offenders attend
MAPPP’s?
No – again, the meeting itself
involves only the MAPPA agencies.
Offenders’ views will usually be
known by police and/or probation.
They are informed that they are
being managed through a multi
agency process, and key decisions
about managing the risk they pose
will usually be passed on to them
by their probation officer or the
police offender manager, unless this
information is sensitive and needs
to be kept confidential in order to
protect known victims or the public
at large.
Local developments in 2005 – 06
• MAPPA Business Plan
Following guidance received from
the Responsible Authority National
Steering Group a local MAPPA
Business plan is being developed by
the Strategic Management Board.
This is covered in more detail within
the SMB section of this report.
• Violent and Sex Offender
Register (ViSOR)
The computer application
ViSOR (Violent and Sex Offender
Register), developed by PITO
(Police Information Technology
Organisation) to assist in the
monitoring and management
of sexual and violent offenders
went fully operational in Devon
& Cornwall Constabulary on 3rd
October 2005.
Once fully implemented ViSOR
will allow all information regarding
dangerous and sexual offenders
to be shared nationally between
Police, Probation and the Prison
Service. This information will be
available 24 hours a day, 365 days a
year. It is anticipated that ViSOR will
begin to be rolled out to Probation
and the Prison Service this year.
ViSOR is now fully populated with
details of all the Registered Sex
Offenders in Devon & Cornwall
together with all MAPPA level
3 offenders. All records are
maintained to a corporate standard
and the database has already
proven itself as an effective means
to transfer information on these
individuals between police forces.
ViSOR is now being used as a
recording medium through which
Registered Sex Offenders, via
personal attendance at prescribed
police stations register their
addresses, and for recording details
of home visits undertaken by police.
The database is a vital tool for
protecting the public. All core users
of the system have been trained in
its use and a dedicated Systems
Administrator is in post. Two further
posts within the Public Protection
Unit have been filled to assist in the
development of this important area
of work, and the efficient use of
ViSOR as a research and pro-active
tool in the management of violent
and sexual offenders.
• Approved Premises
There are two Home Office
Approved Probation Hostels in
the Devon and Cornwall Probation
Area, Lawson House in Plymouth
and Meneghy House in Camborne.
Hostels help Probation and other
criminal. justice agencies to protect
the public and reduce re-offending.
The Hostels are staffed at all times
and Hostel residents must abide
by a strict set of rules. Failure to
comply results in enforcement
action being taken.
Information about the Hostels has
been made available in leaflet form
to people who live in the vicinity of
the Hostels and copies have been
sent to local Libraries. In addition
community stakeholder groups
exist around the Hostels, and
meetings involving representatives
from the local communities are held
on a regular basis. Following these
meetings Press briefings are issued,
to further inform the general public
about the work of the Hostels.
Information about the Hostels has
also been communicated directly
to the Head Teachers of schools in
the locality of the hostels, to ensure
that they are aware of the aims and
objectives of the hostels, should
they receive any concerns from
parents.
Andy Cookson, Hostels
manager said, “An
approved premise (hostel) is
not just somewhere to live. It
is a structured and supportive
environment where residents
have the opportunity to rebuild
their lives whilst under close
supervision.”
• HM Prison Service
In April 2004 the Prison Service
joined the Police and Probation
as the third member of the
Responsible Authority. The Prison
Service contribute to the MAPPA
at two key levels, joining the
Strategic Management Board but
also providing important continuity
between the management of
offenders in prison and the
community. The Prison Service will
ensure that prisoners subject to
MAPPA are identified as early as
possible within their sentence and
referred to the MAPPA co-ordination
process. A risk assessment tool
is used to assess initial and
subsequent assessments of risk
of harm to others. Prisons will also
provide information about release
dates and, where relevant, about
an offender’s behaviour in prison
to ensure that the MAPPA risk
assessment process is informed
about factors relating to risk.
Officers of appropriate grades will
also contribute to the development
of risk management plans and
attend MAPPA panels.
Local developments in 2005 – 06
During 2005 HM Prison Service,
South West Area, produced a
‘Statement of Commitment’ to
the Devon and Cornwall MAPPA,
this document sets out how the
Prison Service will engage with its
partners in the practical delivery
and development of MAPPA.
• MAPPA Improvement and
Development Team
In the 2004/2005 Annual report we
advised you that in March 2005 the
Police and Probation services in
Devon and Cornwall were visited
and reviewed by staff from HM
Inspectorate of Constabulary and
HM Inspectorate of Probation. This
Area was one of five Areas chosen
from across the country. The purpose
of the review being to analyse and
assess the progress, quality and
effectiveness of the implementation of
MAPPA and interventions used by the
Police and National Probation Service
in relation to the joint management of
sex offenders in our community.
Initial feedback from the review
team was received under headings
of ‘strengths,’ ‘good practice’ and
‘areas for consideration.’
Examples of strengths and good
practice identified by the Inspection
were:
• The strong working relationship
displayed between police and
probation.
• The dedicated MAPPA Manager
and Co-ordinator.
• Strong police policy, with
associated guidance.
• The resources allocated to the
Headquarters Public Protection
Unit.
• The co-located joint police and
probation teams sited within
each Basic Command Unit.
• The innovative work to identify
potentially dangerous offenders.
Examples of areas for consideration
were:
• To improve the quality of and
timeliness of risk of harm
assessments.
• To improve the understanding
of MAPPA issues amongst field
officers.
• To review the current levels of
supervision of officers engaged
in public protection work.
To respond to ‘the areas for
consideration’ the Strategic
Management Board commissioned
a ‘project improvement team,’
chaired by an Assistant Chief
Probation Officer, to formulate
action plans in order to seek
resolution to some of the issues
raised by the Inspectorate team.
The majority of the initial ‘areas for
consideration’ raised by the Joint
Inspectorate team have now been
addressed, with progress reports
being submitted to the Strategic
Management Board.
The full report of the HMI’s was
subsequently made available to our
area in December 2005.
As a result, the full set of
recommendations detailed
within the full report have been
identified, and in response the
‘project improvement team’ has
been strengthened to include multi
agency partners under the banner
of ‘MAPPA Improvement and
Development Team’ (MIDT).
The MIDT is now chaired by a
Detective Superintendent, who
will ensure that the strengths and
learning points coming out of the
review will continue to be used to
help us develop, not only our own
practices, but potentially those
within other areas as well.
• Lay Advisers
In January 2005 as a part of the
nation-wide appointment of Lay
Advisers to every ‘Responsible
Authority’ for the MAPPA, in the 42
Areas of England and Wales, Devon
and Cornwall MAPPA inducted
two members of the public to act
as ‘Lay Advisers’ to the MAPPA
Strategic Management Board. This
was a requirement of Section 326(3)
of the Criminal Justice Act 2003.
The Lay Advisers play an important
part in the review and monitoring
of the MAPPA, and as such
offer significant benefit to the
Responsible Authority in reflecting
the views of ordinary members of
the public in respect of sensitive
public protection issues
The value of the ‘Lay Advisers’ role
is essentially twofold. First, they
represent a community interest
in public protection. This does
not mean that the Lay Advisers
represent the public in the way, for
example, that local councillors do:
Lay Advisers cannot ‘report’ to the
local community independently
or canvass views in the way
that elected representatives do.
Secondly, their value lies in what
they bring to the Responsible
Authority, which is essentially a
Local developments in 2005 – 06
different perspective from that of
the professional interests in the
MAPPA.
The Lay Advisers, are not paid, they
attend at least four meetings of
the Strategic Management Board
a year. They are not expected to
become involved in the monitoring
of dangerous offenders. Instead
their role is to observe and question
the arrangements for managing
such people in the community - to
be “critical friends”.
• A message from the
Devon and Cornwall
MAPPA Lay Advisers
Introduction
This is our second contribution to
the Annual MAPPA Report since
being appointed in January 2005.
We concluded last year’s report by
stating that….“The true worth of our
role …. is unlikely to be revealed for
at least another year. We consider
continuation training to be vital even
when our posts have been fully
established”. In this short article
we will examine the accuracy of
that statement, comment on the
extent to which our initial concerns
have been allayed and summarise
what national and local training
we have been involved in. We will
also consider how Lay Adviser
involvement in the MAPPA process
can be further developed.
National training
Earlier this year we were invited to
our second National Lay Adviser
Training Module and attended
separate weekends in Bristol and
Croydon. The purpose of the
training was to:
• Provide an opportunity for Lay
Advisers to meet colleagues
from other areas and reflect on
their role and experience.
• Receive additional input on
operational and strategic issues
provided by the organisers and
colleagues from the Responsible
Authority.
• Consider how SMBs can
best communicate with local
communities about MAPPA.
For both of us, it was an extremely
rewarding and informative training
weekend, covering a variety of
public protection issues, including
national developments, the
accommodation of sexual and
violent offenders, victim support,
domestic abuse, defensibility and
serious further offending.
We particularly appreciated
discussing the views and
aspirations of fellow Lay Advisers
but it was disappointing to note that
the range and quality of regional
training was very inconsistent. We
raised this issue in the 2005 report
and a national ‘best practice’
model is still awaited. We did
also observe however, that most
SMBs acknowledged the merits
of lay involvement and were very
supportive.
Local training and
involvement
We are pleased to report that since
June 2005, the Lay Advisers from
Devon and Cornwall have been full
and active members of the SMB.
Our training and lay involvement
continued to evolve and included
the following serials:
• Visit to HMP Channings Wood.
• Regular attendance at the SMB.
• MAPPA Development Day
sponsored by the NPS.
• 2005 Annual Report Press
Release
• MAPPP Level 3 Meetings.
• MAPPA Level 3 File Audit.
In our opinion, being allowed to
observe and/or participate at Level
3 plays a crucial part in reassuring
us that all agencies held public
concerns at the top of the agenda.
Most importantly, participants
were willing to make defensible
decisions and be accountable
for their actions. Here are some
observations that we recorded
during the MAPPP meetings and
File Audit:
• ‘A genuine desire for public
protection was apparent in
all cases yet the rights of the
individual offenders were also
observed’.
• ‘My overall impression was that
the Level 3 Panel meeting is
clearly an essential part of the
MAPPA process and it requires a
full contribution from all agencies
involved. Disagreements were
handled in a professional manner
allowing all parties to make
equal contribution and have
‘their say’.Clear conclusions
were reached and appropriate
follow on actions made’.
• ‘My recent attendance at the
Level 3 meeting has crystallised
the MAPPA process for me and
in many ways has been the
Local developments in 2005 – 06
climax of my involvement over
the last year’.
• ‘The audit helped to develop
a best practice model by
focussing on suggested
assessment tools. This is likely
to be a long process’.
• ‘We had initial concerns about
the desired outcomes, a view
shared with the senior managers.
It was therefore good to see
that the outcomes were actually
developed by the participants
themselves’.
• We were pleased to note that
the conduct of the audit was
clearly an honest process and
all agencies acknowledged that
there are failings in the systems
and they are keen to make
improvements.
• ‘During a review of the Level
3 cases we looked at, except
in one specific case, we were
content that the crucial/critical
assessment information was in
place and was being shared by
all appropriate agencies’.
In addition to the above activities,
a Lay Adviser attended the Annual
South West MAPPA Seminar,
hosted by the Avon and Somerset
Police Headquarters in Portishead.
This was an important meeting,
which included an overview of
current and future MAPPA policy,
strategic planning, learning from
inspections and how Circles of
Support and Accountability can
support the management of high-
risk offenders in the community.
Most recently, the SMB has
commissioned a MAPPA
Improvement Development team
(MIDT) to further develop multi
agency practice in our area. A lay
adviser sits on the Team.
Future learning needs and
expectations
Since last year’s report it is clear
that locally considerable progress
has been made in integrating
lay membership into the MAPPA
process. Similarly, the overall
concept of public protection is
being continually monitored and
developed nationally. We stated
in the introduction that, “The true
worth of our (Lay Advisers) role
is unlikely to be revealed for at
least another year”. As we go to
print today, that prediction has
been accurate. From a personal
perspective therefore, we can say
our individual roles do have value
and are, in the main, worthwhile
and fulfilling. Questions we have
not addressed in detail however is
how can SMBs best communicate
MAPPA issues with local
communities? In addition, how can
we quantify the broader value of
the lay adviser? There is certainly
further work to be done in achieving
full agency collaboration during the
SMB meetings. We feel that these
issues merit further development.
We also stated in the introduction
that, “We consider continuation
training to be vital even when our
posts have been fully established”.
Following a relatively slow start
in early 2005, our training and
learning needs have been largely
acknowledged and our skills are
being enhanced. It is good to
note also, that our involvement
is increasing in line with the
momentum that is gathering
throughout the overall public
protection field.
In our opinion there are still
procedural improvements to be
made, but because MAPPA is
such a dynamic process and deals
with inherent risk on a daily basis,
perfection is not achievable and
some errors will be inevitable. In
general however, the lay advisers
remain fully committed to support
the hard work and dedication to
duty that is so apparent among
all members of the Responsible
Authority and the Duty to Co-
operate agencies.
National developments in 2005 - 06
Please see Appendix A at the end of this document for

MAPPA – the First Five Years

‘A National Overview of the Multi-Agency Public Protection Arrangements 2001 - 2006’
The Strategic Management Board (SMB)
The role of the Strategic Management
Board (SMB) is to establish, monitor
and review the Multi-Agency Public
Protection Arrangements.
In order to achieve this very broad
brief the SMB has 5 main key
activities:
• Monitoring (on at least a
quarterly basis) and evaluating
the operation of the MAPPA,
particularly that of the MAPPP’s.
• Establishing connections which
support effective operational
work with other public protection
arrangements, such as Local
safeguarding Childrens Boards,
local Crime and Disorder
Partnerships and local Criminal
Justice Boards.
• Preparing and publishing the
Annual Report and promoting
the work of the MAPPA.
• Planning the longer-term
development of the MAPPA.
• Identifying and planning training
and developmental needs of
those working in the MAPPA.
The SMB also: -
• develop and agree 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 In the light of these findings and
thresholds for intervention; recommendations the Responsible
Authority National Steering Group
• improves local ways of working
(RANSG) has determined that all
in the light of knowledge gained
Areas need to develop MAPPA
through national and local
Business Plans, initially for 2006/7,
experience and research and
and set within a three year planning
ensures that any lessons learned
process. In order that Area plans
are shared, understood, and
are consistent and address the
acted upon.
key issues that will strengthen
and help standardise public
MAPPA SMB Business Plan protection practice. The RANSG
Recent research conducted on has developed a national MAPPA
behalf of the Home Office by De business plan for 2005/8.
Montfort University into MAPPA, and
The Devon and Cornwall Area
a joint thematic inspection by the
MAPPA Business Plan is currently
Probation and Police Inspectorates,
being developed and will broadly
have highlighted Nationally the
encompass the following four
variable development of strategic
strategic aims, some of which, it
management boards and in some
should be noted, are already well
areas the inconsistent delivery of
established within Devon and
their key activities. ‘While there
Cornwall:
are a number of areas where the
SMB is performing well, and where 1. MAPPA Development
public protection arrangements are Strategy
modified to ensure best practice,
a) Achieve dedicated MAPPA
the level of performance generally
Coordination & Administration
across England and Wales has the
capacity across all MAPPA
potential for strengthening and
SMBs during 2006/07
improvement’.
The Strategic Management Board (SMB)

2. Monitoring and 4. Training Strategy All agencies will now contribute to

Development Strategy a) MAPPA SMBs include a training
the following five key outcomes for
children:
a) MAPPA SMBs implement strategy in business plans, to
Business Plan for 2006/07 which address: • be healthy
will incorporate monitoring
• Induction to MAPPA for new • stay safe
arrangements to support:
practitioners
• enjoy and achieve
• publication of Annual Report
• Training for MAPPA SMB
• make a positive contribution
• analysis of use of MAPPA risk members
management thresholds at • achieve economic well being.
• Training for MAPPA Co-
Level 2 & 3
ordinators and Administrators The key focus of the LSCB will
• analysis of MAPPA offenders be to safeguard children, whilst
who commit serious further also contributing to the other key
Membership of the SMB
offences (PC 54/2003) outcomes.
The current chair of the SMB is
• analysis of attendance and an Assistant Chief Constable from Safeguarding and promoting the
level of cooperation of Devon and Cornwall Constabulary. welfare of children is defined as:
agencies contributing to
Level 2 & 3 meetings All agencies on the SMB are • protecting children from
represented by senior managers, maltreatment
• analysis of diversity profile of
except the police and probation • preventing impairment of
offenders assessed at Level 2
services where chief officers are children’s health or development
and Level 3.
considered the appropriate rank for
the level of responsibility. • ensuring that children are
3. Communication & growing up in circumstances
Strategic Partnership Details of the SMB members can be consistent with the provision of
Strategy found within the Contacts Section safe and effective care
of this report.
a) The Responsible Authority for • undertaking that role so as to
MAPPA to publish annual report, enable those children to have
in consultation with Lay Advisers Local Safeguarding Children optimum life chances and enter
and SMB, and supported by Board adulthood successfully.
Ministers and the collation of The Children Act 2004 required Members of the LSCB sit on the
national MAPPA data from PPLU each local authority to establish a MAPPA Strategic Management
each year. Local Safeguarding Children Board Board, ensuring a synergy of
b) Annual reports are improved and (LSCB) to replace the Area Child purpose.
developed to improve public Protection Committee (ACPC) in
understanding and engagement. April 2006.
Local Criminal Justice
c) MAPPA SMB to develop an area The LSCB is the key statutory Board
communication strategy during mechanism for agreeing how the The Devon and Cornwall LCJB is
2006/7, taking account of the relevant organisations will co- among the top performing Boards
national strategy devised by the operate to safeguard and promote in the country and is committed
RANSG and shared with areas the welfare of local children, and for to the continual improvement of
by April 2006. ensuring the effectiveness of what the delivery of justice within the
they do, both as individual agencies peninsular. The Devon and Cornwall
and in partnership. LCJB is actively involved in the
multi-agency co-ordination of
The Strategic Management Board (SMB)
national and local initiatives, aiming
to reduce fear of crime within the
local community and improve public
confidence in the Criminal Justice
System. Currently Chaired by
Chief Probation Officer Mary Anne
McFarlane and previously by Chief
Constable Maria Wallis (retd), the
Board includes representatives from
the Crown Prosecution Service,
Magistrates’ and Crown Courts,
Youth Offending Teams, the police,
probation and prison services and is
accountable for:
• the delivery of criminal justice
system objectives
• improvements in the delivery of
justice
• the service provided to victims
and witnesses
• securing public confidence
In addition to these overarching
national objectives, at a local
level, the Devon & Cornwall LCJB
strategy for 2005-08 will focus more
specifically on:
• increasing public confidence and
reassurance – reducing incidents
of hate crime, improving equality
and increasing community
engagement and enhanced file
preparation and charging
• narrowing the justice gap
– targeting prolific offenders,
effective trail management
• improving services to victims
and witness care
• reducing incidents of domestic
violence
• reducing drug and alcohol
related crime and disorder
• supporting young people and
tackling persistent young
offenders
• improving inter-agency
communication
To ensure consistency across
all partnership bodies, the
Local Criminal Justice Board
is represented on the MAPPA
Strategic Management Board.
 A look at MAPPA partners
Whilst some offenders can be
effectively managed by the actions
of one agency alone, all agencies
need the co-operation of others to
discharge their public protection
duties effectively. Development of
effective partnerships is pivotal to
how these principles are achieved.
Police, Probation and Prison staff
take the lead in the operation of
MAPPA in Devon and Cornwall,
but they cannot achieve effective
management of high risk of harm
offenders without co-operation and
joint working arrangements with
other agencies.
The agencies who have a ‘duty
to co-operate’ (as defined in the
Criminal Justice Act 2003) include:
• Local Authority Social Services,
• Ministers of the Crown
exercising functions in relation to
Social Security, Child Support,
War Pensions, Employment and
Training,
• Primary Care Trusts, other NHS
Trusts and Strategic Health
Authorities
• Jobcentres Plus
• Youth Offending Teams
• Registered Social Landlords
which accommodate MAPPA
offenders
• Local Housing Authorities
• Local Education Authorities
• Electronic Monitoring Providers
Social Services
Social Services Departments in
Devon and Cornwall have a statutory
duty to provide for the protection
of children and vulnerable adults.
Their representatives contribute to
the multi agency assessment and
management process, attending
MAPPP meetings, providing written
and verbal reports where appropriate
and working closely with all relevant
agencies in the implementation of
supervision plans.
A member of Devon Social Services
works within the Public Protection
Unit at police headquarters. This
allows the facilitation of a cross flow
of relevant information between the
agencies.
Health Service
Health Service staff who
provide a range of services,
including community mental
health, psychiatric and forensic
assessments. Local forensic
psychologists provide assessment
and treatment packages for
offenders where appropriate.
Health professionals attend multi
agency meetings and contribute to
assessments and supervision plans.
Youth Offending Teams (YOTs)
The Youth Offending Team Manager
for Cornwall and the Isles of Scilly
represents the four Youth Offending
Teams in Devon and Cornwall at the
Strategic Management Board.
Although the MAPPA deal primarily
with adults, some young offenders
(those under 18 years) meet the
criteria for inclusion in the process.
Criminal Justice Services have a
duty to ensure that all offenders are
assessed for the risk they pose to
others, the Youth Offending Teams
have a duty to co-operate in this
work. There are occasions when
a small number of young people
need to be subject to the scrutiny
and intense supervision, because
of the nature of the offences they
have committed. The necessary
communication linkages between
the MAPPA Board and Children
Safeguarding Boards are in place
to ensure that young offenders are
also appropriately protected.
YOTs have a wealth of information
and assessment to offer and often
have had considerable contact
with the offender and their family.
They are able to collaborate with
others in developing and delivering
plans to manage risk for those
offenders for whom they are directly
responsible, and often for some
time after they become adults.
The Youth Justice Board has rolled
out training on risk issues and all
Youth Offending Teams are going
to train their staff in assessment
and management of risk. The
YOTs in Devon and Cornwall have
arranged that the MAPPA Manager
undertakes a presentation about
the MAPPA arrangements at the
training events.
Housing
The Housing Act 1996 and the
Homelessness Act 2002 place a
duty on the Housing Departments
of Local Authorities to provide
accommodation for people who are
considered to be “ in priority need”
in accordance with homelessness
legislation, provided that they have
not made themselves homeless
intentionally.
 A look at MAPPA partners
Cases where a duty applies include
the re-housing of those offenders
convicted of offences against
children, following their release
from prison or other institution.
Cases such as this always provide a
challenge for Housing Officers.
Re-housing decisions are only
made following the involvement of
the statutory agencies that form the
MAPPA and a comprehensive “risk
assessment” process being carried
out.
When considering re-housing
the MAPPA have to have regard,
not only to the needs of the
applicant but also the needs of the
community. Such an assessment
has to consider matters such as –
• Proximity of the proposed
accommodation to public open
spaces e.g. parks and public
conveniences, public facilities in
the neighbourhood e.g. schools,
village halls and youth clubs and
the residents of the neighbouring
properties.
When all these factors have
been assessed appropriate
accommodation is allocated. During
this process Housing Officers
will consider all housing options
which are available including
accommodation owned and
managed by Housing Associations
also known as Registered Social
Landlords and private sector
landlords.
During the whole of this process
careful consideration always has
to be given to the applicant’s
confidentiality.
Why is this process so
important?
Graham Davey Housing Needs
and Enabling Manager. ‘Research
has shown that two thirds of
individuals are likely to re offend
in the 12 months following release
if they are not provided with
appropriate accommodation.
However this figure falls to
one quarter if appropriate
accommodation is provided’.
NSPCC
The NSPCC is very interested in
being represented on the MAPPA
Strategic management Board in
order to progress aims we share
with other agencies. Our interest is
to prevent further harm to children
and young people and to protect
them and their families from further
crime and abuse.
We are new to this forum and are
also learning from partner agencies.
We have a contribution to bring as
the major UK Charity concerned
with the prevention of cruelty to
children, and are pleased to belong
to the board.
Our projects in Devon and Cornwall
include risk assessments and direct
work with adults who cause sexual
harm to children, and assessments
in cases of young people who
cause sexual harm to others. A
proportion of these cases involve
MAPPA procedures in addition to
child protection concerns.
For the last 12 years the NSPCC
has delivered a Young Witness
preparation and support service to
children and young people across
Devon and Cornwall who are
required to give evidence in criminal
proceedings relating to child abuse.
The majority of young people
referred to the project are victims of
sexual assault.
The NSPCC is represented on the
victims and witnesses group of the
Devon and Cornwall Local Criminal
Justice Board to advocate on behalf
of young people in the criminal
justice system.
The focus on victims
Devon and Cornwall Probation Area
employs Victim Liaison Officers,
whose role is to consult and advise
victims of sexual and violent offences,
in accordance with the Criminal
Justice & Court Services Act 2000
and the Victims Charter. In 2005/2006
95% of victims were contacted within
8 weeks of the offender’s sentence, in
accordance with National Standards
and the Victims Charter.
The Domestic Violence, Crime
and Victims (DVCV) Act 2004 has
extended the duty to contact victims
of mentally disordered offenders, in
certain circumstances. This includes
victims of offenders transferred from
prison to hospital for psychiatric
treatment, as well as offenders
subject to hospital orders with
restriction orders. Victims will have an
opportunity to make representations
to the Home Secretary or Mental
Health Tribunal about the conditions
of a patients discharge.
Victim Liaison Officers attend MAPP
panels, to ensure that the victim’s
perspective is taken into account
where possible, in the formulation
of risk management plans and to
represent the victim’s interests.
The protection of victims is at
the core of multi-agency public
protection. In cases where children
are victims, the Victim Liaison
Officers will work with Social
Services directly to ensure that child
protection measures are maintained.
Where there is no Social Services
involvement they will contact parents
or guardians directly.
Other agencies who are directly
involved with Victim Liaison Officers
in supporting victims interests include
Victim Support Service, NSPCC,
Police Domestic Violence Units and
Police Family Liaison Officers.
All agencies through the MAPPA
processes aim to maintain an active
awareness of the victim impact issues
when considering risk management
arrangements. In particular there
may be considerable anxiety on the
part of victims in the way information
has been exchanged fearing re-
victimisation should the offender
learn of their concerns.
One of the main issues is considering
licence conditions, which aim to
deter the offender from making
contact either directly or indirectly
via telephone, letter, or third party
contact. The victim is advised as to
their part in the enforcement process.
In some cases Home office alarms
are fitted in the victims home to
ensure an immediate appropriate
response. Also exclusion zones can
be identified by way of preventing an
offender from seeking to intimidate
and harass victims in their home area.
Prevention of victimisation is a central
and guiding principle of the work
of MAPPA and is dependent upon
effective multi agency working.
The victim perspective
within the Mappa process.
Case study
A serial rapist, approaching
release, was registered at Level
3. His release was planned by the
Supervising Officer and the MAPPP
over many months. The Probation
VLO team had been in touch with
one of the victims several times in
the course of the prison sentence,
and was well aware of her extreme
anxiety. She is the ex-wife of the
prisoner, mother of his children
and still lives in great fear of her
attacker. An exclusion from Devon
and Cornwall was requested as an
additional licence condition, and a
condition not to contact the victim
or any of their children. Both these
conditions were included in his
licence.
At the request of the MAPPP, the
prisoner was accepted as eligible
for an Enhanced Supervision place
at a Hostel well away from the
South West. He was also “tagged”,
and supervised at all times upon
release. Devon and Cornwall Police
put in detailed contingency plans to
protect the victim and her children,
and advised her on security. The
Housing Association improved
security of her home, and an alarm
system was installed.
Working together with other
Probation Areas, the Hostel
management, the Police, the
Housing Association, Victim
Support, Social Services and
Mental Health workers, the MAPPP
were thus able to ensure that
the release of this prisoner was
managed in a way that took full
account of the fears and concerns
of the victim.
Case study
Mr. R is well known in his local
community. He is understood to
have a ‘personality disorder’ which
results in him becoming aggressive
and violent over incidents during
which he perceives he has been
slighted in some way. For many
years local shops have banned him
from entering the premises and
people have lived in some fear of
The focus on victims
him, although they were supportive,
particularly of his family who were
doing their best to provide him with
a stable home.
Mr. R’s aggressive and violent
behaviour resulted in many arrests
and some community and short
custodial sentences but he always
found his way back to his mother’s
home. His behaviour was seen
to be escalating until he finally
‘snapped’ and attacked a neighbour
with a knife. The attack took place
in the neighbour’s home and it
was the actions of a relative of
the victim, who grabbed the knife,
causing injury to himself, which
prevented the victim from serious
injury, or even death. Certainly
both men felt that the offender
undoubtedly meant to kill the victim.
Through the MAPPP process the
VLO was able to feed back the
concerns of the victims and the
local community. This enabled
the panel to have a greater
understanding of the wider
implications of the offender’s
behaviour and resulted in Licence
conditions which prevented his
contact with the victims and his
family. An exclusion zone was also
agreed.
The victim and his family were
particularly nervous when release
was being considered but they
were grateful for the information
they received via the VLO and
felt somewhat reassured by the
additional Licence conditions.
The offender was released to a
Probation Hostel but this placement
soon broke down and he was
recalled to prison. This information
was relayed to the victim, for which
they were extremely appreciative.
Indeed, they wrote to the VLO to
express their thanks and to praise
the Probation Service’s commitment
to working with victims in this way.
Case study
A young man was attacked by
some youths. Two of the youths
were sentenced to 5 years for GBH.
The injuries were so severe that he
suffered long term disability. He
spent the first year of his recovery
in care which is where he was when
the Victim Liaison Officer first met
him and his father. Three years on
and the victim has returned home.
He continues to have problems with
communication and mobility. He
will never regain his former health
and abilities.
The impact of this offence on his
father has been life changing. He
feels that the sentence was far
too lenient and finds it appalling
that the charge was dropped from
attempted murder to grievous
bodily harm. He did not want the
offenders to return to the city he
lives in and keenly expressed that
he would react violently towards
them should he see them again. He
suggested that local feeling would
also be strongly negative.
The case was brought to the
MAPPA level 2 panel at Parole
stage when the victim issues were
presented. The offenders were
granted parole, but due to the
possible risk to their safety from
the victim’s father and sensitivity to
the emotional impact on the family
should the offenders return to the
area, an exclusion area was placed
around the city where the victim and
the offenders’ parents live.
Whilst the exclusion area is difficult
for the offenders’ to maintain family
links, the cases continue to be
reviewed through MAPPA giving the
opportunity to change the exclusion
areas should risk reduce.
We often see the MAPPA process
as a means to protect the victim,
but this is one example of how the
MAPPA aims to protect all members
of the public including, in some
cases, offenders.
MAPPA in action locally
Statistical Information
The statistical information regarding
the work of the MAPPA between
1st April 2005 and 31st March 2006
and a commentary on aspects of
that data can be found towards the
back of this report.
The work of HM Prison
Service Exeter
In conjunction with our partnership
agencies the core business of the
Public Protection Unit at HMP
Exeter is the timely identification,
assessment and management of
risk. Since its creation some years
ago the Public Protection Unit
has strengthened its links with the
statutory and non-statutory agencies.
The ethos of the Unit is protecting the
public from those prisoners who pose
a risk.
The Guidance provided by National
and local protocols ensures a
consistent accountable and joined-
up approach between the involved
agencies. Working together,
communicating and sharing
information are the key ingredients
when identifying, assessing and
managing risk.
The monthly Public Protection
meeting is a forum held at the
prison. At this meeting prison staff,
probation, social services and police
meet to share information and make
decisions on prisoners who present a
risk to the public.
The resources of the Public
Protection Unit follow those
prisoners who are subject to MAPP
arrangements. In such cases a
full risk assessment will be carried
out – that assessment will include
what the risk is, to who or what and
under what circumstances. The
prison will hold a meeting to discuss
the prisoner and the risk posed, if
necessary the prison will transfer or
receive such prisoners to facilitate
a discharge to the home area. For
example, a prisoner subject to MAPP
arrangements who resides in the local
area but is located in a prison outside
the area may be transferred to HMP
Exeter for local discharge.
A working day for the Risk
Assessment Officer
In a nutshell, my colleague and I
provide the link between the Police,
Prison staff and seconded Probation
officers who work in the three
prisons in Devon.
In order to achieve that truly close
working relationship, we spend at
least 3 days a week in the prisons,
where we are now co locating with
the Probation staff.
Each day brings its own problems
and successes as different prisoners
move in and out of the prison. We
make a weekly check on all reception
prisoners in an effort to identify
those public protection cases who
present a high or very high risk of
re offending, providing any current
relevant intelligence to the prison and
drawing attention to those who have
not already been identified.
Those who have been convicted of
offences against children or who,
because of other factors, present
a risk to children, are flagged on
the prison computer system. On
occasions it may well be that it is
information held by the police that
identify these persons as a risk.
Once identified such persons are
prohibited from having contact
with children. They are required to
submit an application for contact
with children from their family. These
applications are considered at a
monthly meeting which we attend
and where the views of children’s
services, probation and police are all
discussed to set the level of contact.
It may well be that it is appropriate
that no such contact should take
place. The protection of children is
paramount in all cases.
We also attend regular Multi Agency
Public Protection meetings held
in the prison to consider the risk
that prisoners, who are due for
release, pose to the public. At these
meetings information from all parts
of the prison is contributed as well
as input from the Probation Officer
who will be supervising that person
in the community, and on occasions
Police from the area into which he
is to be released. The minutes of
these meetings can then be used to
inform any MAPPP meetings that are
subsequently held in the community.
On a daily basis we receive various
items of information and intelligence
about prisoners. This is researched
and analysed where necessary. Any
perceived increase or decrease in
risk is passed to the authority who
will manage that person on release.
The development of a national
database called ViSOR has enabled
such information to be input directly
onto an offender’s record thus
ensuring that information, is not only
available more quickly, but is also
available to any authorised person
who has an interest in that offender.
MAPPA in action locally
This true partnership working with
the two other members of the
Responsible Authority enables
important information about risky
people to be shared on a daily
basis so that we can combine
our resources in managing those
persons identified as posing the
highest risk to the public.

A Day in the life of a Police

Public Protection Officer
Generally no two days are the
same. The usual understanding
of our role is that it is a series of
meetings with our partner agencies
discussing how risky or not certain
offenders are and not much more.

This could not be further from

the truth. We do attend MAPPA
[Multi-Agency Public Protection
Arrangement] meetings, but these
are confined, where possible to one
day a week for the level 2 cases and
as and when required for the higher
risk level 3 cases.
A normal day may begin with a
list of entries in my diary for tasks
to be done. These may be routine
Sex Offender home visits, specific
intervention tasks, joint visits with
either Probation or Social Services,
Research for risk assessments
and profile preparation or other
more proactive matters such as
enforcement of orders, notification
requirements or execution of
warrants and attendance at court.
However, these may all change at
short notice, each task is dealt with
in order of priority.
A check of incidents and
intelligence each morning gives us
an idea of what has been occurring
in the BCU overnight. These checks
may reveal matters that either need
our direct intervention, or advice.
Contact is made with the relevant
officers or their supervisors in order
to discuss the issues and where it
is seen as necessary we will attend
and deal or assist, which ever is the
more appropriate.
Throughout the working day we
will be in contact with not only the
police but our partner agencies
also. This may be in relation to
routine research, but may also
be in order to respond to matters
that require more immediate
action, such as joint visits, specific
intervention work or initiating an
investigation and arrest.
Our aim is to work towards a safer
community by the effective use of a
multi-agency approach to particular
problems or concerns, so reducing
the opportunity or motivation for
offenders to re-offend.
MAPPA in Action case
examples
The following are examples of
cases, which have been managed
using the MAPPA processes.
Case Example 1
A MAPPP in Devon and Cornwall
was requested to consider a referral
from a MAPPP in another area on
a level 3 offender who posed a
risk to public safety by fire setting,
MAPPA in action locally
a potential risk of sexual harm to
children and a risk of self harm.
The offender with an index offence
for arson, received a Community
Rehabilitation Order (CRO) that
included requirements to reside
where directed and comply with
psychiatric treatment. He failed
to comply with his Community
Supervision requirements, both
in relation to Probation and
Mental health settings. This failure
accompanied a deterioration
in behaviour, in that there was
evidence of self harm, and as a
result an increased threat to public
safety was identified.
On release from Prison, due to victim
issues and a lack of appropriate
accommodation in his home area,
he was in danger of being released
from prison without suitable
accommodation being in place.
The MAPPP in Devon and Cornwall
were requested to consider
accommodating the offender at
an Approved Premises for a short
term period. This was in order to
gauge his response to living in the
community whilst in a structured
environment with support, then if all
went well he would move back to
his home area.
As part of the regional MAPPA,
the Devon and Cornwall MAPPA
Panel agreed that it would not be
defensible to refuse the referral and
have the offender being without
suitable accommodation on release.
Short term referral was accepted.
The two MAPPP Panels agreed
that ownership of the case would
remain with the referring area
until the offender actually arrived
at the approved premises within
Devon and Cornwall, at this time
ownership would transfer. The
Panels agreed as this was a short-
term placement, and that during
future MAPPP meetings both panels
would participate. If the offender
were to breach licence conditions
whilst in this area, our MAPPP
would deal with the recall, the
case would then revert back to the
referring Area for further re-release
plans.
Additional Licence conditions
were also put in place to assist in
the control and monitoring of the
offender whist in the Devon and
Cornwall area.
This demonstrates the close Multi
agency working arrangements that
Devon and Cornwall MAPPA has
with other areas.
Case Example 2
A predatory child sex offender,
with a 35 year offence history,
completing a 8 year prison
sentence, was managed by the
MAPPA level 3 panel. He was a
case registered with the National
Probation Public Protection Unit
as a critical public protection case.
And therefore his case was subject
to ministerial briefings. He was
supervised by Devon and Cornwall
Probation staff on Licence. The
licence included conditions to
reside at Devon and Cornwall
Probation Approved Premises,
initially he was housed away from
his home area. Further conditions
included not residing, working or
have any unsupervised contact
with children. The victims of his
index offence were seen by a Victim
Liaison Officer, who agreed with
them that the offenders Licence
includes a no contact condition and
an exclusion area around where
they lived.
The staff of the Approved Premises
required him to produce a movement
diary, which was closely monitored
in conjunction with the local police in
relation to the validity of the account
he was giving. He had significant
health problems preventing him from
seeking any work. He was required
to undertake specialist sex offending
work, which particularly had regard
to his learning disabilities and
offending profile.
At the end of his sentence he
requested a move back to his home
area. He was now no longer subject
to statutory supervision but agreed
to move to approved premises in
this area. Even though he was a
voluntary resident he was required to
comply with hostel rules. The panel
considered that if he were to return
to live in the community without any
MAPPA in action locally
social support his risk of re-offending
would significantly increase. Work
was undertaken by the police and
probation to develop a network
of social support that were aware
of the risk he posed and could
take the necessary preventative
measures should his behaviour
start to deteriorate. This involved
meeting with Church leaders from
his faith group and determining
arrangements, which enabled him to
take part in church activities safely.
Also a volunteer was identified to act
as a mentor and support him with
resettlement issues.
Alongside this, work was
undertaken with the local
Housing Department to identify
accommodation away from any
direct access to children. Addresses
were jointly checked by the Housing
Department and Police. Suitable
accommodation was identified
and he moved in. Close monitoring
remains in place with regular visits
from the police both via the Public
Protection Officer and Community
policing arrangements. In addition
to this he has contact with a
volunteer and housing staff. All
information regarding his activities
is checked against his risk. The
evidence is that he continues to co-
operate fully with the arrangements
in place and is developing
appropriate age related activities.
Case Example 3
An offender with a sexual offending
background, at the time of his arrest
was found to have established
a relationship with a vulnerable
woman who had young children,
and had been living with her and her
children in another area. The Local
Authority Liaison Officer, attached
to the Devon and Cornwall Public
Protection Unit, with responsibility
for MAPPA, was able to immediately
notify the Local Authority in which
the vulnerable woman resided.
This was in order to initiate a child
protection strategy meeting. This
strategy meeting was attended by
police officers from this area and
information was shared. This was
subsequently followed up by child
protection case conferences.
Following conviction, the offender
was further risk assessed, and was
monitored throughout sentence by
a MAPPA level 2 panel. In addition
by utilising established links with
the Social Services child protection
team, it was confirmed that the
offender would not have any further
contact with the children.
Monitoring by the MAPPA level 2
panel continued after the offender’s
release from prison. As a result
it was identified that he became
involved with another woman with
young children, from another area.
The MAPPA panel, utilising the
Liaison Officer, was again able to
swiftly notify the relevant Local
Authority of the situation, and a
further strategy meeting was held.
The joint working demonstrated
in this case helped to ensure
that the relevant local authority
child protection officers were well
aware of the risks posed and that
they could work closely with the
MAPPA level 2 panel, to ensure that
arrangements were in place with
regard to the childrens’ safety.
Statistical Information

1. Category 1 MAPPA offenders: Registered Sex offenders No.of Offenders

i) The number of Registered Sex Offenders(RSO) on 31 March 2006. 879
ai) The number of RSO per 100,000 head of population. 55
ii) The number of sex offenders having a registration requirement who were either 52
cautioned or convicted for breaches of the requirement, between 1 April 2005 and 31
March 2006
iii) The number of a) Sexual Offences Prevention Orders (SOPO’s) applied for b) interim
SOPOs granted and C) full SOPOs imposed by the courts between 1st April 2005 and
31st March 2006.

(a) The number of Sexual Offences Prevention Orders applied for

73
(b) The number of Interim SOPO’s granted
1
(c) The number of full SOPO’s imposed
72
iv) The number of a) Notification Orders applied for b) interim Notification Orders granted
and C) full notification Orders imposed by the court between 1st April 2005 and 31st
March 2006.

(a) The number of Notification Orders applied for 0

(b) The number of Interim Notification Orders granted 0
(c) The number of full Notification Orders imposed 0
v) The number of Foreign Travel Orders a) applied for b) imposed by the courts between
1st April 2005 and 31st March 2006

(a) The number of Foreign Travel Orders applied for

0
(b) The number of Foreign Travel Orders imposed
0

2. Category 2 MAPPA offenders: Violent offenders and other sexual offenders (V&OS) No.of Offenders
vi) The number of violent and other sexual offenders (as defined by S327 (3),(4) and (5) of 173
the Criminal Justice Act 2003) living in the community, considered under MAPPA during
the year 1st April 2005 and 31st March 2006

3. Category 3 MAPPA offenders: Other Offenders (OthO) No.of Offenders

vii) The number of ‘other offenders’ (as defined by S325 (2)(b) of the Criminal Justice Act 83
2003) dealt with under MAPPA during the year 1st April 2005 and 31st March 2006 as
being assessed by the Responsible Authority as posing a risk of serious harm to the
public.
Statistical Information

4. Offenders managed through level 3 MAPPP & Level 2 Level 3 Level 2

viii) 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 managed by the Level 3 MAPPP or
Level 2, between 1st April 2005 and 31st March 2006.

a) registered sex offenders 15 169

b) violent and other sex offenders 8 165
c) other offenders 3 80
ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2005 and 31st
March 2006 how many, whilst managed at that level:

a) Were returned to custody for breach of licence

b) Were returned to custody for breach of a Restraining Order or Sexual Offences 7 41
Prevention Order 1 2
c) Were charged with a serious sexual or violent offence 0 0
Statistical comment

The Number Of Registered Sex Offenders (RSO) On 31 March 2006.

The Devon and Cornwall Area, from a policing perspective, is divided into four Basic Command Units. (BCU’s)

The number of Registered Sex Offenders resident within each BCU is as follows:

Cornwall and Isles of Scilly BCU: 306

Plymouth BCU : 182
North and East Devon: 196
South and West Devon: 194
HQ Public Protection Unit: 1
Total: 879

The total number of RSO’s resident within Devon and Cornwall has increased on 2004/2005 figure. This was
anticipated The fact being that individuals convicted of relevant sexual offences remain on the ‘register’ for several
years before dropping off. This fact is reflected in national statistics. It should be noted that although the total
numbers of RSO’s continues to grow year on year, only a small proportion are considered to pose such a high risk
or management difficulty {‘The critical few}, that they need to be referred to the highest level of the MAPPA – A
Multi Agency Public Protection Panel.

The Number Of Sex Offenders Having A Registration Requirement Who Were Either
Cautioned Or Convicted For Breaches Of The Requirement, Between 1 April 2005 And 31
March 2006
This figure indicates a robust approach by the Devon and Cornwall Constabulary to the enforcement of the Sexual
Offences Act registration requirements

The Number Of Sexual Offences Prevention Orders Applied For

During 2005/2006, Devon and Cornwall Area, mindful of the benefits of SOPO’s in managing risk posed by
potentially dangerous offenders promoted greater use of these Orders by Courts sentencing offenders. An
outcome of these Orders being that certain recognised risky behaviour, pertinent to the individuals concerned,
could through early Court sanction’s be controlled in the long term.

The Number Of Notification Orders Applied For

The benefit of this risk reduction measure is recognised within the Devon and Cornwall Area. Although no such
orders have been applied for in this reporting period, last year this Area was one of the first in the country to
obtain such an Order.
Statistical comment

The Number of Category 3 MAPPA Offenders: Other Offenders

The total number of this category of offender, dealt with under MAPPA during 1st April 2005 and 31st March 2006,
has increased on last year.

This category comprises of ‘other offenders’, not in either category 1 or 2, but who are considered by the
Responsible Authority to pose a risk of serious harm to the public. The identification of Category 3 Offenders is
challenging, in that it is determined by the judgement of the Responsible Authority rather than automatically by
the sentence or other disposal imposed by the court. The increase in numbers, can in part, be explained by the
greater awareness of MAPPA processes, within the duty to Co-operate agencies such as Youth Offending Teams,
Health, and Children and Young Persons Directorates.

General Comment
It is important to note that figures alone do not, of course, tell the whole story. The anonymised case studies
within this report illustrate the practical work of MAPPA and demonstrate the type of preventative action taken.

Prior to MAPPA, action of this kind was mainly taken by one Agency alone, with the effect that on occasions
offenders behaviour which might of triggered preventative action went unnoticed.

The multi agency approach of the MAPPA helps ensure that if an offender does breach the condition of a licence
under which 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.
Contacts
Address Phone

Mary Anne McFarlane Queen’s House 01392 474100

Chief Officer Little Queen Street
Exeter
EX4 3LJ

Nigel Arnold Force Headquarters 08452 777444

Chief Constable Middlemoor
Exeter
EX2 7HQ

Alan Scott South West Area Office 01454 264053

Regional Prisons Manager Tortworth Road
Leyhill
Gloucs.

Prison Service Devon and Cornwall

Mark Flinton HMP Exeter 01392 415650
Governor HMP Exeter New North Road
Exeter
EX4 4EX

Devon and Cornwall Probation Area

Ian Clewlow Queen’s House 01392 474100
Director Operations Little Queen Street
Exeter
EX4 3LJ

Devon and Cornwall Police

Richard Stowe Force Headquarters 08452 777 444
Assistant Chief Constable Middlemoor
Exeter
EX2 7HQ

Steve Matthews Force Headquarters 08452 777 444

Detective Superintendent Middlemoor
Crime Department
Exeter
EX2 7HQ
Contacts

SMB Contacts Address Phone

Russell Mogridge Devon & Cornwall Police 08452 777444

Detective Inspector Crime Department

John Morgan Cornwall Forensic Mental 01208 251300

Forensic Clinical Psychologist Health Service

Chris Dimmelow Devon Social Services Department 01392 386657

Safeguarding Children Manager

John Cousins Youth Offending Team 01872 274567

Manager

Ann Morecraft North & East Devon 01392 207428

Head of Devon Patient & Health Community
Practitioner Services Agency
Manager for Child Protection

John Edwards Torbay Social Services 01803 208563

Operations Manager
Child Protection

Graham Davey Mid Devon Housing 01884 234286

Housing Needs & Enabling Manager

Karen Howard Plymouth Primary Care Trust 01752 314004

Mental Health Partnership

Chris Nash Cornwall Partnership Trust 01726 291019

Health Visitor & Child Protection
Adviser

Maureen Grimley Plymouth Social and Housing 01752 306340

Manager Chairing and Services
Reviewing Team

Dick Goodere Cornwall Social 01872 254549

Social Work Consultant Services
CP Team

Fran Mason Torbay supporting People 01803 208424

Gill Montgomery Devon partnership Trust 01392 403433

Alison Kearnes NSPCC 01752 235120

Laura Hubbard Fielder Devon Partnership Trust 01392 403433

Contacts

Lay Advisers Address Phone

Steve Anderson c/o Force Headquarters 01392 223271

Middlemoor
Exeter
EX2 7HQ

Carol Earner c/o Force Headquarters 01392 223271

Middlemoor
Exeter
EX2 7HQ

Devon & Cornwall Victim Support

Victim Support Devon 01392 678675

Victim Support Cornwall 01872 263464

© 2006 Devon & Cornwall Constabulary. Photographs used in this publication are for illustration only and do not depict actual events or cases.
Appendix A: MAPPA – the First Five Years
A National Overview of the Multi-Agency Public Protection Arrangements 2001 - 2006
Introduction
It is now just over 5 years since
the implementation of the Criminal
Justice and Courts’ Services Act
2000 that led to the formation of
the Multi-Agency Public Protection
Arrangements, commonly known
as MAPPA. As the national
strategic body overseeing the
implementation and development of
these arrangements it is important
for us to review the progress
made, to identify the challenges
ahead and set out the national
plans for improvement. It is also
an opportunity for the first time to
provide a national commentary on
the MAPPA annual statistics and
to explain what they are telling us
about the growth and complexity of
these arrangements.
Much has been achieved in terms of
enhancing public safety in the last
5 years and the arrangements are
rightly described as world leading.
Yet we are acutely conscious that a
number of serious case reviews and
other reports published this year
indicate there is still much to do to
ensure that the arrangements are fit
for purpose and apply consistently
across England and Wales. Unless
those operating these arrangements
ensure that all reasonable action is
taken to reduce the harm caused
by sexual and violent offenders they
will have failed. While we recognise
that it is never possible to eliminate
risk entirely the public are entitled to
expect the authorities to do their job
properly. Making our communities
safer and reducing re-offending
is our highest priority and one of
the greatest challenges facing the
agencies and staff involved.
Over the last year all agencies
responsible for establishing,
maintaining or contributing to these
public protection arrangements
have been extremely busy: the
probation service, the prison
service, the police service who form
the Responsible Authority in each
area, plus the range of agencies
who have a duty to co-operate in
these arrangements and include
health, housing, education, social
services, youth offending teams,
Jobcentre Plus, and electronic
monitoring services.
In addition to the agencies, each
area has this year benefited from
the input of lay advisers. These
are people recruited locally but
appointed by the Secretary of
State to offer key support to the
strategic management of the
MAPPA process. Their role is
essentially to ask often fundamental
questions of senior practitioners
and bring a community perspective
to a process that could otherwise
lose sight of its main function: to
protect members of the public
from serious harm. Together, all
of those inputting to MAPPA have
ensured that more high risk sexual
and violent offenders have been
identified and proactively managed
this year than ever before.
Appendix A: MAPPA – the First Five Years

The National MAPPA Chart 1 Total number of MAPPA offenders in the community 2005/06
Statistics Category 3
As the scale and complexity of All other offenders
MAPPA has increased so the 3363 (7%)
analysis of the annual report
statistics has become more
important in understanding local
and national developments in these
Category 2
arrangements. The national analysis
Violent & Non
offered below, based upon reports
Registered
from the areas, highlights a number Category 1
Sex Offenders
of important trends, particularly in 14317(30%) Registered
respect of the volume of referrals Sex Offenders
for multi-agency management at 29973 (63%)
Level 2 and Level 3 (MAPPP), and
the outcomes of that management.
The individual area MAPPA annual
reports are published elsewhere
on this web-page and should
be consulted for detailed local
commentary. MAPPA Offenders by category 2005/06

MAPPA Offenders
The number of offenders in the
community that come within the
remit of MAPPA increased this year,
as anticipated, although the rate
of that increase has slowed from
last year (13% to 7%) - see Table
1. A number of factors may have
contributed to this slow down.
Firstly, the increase of registered
sex offenders (RSOs) is much less
than in previous years at just over
3%; secondly, fewer offenders
than expected have been referred
into MAPPA under Category 3.
(These are those offenders who are
neither registered sex offenders
nor currently supervised by the
probation service/ youth offending
team but do have a history of
physical or sexual violence and
are considered by the Responsible
Authority to pose a current risk of
serious harm to the public.) The
reasons for these variations from
expectation are unclear but the
RSO variation may in part be due
to a number of areas last year
(2004/5) incorporating offenders
who were still in prison and to
refinements areas have continued
to make to referral procedures and
the management of risk thresholds.
Registered Sex Offenders continue
to form by far the largest category
– see Chart 1.

Table 1 Total number of MAPPA Offenders in the Community by Category (% Change)

Category 2002/03 2003/04 2004/05 2005/06
1. Registered Sex Offenders (RSO) 21513 24572 28994 29973
14.22% 18% 3.38%
2. Violent Offenders and other sex offenders 29594 12754* 12662 14317
-56.9% -0.72% 13.07%
3. Other offenders 1802 2166 2936 3363
20.2% 35.55% 14.54%
Totals 52909 39492 44592 47653
-25.36% 12.91% 6.86%
* In 2003/4 the criteria for Violent offenders (Category 2) changed to exclude those offenders held in custody.
Appendix A: MAPPA – the First Five Years

Registered Sex Offenders Chart 2 MAPPA Offenders by Management Level

For the first time this year the Level 3
MAPPA annual reports include “The Critical Few”
a breakdown of the total RSO 1278 (3%)
population for the basic policing
units within each area (see individual
area reports). This, together with
the density of RSOs per 100,000 of
the population, which ranges from Level 2
36/100,000 to 81/100,000 across ”Multi-Agency”
the 42 Areas of England and Wales, 12505 (26%)
illustrates the variable distribution Level 1
of RSOs within the community. Normal Agency
There are no obvious or simple 33870 (71%)
explanations for the distribution of
RSOs, which in any case is barely
significant statistically.

MAPPA management levels

It is important to remember that the
majority of offenders within MAPPA
do not pose a significant risk of
serious harm to the public and can
therefore be properly managed
through the normal supervision
arrangements provided by the
probation service, youth offending
teams and by police sex offender
registration. This is described as level
1 management and accounts for
about 71% of the MAPPA population.
However, for offenders whose risk
of serious harm is high or complex
Total number of MAPPA Offenders by Level 2005/06
and requires active management by
more than one agency, referral to
Level 2 or Level 3 (MAPPP) meetings
is vital. A case will generally only
qualify for level 3 management
where the intervention of senior
agency representatives is required
to effect the risk management
plan with the authority to release
or prioritise exceptional resources.
Chart 2 shows the breakdown of
management levels this year.
This is the second year in which
both Level 2 and Level 3 (MAPPP)
data has been available and
Tables 2 and 3 illustrate the
number of offenders now subject
to collaborative/ multi-agency risk
management (29% of the MAPPA
total). For each of these 13,783
offenders agencies will be required
to meet on a number of occasions
and to progress actions that reduce
the likelihood of re-offending. The
tables also provide a fuller picture

Table 2 Breakdown of Level 2 and Level 3 MAPPA Offenders for 2005/6

Category of Offender Level 2 Level 3 Total per Category
(% of MAPPA Total) (% of MAPPA total) (% of MAPPA Total)
1. Registered Sex Offenders (RSO) 6014 580 6594
12.62% 1.22% 13.84%
2. Violent offenders and other sex 4280 506 4786
offenders 8.98% 1.06% 10.04%
3. Other offenders 2211 192 2403
4.64% 0.4% 5.04%
Total per Level 12505 1278 13783
26.24% 2.68% 28.92%
Appendix A: MAPPA – the First Five Years

Table 3 Offenders referred to Levels 2 and 3 - Comparison with last year (% Change)
Level 2 Level 3
Category of MAPPA Offender 2004/05 2005/06 2004/05 2005/06
1. Registered Sex Offenders (RSO) 5381 6014 626 580
11.76% -7.35%
2. Violent offenders and other sex offenders 3615 4280 547 506
18.39% -7.49%
3. Other Offenders 2292 2211 305 192
-3.53% -37.05%
Total: 11288 12505 1478 1278
10.78% -13.53%

of the commitment and resources
being provided by the Responsible
Authority and other partner
agencies within MAPPA. The Level
3 MAPPP, the highest level of risk
management, continues to focus
on the most complex offenders,
sometimes referred to as the
‘critical few’, and involves senior
managers within each area.
The use of Level 3 MAPPP has
been refined over the last 3 years
as part of a concerted effort to
ensure that resources are focused
where they can be most effective in
enhancing public protection. This
year they have been employed
in under 3% of the total MAPPA
caseload. At the same time, Level 2
risk management meetings, which
are locally based, have increased in
number (12,505) and become the
engine room for MAPPA. Whilst
there is an element of focus on
level 3, all Areas have recognized
the necessity of ensuring adequate
management and administrative
support for Level 2; and this is
reflected in Business Plans.
Interventions and Outcomes
Information about the scale
and categories of offender is
complemented by information on
direct interventions and outcomes
for this MAPPA managed group (ie
those under Levels 2 and 3). These
measures deal with breaches of
licence and court order, with sex
offender registration requirements and
related court orders, and with further
offending – see tables 4 and 5.
The headline figure is, no doubt,
that reflecting the number of
offenders who, while managed at
levels 2 or 3, are charged with a
serious sexual or violent offence.
Compared with 2004/5, this year
saw a reduction in the number
of serious further offences in this
population from 79 (0.6%) to 61
(0.44%) cases this year. And the
biggest impact was where you
would want and expect it – with
the more intensively managed
Level 3 cases. On the face of
it the figures are encouraging
but they should be treated with
caution for 2 reasons. Firstly,
we have only collected the data
for 2 years; secondly, with such
small numbers any change can
trigger a wholly disproportionate,
misleading percentage variation.

Table 4 Outcome measures: Level 2 and Level 3 activity for 2005/6 (% Change)
Level 2 Level 3 Total of Level 2 & 3
Category of MAPPA Offender 2004/05 2005/06 2004/05 2005/06 2004/05 2005/06
1. Breach of License 1084 1321 222 219 1306 1540
21.86% -1.35% 17.92%
2. Breach of Orders 55 82 18 22 73 104
49.09% 22.22% 42.47%
3. Charged with SFO 47 50 32 11 79 61
6.38% -65.63% -22.78%
Appendix A: MAPPA – the First Five Years
Table 5 Outcome measures: RSO arrests and Sex Offences Act Civil Orders 2004/5 and 2005/6 (% Change)
RSO Enforcement
1. Registered sex offenders (RSO’s) charged/cautioned
Sex Offences Act Orders
2. Sexual offences prevention orders (SOPOs) granted
3. Notification Orders (NOs) granted
4. Foreign Travel Orders (FTOs) granted
Total Number of Orders
What is apparent, however, is that
the figure is low and whilst any
serious re-offending is a matter
of great concern, such a low
serious re-offending rate for this
particular group of offenders is to
be welcomed and supports the
view that MAPPA is making a real
contribution to the management of
dangerousness in communities.
The data relating to breach of
licence and court orders is positive
as this reflects an increase in action
taken in level 2 and 3 cases prior to
them having opportunity to commit
serious further harm; ie to recall
offenders to prison. A similarly
encouraging picture emerges from
a reading of the data on various
sex offender provisions – see table
5. Action taken to enforce the sex
offender registration requirements
through caution and conviction
increased by 30% from last year and
affected 1295 offenders, 4.3% of the
total registered in the community.
There was also considerable use
made of the range of new civil
Number of Offenders Number of Offenders
(04/05)
Number of Orders
(04/05)
orders available under the Sex
Offences Act 2003 (sexual offences
prevention orders, notification
orders, foreign travel orders). In total
973 orders have been granted this
year an increase of 446.
A Year of Challenges
The raw data provided in the national
statistics is helpful but necessarily
quantitative. In order to get a better
feel for the quality of MAPPA business
it is necessary to work with other
forms of analysis and, during the
course of this year, a number of
inspection reports and a small number
of management reviews of specific
cases have been published which
have both detailed shortcomings
in practice and highlighted many
positive developments in public
protection practice.
It is essential that the product of
these, and future, reviews and
reports shape the development of
MAPPA through central guidance
and local practice and it is
(05/06)
993 1295
30.41%
Number of Orders
(05/06)
503 933
85.49%
22 39
77.27%
1 1
0%
526 973
84.98%
instructive to set out the lessons
learned this year.
Strengthening Multi-Agency
Public Protection Arrangements
Published in October 2005
available on www.homeoffice.gov.
uk/rds/pubsintro1.html
This research was undertaken by
De Montfort University and found
evidence of greater effectiveness
and efficiency across MAPPA teams
in England and Wales, compared to
an earlier review of public protection
arrangements, which had been
conducted before the MAPPA
legislation was introduced in 2001.
It found that areas were meeting the
MAPPA Guidance specification to a
large extent.
It also found that the arrangements
had been strengthened by the
inclusion of the Prison Service
within the Responsible Authority
and by the designation of a number
of duty-to-co-operate agencies ( a
consequence of the Criminal Justice
Act 2003). The MAPPA process
Appendix A: MAPPA – the First Five Years
facilitated effective contributions
by agencies so that representatives
could make operational decisions
and develop risk management plans.
The report made a number of
recommendations for policy and
practice development which are being
taken forward through the revision
of the MAPPA Guidance and the
MAPPA business planning process.
Managing Sex Offenders in the
Community (A joint thematic
inspection by Her Majesty’s
Inspectorates of Probation and
Police)
Published in November 2005
available on http://inspectorates.
homeoffice.gov.uk/hmiprobation
This inspection found that there was
greater focus by police and probation
on improving the assessment
and management of high risk sex
offenders which offered the prospect
of improved performance. However
it noted a number of deficiencies in
relation to MAPPA case management
records; police home visits for
registered sex offenders and training
for both police and probation staff on
assessment and management of risk
of harm.
These deficiencies have been
addressed through the National
Offender Management Service Risk
of Harm Improvement strategy and
the development and imminent
publication of the Police Public
Protection Manual.
An Independent Review of a
Serious Further Offence case:
Damien Hanson and Elliot White
Published in February 2006 and
available on http://inspectorates.
homeoffice.gov.uk/hmiprobation
This was a report by Her Majesty’s
Chief Inspector of Probation into
the murder of John Monckton
and attempted murder of his wife
Homeyra in November 2004 by two
men under the supervision of the
London Probation Area. The report
identified overall failures and some
specific deficiencies in the way the
two cases were managed.
Although neither offender was
referred to MAPPA Damien Hanson,
who was assessed as presenting
a high risk of serious harm, should
have been. Importantly the report
has established a number of
principles against which future case
management within MAPPA and
the National Probation Service will
be judged. Key amongst these is
that the public is entitled to expect
that the authorities will do their job
properly i.e. to take all reasonable
action to keep risk to a minimum.
In response to this report, an action
plan was issued to the National
Probation Services to ensure
delivery of effective implementation
of the report’s five ‘key’
recommendations and 31 practice
recommendations.
An Independent Review of a Serious
Further Offence case Anthony Rice
Published in May 2006 and
available on http://inspectorates.
homeoffice.gov.uk/hmiprobation
This report was completed following
the murder of Naomi Bryant in August
2005. The independent review
was requested by the Responsible
Authority for MAPPA in Hampshire
who were concerned by a number of
issues that had contributed to the risk
management failure.
The report details principal findings
and recommendations for a range of
agencies within and outside MAPPA.
Each of which is being taken
forward. Importantly it revealed the
failure to manage the offender’s
risk of harm to the public was not
due to any single act of negligence
or deficiency. Rather it was a
cumulative failure of processes and
actions throughout his sentence
supervision, both in prison and in
the community. This is an essential
point to grasp and reinforces the
importance of having an integrated
offender management system from
start to end of sentence with clear
and consistent practice between the
three core MAPPA agencies, prisons,
probation and police.
The key recommendation for
MAPPA was about maintaining a
better balance between human
rights of offenders and protecting
the public, and using existing
MAPPA guidance properly. Work
is already underway to revise and
strengthen national guidance and
improve MAPPA’s foundations
by way of the national and Area
MAPPA business plans.
Joint Police/Probation/Prisons
Thematic Inspection Report:
Putting Risk of Harm Into Context
Published in September 2006 and
available on http://inspectorates.
homeoffice.gov.uk/hmiprobation
This report found that much
had been achieved, including
Appendix A: MAPPA – the First Five Years
that planned interventions were
generally effective in containing
offending behaviour. There
were also many areas for
improvement and the report makes
recommendations for the more
consistent use of MAPPA and
sharing of MAPPA good practice,
improved risk of harm assessments
and sentence planning and greater
victim awareness.
It is important to note that the
fieldwork to support the inspection
concluded in the autumn of 2005,
prior to the launch of the Risk of
Harm Improvement Action plan
and other actions referred to in this
overview. Nevertheless, the report
has been welcomed and will be
considered in further detail by the
National Offender Management
Service (NOMS) Risk of Harm
Improvement Board as well as the
Responsible Authority National
Steering Group (RANSG).
Actions to develop MAPPA
Effecting change to these public
protection arrangements requires
concerted action from a range of
agencies and key stakeholders.
MAPPA is not an agency but a
set of national arrangements that
requires each contributor to ensure
that their own agency’s practice is
fit for purpose and that the manner
of their collaboration is effective
in assessing and managing the
risk posed by sexual and violent
offenders.
It is important to note that MAPPA
has benefited significantly this
year from the work undertaken by
individual agencies; work that has
a direct bearing on how dangerous MAPPA Development Strategy
offenders are assessed and
• Achieve dedicated MAPPA
managed. This includes the OASys
coordination and administration
Quality Assurance Programme
capacity in all areas during
implemented from July 2005;
2006/7 (underway)
implementation of the offender
management model from April • Develop RANSG to include
2006; the launch of the NOMS Risk national representation of Duty
of harm Guidance and Training to cooperate agencies (achieved)
resource pack June 2006; and the
• Revise and publish MAPPA
planned roll-out of the Police Public
Guidance (by April 2007 – see
Protection Manual.
existing Guidance at: http://
MAPPA will increasingly benefit www.probation.homeoffice.gov.
from the expansion of ViSOR uk/output/page30.asp)
(the Violent and Sex Offenders
Register). ViSOR is an integral
Monitoring and Evaluation
part of plans to strengthen public
protection through improved risk • Areas to implement a MAPPA
assessment and management and Business Plan for 2006/7 (achieved
will provide electronic support – see area annual reports)
for MAPPA allowing efficient data
• Development of multi-agency
sharing between Police, Probation
public protection performance
and Prisons. The police have been
indicators (underway)
using ViSOR since April 2005 and
the system will be implemented into • Improve the recording and
the prison and the probation service collation of data (underway)
during 2006/7. For the first time
• Develop guidance for a serious
the Responsible Authorities will be
case review process (planned for
working together on the same I.T
consultation later this year)
system to Reduce Re-offending.
Communication and Strategic
The National MAPPA Business Plan Partnerships
As the national coordinating body • The publication of the MAPPA
for the Responsible Authority, the Annual report (achieved)
RANSG, is tasked with exercising
• Development of the annual report
oversight of MAPPA and ensuring
to improve public understanding
its continued development. To
and engagement (ongoing)
help meet these aims the RANSG
published, in November 2005, a • National MAPPA conference
three year National MAPPA Business (achieved – November 2005)
Plan 2005-8. The plan identifies
• Develop a national
four broad areas of MAPPA
communication strategy (issued
where significant and consistent
in June, but Child Sex Offender
improvement is necessary. These
Review may add further impetus)
include the following;
Appendix A: MAPPA – the First Five Years
Training
• Delivery of lay adviser national
training (delivered but also
developing so far)
• National coordinators conference
(delivered – May 2006)
• Collate core training material
(underway)
• Areas to implement a training
strategy for new practitioners,
new members of the strategic
management board and for
coordinators and administrators
(underway)
Areas have been asked to produce
annual reports on this model and
local business plans are attached
to area annual reports for the first
time. Future reports will record the
progress that has been achieved.
Conclusion
The introduction of MAPPA enables
agencies to work more closely
than ever before to exchange
information and manage offenders work of MAPPA is undertaken
collaboratively, ensuring that by skilled and committed staff
potentially dangerous offenders are and everyone engaged in the
being properly risk assessed and arrangements acknowledges
robustly managed in the community. the need for constant vigilance
and improvement. The journey
Effective management of high-risk
is not easy, but communities
offenders, as a discipline, is still
are safer because, as this report
relatively in its infancy. There is
demonstrates, the Responsible
continuous development and the
Authorities are travelling together in
standards and good practice of
the right direction.
tomorrow are likely to be different
from today’s, achieved through
experience and research. The
John Scott
challenge therefore is not only to
Head of the Public Protection and
match current practice with what
Licensed Release Unit
we know, but also to respond
National Offender Management
rapidly to new learning.
Service
The Inspectorate helpfully suggests
Terence Grange
that what they are describing
Chief Constable of Dyfed Powys
can be better understood as
Police and ACPO Public Protection
the identification of stages on a
Lead
journey rather than a destination
reached. Since their introduction Tony Robson
in 2001, the 42 MAPPAs covering Her Majesty’s Prison Service
England and Wales have travelled
a great distance in a short time to
establish the new arrangements. On behalf of the Responsible
The vital public protection Authority National Steering Group
HM PRISON
SERVICE
SOUTH WEST AREA