Multi Agency Public Protection Arrangements

Humberside

Annual Report 2004-5

Ministerial Foreword by Baroness Scotland

The work being undertaken to improve the safety of communities through the Multi-Agency
Public Protection Arrangements (MAPPA) is vitally important and a priority for government. The
annual reports for 2004/5 provide evidence of that active engagement. Violence and sexual
abuse are unacceptable wherever they occur and it is evident that through MAPPA such
offenders are identified and better managed than ever before. As the number of offenders within
MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that
is the local police, probation and the Prison Service, is addressing these additional demands by
strengthening local partnerships, using new statutory powers to restrict the behaviour of
offenders, returning offenders to custody where they breach their licence or order, and using the
findings of research and inspection to strengthen national guidance and local practice.

Although it is never possible completely to eliminate the risk posed by dangerous offenders,
MAPPA is helping to ensure that fewer people are re-victimised.

The active implementation of the Criminal Justice Act (2003) during the last year has clearly
enhanced the ability of a number of agencies including health, social services and housing to
work collaboratively with the Responsible Authority in assessing and managing those sexual and
violent offenders in our communities who pose the highest risk of serious harm. For the
continued success of MAPPA this collaboration together with the scrutiny of policy and practice
must become the hallmark of these arrangements. Similarly MAPPA must integrate with other
public protection mechanisms dealing with child abuse, domestic abuse and racial abuse.

For me one of the most exciting developments in this arena in the last 12 months has been the
appointment of lay advisers to assist the Responsible Authority in the oversight of the
arrangements. As ordinary members of the public these lay advisers represent a diverse, able and
committed group of people who are now helping the statutory agencies to oversee the work
being undertaken through MAPPA and communicate with the public more effectively. Without a
growing sense of public knowledge and confidence about this work much of the benefits of the
public protection arrangements will be lost.

I hope this annual report will be useful, informative and re-assuring to local communities. The
agencies and individuals who have contributed to the achievement of MAPPA locally are to be
commended.

Baroness Scotland
Minister of State for Criminal Justice and Offender Management
Contents

Introduction

The Background to the Multi Agencies Public Protection Arrangements

(MAPPA)

Who does MAPPA deal with?

How are offenders managed under the MAPPA?

Who's Who in MAPPA?

The Responsible Authority

The Strategic Management Board
Report by the SMB Chair
Humberside Police
National Probation Service - Humberside
The Prison Service - Yorkshire and Humberside Area

"Duty to Co-operate" agencies

Youth Offending Teams

Jobcentre Plus
Local Education Authority
Local Housing Authority
Registered Social Landlords
Local Authority Social Services
Health Services

Key Achievements over the past year

Prison Service.
ViSOR
MAPPA Co-ordinator
MAPPPs held centrally
Recall Procedures
Strengthening of Police Teams

What do the Statistics tell us?

Statistics

Strategic Management Board Members

Agency Contact Points

Introduction

We are pleased to present the fourth annual report on the Multi Agency Public Protection
Arrangements in Humberside.

This is the first year that this report has been the responsibility of three services, the Prison
Service now joining the Police and Probation Services as the Responsible Authority. On a personal
basis this is our first opportunity to lead on such a report for this area and we all wish to take
the opportunity to confirm the commitment of our services to MAPPA at a strategic and
operational level.

This year has seen the development of the Prison Service as a full partner in the responsible
authority for these issues, the introduction of an effective central Strategic Management Board
and the positive impact of a full time MAPPA Co-ordinator. These advancements have seen an
improvement in our processes and supported our efforts to manage the risk posed by relevant
offenders.

In an effort to further broaden the processes we have appointed 2 Lay Advisers to the Strategic
Management Board and they will begin to participate in the near future.

As can be seen from the content of the report this has again been a demanding year, with
Humberside managing a number of cases with national implications, changes in legislation and
the introduction of a national Sex Offender Database. Consistent with our joint aim of protecting
the public we have responded by allocating staff, resources and training to meet these demands.

In previous years we have only outlined the involvement of other agencies, however this report
includes contributions from individuals in the agencies working together under the MAPPA. We
believe the tenor of those contributions indicates the positive continuing 'multi agency' progress
we are making.

We believe this report contributes to the growing knowledge of, and confidence in, the MAPPA
process, particularly for those who live and work within the community we serve.

Tim Hollis
Chief Constable
Humberside Police

Steve Hemming
Chief Probation Officer
National Probation Service - Humberside

Steve Wagstaffe
HM Prison Service Area Manager
Yorkshire and Humberside
The Background to the
Multi Agencies Public
Protection Arrangements
(MAPPA)
Protecting the people of Humberside from the
most serious offenders living in our
community continues to be one of the highest
priorities for the Criminal Justice Agencies in
our area. The Multi Agency Public Protection
Arrangements (MAPPA), quite simply, are
arrangements based on knowledge and
research which shows that the best way to
manage and reduce the risk such offenders
pose is for all agencies involved in working
with them to share information and then work
together based on that information.
The formal basis for the arrangements is under
Sections 325 to 327 Criminal Justice Act 2003
and the "arrangements" themselves are
published by the Home Office in the form of a
Guidance Document1.
Who does MAPPA deal
with?
It is important to remember that the majority
of people who commit offences never have
any need to come into contact with MAPPA
either because of the type of offences they
commit or the risk of harm they pose to the
public.
MAPPA applies to certain categories of
individuals who are currently being dealt with
for a sexual or violent offence. In the main
these offenders are registered sex offenders,
i.e. those convicted or cautioned for certain
sexual offences who are required to register
with the police, or violent and other sex
offenders who generally have received a
sentence of imprisonment of 12 months or
more and will be supervised in the community
by the probation service or youth offending
teams.
These offenders fall into two categories
formally defined as;
Category 1: Registered sex offenders, i.e.
those convicted or cautioned for
2
certain sexual offences who are
required to register with the
police.
Category 2: Violent and other offenders who
generally have received a
sentence of imprisonment of 12
months or more.
MAPPA additionally applies to those
individuals whose previous convictions and
behaviour indicate they are capable of causing
serious harm and there is a current concern
about the risk they present which requires
multi agency management. Referrals in regard
to this type of offender can and do arise from
any of the agencies involved in MAPPA.
Again, the formal definition is;
Category 3: Other offenders not in either of
the above categories but who are
considered to pose a risk of
serious harm to the public. The
inclusion of these offenders
under MAPPA is based on two
considerations. First it must be
established that the individual
has a conviction for an offence
which indicates they are capable
of causing serious harm to the
public. Secondly it must be
reasonably considered that they
may cause serious harm to the
public.
The statistics at the end of this report show
the number of offenders in the three
categories we have in Humberside.
Whilst any agency involved with MAPPA will
respond to risk of harm when it arises it
should be remembered that no agency can
provide an absolute protection. Some
potentially dangerous people are not known
to any local agencies, including police or
probation, prior to their offending.
1
Multi Agency Public Protection Arrangements
2004. Home Office.
How are offenders
managed under the
MAPPA?
Risk management is defined as harm reduction
either through the reduction of the likelihood
of a risk occurring or the reduction of its
impact should it occur.
The structure of risk management under
MAPPA is intended to enable resources to be
deployed to manage the risks identified in the
most efficient and effective manner.
There are three levels of risk management
used under the MAPPA. Although generally
the higher the assessed level of risk the higher
the level of management required this need
not always be the case. The risk management
structure is based on the principle that cases
should be managed at the lowest level
consistent with providing a defensible risk
management plan.
The three levels are;
Level 1:Ordinary risk management.
This is the level used in cases in which the risks
posed by the offender can be managed by an
agency without significantly involving other
agencies. The majority of cases supervised by
the police or the probation service come into
this level.
Level 2;Local inter-agency risk management.
This level of management is used where the
active involvement of more than one agency is
required. In Humberside we use the acronym
LRMM, for Local Risk Management Meetings
for this level and LRMMs are held monthly in
each of the four Divisions at Scunthorpe, Hull,
Grimsby and Beverley.
Level 3:Multi Agency Public Protection Panels
(MAPPPs)
This level deals with those "critical few" cases
which are assessed as being a high or very
high risk of causing serious harm; AND
they present risks that can only be managed
by a plan which requires co-operation at a
senior level due to the complexities of the case
and/or because of the unusual resource
commitments required.
Additionally cases which are exceptional
because of the high media scrutiny or public
interest and there is a need to ensure public
3
confidence in the criminal justice system is
sustained are dealt with at this level.
MAPPPs are held fortnightly at the National
Probation Service - Humberside Headquarters
in Beverley.
The two levels of meetings held under MAPPA
result in clear actions which feed into the risk
management plans which lay down specific
objectives for the management of the risk the
offender presents. Responsibilities and tasks
are clearly defined and firm timetables
established. The plan needs to be able to deal
with changing circumstances of the case and
should ensure that all appropriate restraints
on the offender are put in place.
These restraints can be conditions attached to
a Community Order by a court or attached to
the "licence" of an offender coming out of
prison. Those conditions could for example
commit the offender to attend a programme
of work on their offending behaviour or to see
to a psychiatrist. They could lay down certain
activities or contacts the offender must or
must not do or make.
Other controls can be applied if the offender's
behaviour indicated that the risk they present
is increasing. e.g. Sexual Offences Prevention
Orders can be taken out at any time where it
can be proved that the subject has been
convicted of certain sex offences and there is
reasonable cause to believe that the Order is
necessary to protect the public from serious
harm from the offender.
There may, exceptionally, be some cases where
management of an offender's risk in the
community cannot be carried out without the
disclosure of some information to a third party
outside of the usual MAPPA agencies. This may
be where, for example, an employer, voluntary
group organiser or church leader has a
position of responsibility or control over the
offender and other people who may be at
serious risk from the offender. Disclosure to
them of certain information about the
offender may be the only way to manage that
risk. Wherever possible voluntary disclosure
would be discussed with the offender.
Great caution is exercised when making such a
disclosure and it is seen as an exceptional
measure as the disclosure may be to individual
members of the public. If such a course of
action is required it is always as part of a risk
management plan, which has been agreed at
either of the two highest levels of MAPPA
management, i.e. LRMMs or MAPPPs.
 CASE STUDY 1
An offender was sentenced to prison for
a violent assault on his wife. Enquiries
into the case revealed that this
conviction and sentence was the
culmination of domestic abuse which
had been going on for 15 years and as
well as physical assaults had included
emotional and financial abuse. The
woman wished to take advantage of her
husband's imprisonment to make a
break from the abusive relationship. The
Probation Victim Liaison Officer
established contact with the with wife of
the offender and a number of issues
were identified in regard to the woman's
fear of reprisals following the offender's
release and concerns about the
children's behaviour as a result of the
abusive environment. Risk assessments
carried out by the supervising probation
officer indicated that as well as the clear
risk to the offender's wife - which
increased significantly when he learned
of her wish to end their marriage -
there was a risk to women in general
and particularly those in authority who
took a firm stand against the offender.
Prior to the offender's release a referral
was made to the Local Risk Management
Meeting.At those meetings the
supervising probation officer and Victim
Liaison Officer presented a risk
management plan which was supported
by other agencies in attendance and
resulted in; Agencies being advised that
the offender presented a possible risk to
female staff in confrontational
situations. Social Services carrying out an
assessment of the risk presented to the
children by the offender and the ability
of their mother to protect them. The
children's "acting out" of violence to their
mother which they had witnessed from
their father was identified and work
with the family arranged and
undertaken by the NSPCC. A referral was
made to the "Sure Start" scheme who
supported the mother in parenting skills
and worked to build up her confidence
and self-esteem. The police Domestic
Violence Unit maintained contact with
the woman offering support and advice.
A panic alarm was installed in the
woman's home and the local policing
4
teams advised of the situation,
particularly being made aware of the
offender's release date. The offender was
directed not to return to the home of his
wife and children on release and
conditions placed on his licence that he
made no contact with his wife without
the prior approval of his probation
officer, that he initially had to reside in a
Probation Approved Premises and that
he did not enter a defined area around
his wife's home. The offender had no
recent experience of accommodation
availability and therefore to assist him,
and to support the supervising
probation officer in formulating a move
on plan from the probation
accommodation an identified officer
from the local Authority Housing
Department became involved in
providing assistance to the offender and
liaison with other agencies at the Risk
Management Meeting. The offender did
not meet the Housing Departments
criteria for any priority need but they did
provided liaison with and advice on
Housing Associations and the Private
Rental sector always being mindful of
the potential risk presented by the
offender and of the area of
accommodation excluded by his licence.
Following release the offender did
comply with all his conditions and the
licence period passed without incident.
The victim liaison officer reports that
after what the offender's wife described
as a " lifetime" of abuse she has found
the strength and determination to break
free of the offender and build a new,
safe life for herself and her children. She
stated that "words cannot express my
gratitude to all involved".
Who's Who in MAPPA?
The Responsible Authority
The Criminal Justice Act 2003 charges the
Police, the National Probation Service and the
Prison service with responsibility for
establishing the MAPPA and refers to the three
services as "the Responsible Authority"
The Strategic Management Board
(SMB)
The duties and obligations of the Responsible
Authority are discharged through the Strategic
Management Board. In the year prior to this
report there were 4 SMBs in Humberside, one
in each of the Unitary
Authority/Police/Probation Divisions. To provide
consistency and a central awareness a
Humberside Area SMB was set up to replace
the 4 local ones in April 2004. The current
membership of the Humberside SMB is given
at the end of this report.
The broad brief of the SMB is to;
"keep the arrangements [i.e. the MAPPA]
established by it under review with a
view to monitoring their effectiveness
and making any changes to them that
appear necessary or expedient."
Overarching these activities is the role the SMB
has to shape the MAPPA framework within the
Area. This involves determining the role and
representation of different agencies within the
framework. It also includes brokering the
protocols and memoranda of understanding
which formalise those roles.
While some margin of discretion in defining
the role is left with Area, the following core
features are common to all SMBs:
(i) monitoring (on at least a quarterly basis)
and evaluating the operation of the
MAPPA, particularly that of the MAPPPs;
(ii) establishing connections which support
effective operational work with other
public protection arrangements, such as
Area Child Protection Committees, local
Crime and Disorder Partnerships and local
Criminal Justice Boards;
(iii) preparing and publishing the Annual
Report and promoting the work of the
MAPPA in the Area;
(iv) planning the longer-term development of
the MAPPA in the light of regular (at least
annual) reviews of the arrangements, and
with respect to legislative and wider
criminal justice changes; and,
(v) identifying and planning how to meet
common training and developmental
needs of those working in the MAPPA.
5
Report of the Strategic
Management Board
The Humberside Strategic Management
Board, which oversees the Multi-Agency
Public Protection Arrangements, has met
four times in this financial year. This is the
first year in which the Strategic
Management Board has operated across
Humberside. The Strategic Management
Board has spent the first year making
contacts with the duty to co-operate
agencies as well as the four Local Authorities
to ensure that there is both geographical
and multi-disciplinary representation. The
role of the SMB is to monitor and review the
Public Protection Arrangements.
This year has been a busy and challenging
year for the Strategic Management Board in
that there have been Local Risk
Management Meetings at Level 2 in respect
of 158 offenders. In terms of the
management of the most dangerous cases
at Level 3, there have been 70 meetings in
respect of 27 individuals. This has included
the nationally notorious case who was due
to be released from a special hospital.
Following a number of Multi-Agency Public
Protection Panel meetings, a decision was
taken by the CPS to prosecute him for two
murders which occurred in 1963 for which
he was convicted and received two life
sentences.
The Strategic Management Board consists of
representation from the responsible
authorities (Police, Prison and Probation) as
well as representation from the four Local
Authorities and the Health Service. The
Board is about to be joined by two Lay
Advisers who will give a view as ordinary
members of the public in respect of the
Multi-Agency Public Protection
Arrangements in Humberside. In respect of
the future work of the Strategic
Management Board, training for members is
seen as a priority with the new changes in
legislation and practice. The resourcing of
Multi-Agency Public Protection Panels will be
subject to scrutiny this coming year as will
the attendance at such Panels. The Strategic
Management Board would like to take this
opportunity to thank all those staff on the
front line for the work that they have done
this year which for some has been
significantly beyond the call of duty.
In order to improve the current
arrangements, it is planned to involve
offenders in the Multi-Agency Public
Protection Arrangements.
Angela Montgomery
Chair
Humberside Area Strategic Management Board
Humberside Police
A fundamental objective of any Police Service
is the prevention and detection of crime.
Humberside Police's contribution to the MAPPA
process helps the service work towards
meeting that objective by ensuring public
safety and the prevention and detection of
crimes of a serious sexual or violent nature.
Dedicated Risk Management Officers attached
to the Family Protection Team in each of its
four Divisions focus on public protection and
the management of high risk offenders in the
community. They carry out risk assessments on
Registered Sex Offenders using a Home Office
approved procedure (Risk Matrix 2000) and
then develop plans to manage that risk
drawing in co-operation of other agencies
through the MAPPA process as appropriate.
Risk Management Officers are core members
of the meetings held under the MAPPA and
act as the conduit for the flow of information
and required actions between MAPPA and
colleagues in police operational and
intelligence units.
In North East Lincolnshire, I have found that
over the past year MAPPA has significantly
developed and moved forward. In 2004 a co-
coordinator was appointed for the
Humberside area. This has had a progressive
and developmental effect with good
practices across the force area being
adopted in each area. The ability to have the
same chairperson for all level 2 local risk
management meetings has improved and
standardised decisions making. The
appointment of the clerical officer for LRMM
and MAPPP has ensured quality minutes are
now produced and action plans and points
are formalized. I feel there is need to build
upon the steps already taken and fully
ensure that only the appropriate significant
persons are referred to both the LRMM and
MAPPP forums. The Local Risk Management
Meetings have also given backing to several
Sexual Offences Preventions orders that I
have presented to the Local crown court at
the time of conviction or/ sentence. Each
application being ultimately successful.
Risk Management Officer
Humberside Police
6
The police are the lead agency in Humberside
for ViSOR (The Violent and Sex Offender
Register), the computerised database
providing a national oversight of offenders
subject to MAPPA.
Humberside police jointly resource the post of
MAPPA Co-ordinator.
The local Operational Superintendents are
regular attenders of meetings held under
MAPPA and chair the Local Risk Management
Meetings in the absence of the MAPPA Co-
ordinator.
The Detective Chief Superintendent
responsible for the MAPPA jointly chairs Level
3 MAPPPS.
… within North Lincolnshire we have
continually assessed what we do and how
we do it with the emphasis being on
ensuring that all the other agency
representatives are fully involved in the
meeting and the decision making. Our
development has been held up as best
practice and has seen the meeting develop
into one of the best attended. I feel
confident in the strength of commitment
from a very focused group of professionals,
my knowledge of other agencies and the
way in which they work has increased
dramatically and that in itself has given me
greater understanding of where they fit in
and can assist me in my role. We are now at
the stage where a core panel has developed
representing all relevant agencies. Meetings
are professional and focused as the panel
members are well briefed before the start
and the available information allows for
informed decisions to be made and
questions asked from a position of strength.
I do not think any agency is left to manage
risk alone if it feels input is required from
other agencies and I am confident that the
solid risk management plans produced have
reduced the risk and prevented re-offending
in our community.
Police Risk Management Sgt, Humberside
Police
National Probation Service -
Humberside
The National Probation service - Humberside's
contribution to the workings of MAPPA is
wide-ranging. It starts with the initial risk
assessment of offenders who come before the
courts for sexual or violent offences. The risk
assessment process uses a Home Office
approved procedure called the Offender
Assessment System (OASys). The service then
supervises and manages any such offenders
placed on community orders, including action
to return offenders to court if they fail to
comply.
As is perhaps to be expected the majority of
offenders MAPPA works with are sentenced to
imprisonment for their offences and the
probation service carries out pre-release work
with those prisoners and has responsibility for
their supervision and management on licence
following release. Again this would include
requesting a revocation of the licence and a
recall to prison if the offender failed to comply
or the risk they presented became
unmanageable in the community.
In carrying out their responsibilities,
supervising probation officers - offender
managers - refer appropriate cases to MAPPA
where a significant input is required from
other agencies in achieving the risk
management plan. Those officers would then
attend any meeting called under MAPPA in
regard to the offender.
National Probation Service - Humberside
delivers specialist accredited programmes to
address offending behaviour, including a
nationally recognised Sex Offender Treatment
Programme.
The probation service manages two Approved
Premises in Humberside for offenders who
need an enhanced level of supervision.
As well as its work with offenders the
probation service also has a statutory
responsibility to contact all victims of sexual
and violent crime where the perpetrator has
been sentenced to 12 months or more in
prison2 . In our area we have 3 specialist
Victim Liaison Officers in the probation service
covering the two geographical areas north and
south of the Humber.
7
I believe that the victim contact units role is
not only vital to the victims/survivors we
work with but also crucial in respect to the
risk management of offender.I feel privileged
to represent the probation service as a VLO,
the work can be challenging and difficult as
the people we contact are often still
experiencing the devastating impact that
being a survivor of serious crime entails.At
times though when you receive a call, as I
did recently, from a victim who stated the
following;
" I don't know how my family or
myself would have coped during the
last three and a half years without
your help, we all want to thank you
so much"
it makes you realise just how important our
work with victims is, the families gratitude is
reward enough.
Victim Liaison Officer
National Probation Service - Humberside
The Victim Liaison Officers are core members
of the meetings held under MAPPA and advise
agencies about any victim concerns relevant to
the management of the individual offender
The main focus of the team's work involves
visiting victims in their homes,
communicating a victim's concerns and
making appropriate plans for protection
arrangements with case managers, the
Prison Service, Parole Board and other
statutory and voluntary agencies involved in
public protection.
Joint work with our partners in the MAPPA
process has meant that victims of crime
receive a more holistic service which helps to
address their anxieties about an offender's
release and supervision in the community,
their fear of repeat victimisation and
facilitates more effective risk management.
They have direct contact with the victim
liaison officers and the police risk
management officers and this co-ordinated
approach enables us to base risk
management decisions on the most up to
date information and respond quickly and
effectively to concerns or changes in
circumstances to either those of an offender
or the victim and their family.
Victim Liaison Officer,
National Probation Service - Humberside
2
sect 69. Criminal Justice and Court Services
Act (2000).
The Prison Service - Yorkshire and
Humberside Area
The Prison Service plays an important role in
protecting the public by keeping offenders in
custody; helping them to address the causes
of their offending behaviour; and by
undertaking other work to assist their
successful resettlement.
There are four prisons within the Humberside
Area, HMP Hull, HMP Everthorpe, HMP Wolds
and HMP Full Sutton. Of course offenders
from this area are also held in other prisons
nationwide and are released to Humberside
from them.
The main focus of the Prison Service
contribution to MAPPA is at an operational
level and a number of measures are being put
in place locally across the prison estate to
ensure that this will be effective and result in:
• Prompt identification of MAPPA
offenders so that their details can be
used in sentence planning
arrangements, including interventions to
manage and reduce risk
• Regular monitoring of the behaviour of
those assessed as presenting the highest
risk, and sharing information with police
and probation colleagues
• All relevant risk management
information being provided to multi
agency meetings which help plan an
offender's release and where appropriate
attendance at those meetings by
relevant prison staff.
• At least three months notification to
police and probation of the expected
release dates of those offenders who
have been referred to the multi-agency
public protection panel (MAPPP), and at
least six weeks notification of those
being managed at level 2 risk meetings
(LRMMs)
• No changes to release dates or
arrangements being made without prior
consultation with police and probation
8
"Duty to Co-operate" agencies
The principal responsibility for protecting the
public from sexual and violent offenders
continues to rest with the criminal justice
agencies. However, the effectiveness of public
protection often depends on more than just a
criminal justice response. It is well known that
other agencies play an important role in
helping offenders to resettle and avoid re-
offending. For example, research has shown
that offenders with jobs have one-third to
one-half lower rates of re-offending than
offenders without employment. Re-offending
among offenders who have stable
accommodation on release from custody is
similarly lower. The important contribution
other agencies can make is also highlighted in
cases where offenders have mental health
problems or where they pose a risk of harm to
children.
In acknowledgement of the above The
Criminal Justice Act 2003 imposed a duty on
various organisations providing public services
to co-operate with the MAPPA. Over the last
year we have worked to develop the
involvement of what are referred to as "Duty
to Co-operate" agencies. These agencies
include;
Youth Offending Teams
Jobcentre Plus
Local Education Authority
Local Housing Authority
Registered Social Landlords
Local Authority Social Services
Health Services
Enabling the co-operation of all those
agencies, which work with MAPPA offenders,
is therefore vital. Placing that co-operation on
a statutory basis underpins the good practice
that has already developed; and locates it
clearly within the established framework of
the MAPPA
What must the "Duty to
Co-operate" agencies do?
The legislation does not define the activities
the duty to co-operate involves nor does it
require the agencies on which it is imposed to
do anything other than what they are already
required to do. The purposes of co-operation
are:
• to co-ordinate the involvement of
different agencies in assessing and
managing risk
• to enable every agency, which has a
legitimate interest, to contribute as
 fully as its existing statutory role and
functions requires in a way that
complements the work of other
agencies
Agencies therefore participate through
• the identification of MAPPA offenders
and the agencies with a specific
responsibility for, or a broader
interest in, the offender;
• information sharing either specific to
that offender or more general advice
about an agency's role and the type
of services it provides. This can
helpfully involve advice about how
those services can be accessed and
provide a point of contact for other
agencies.
• the formal assessment of risk and the
contribution each agency can make
to the interpretation of all the
relevant information about an
offender; and,
• co-ordinating the plans to manage
the identified risks so that each
agency performs its role in a way
which at best complements the work
of other agencies, or at the least does
not frustrate or compromise their
work.
Youth Offending Teams
Local authorities across England and Wales
have a statutory duty to establish Youth
Offending Teams (YOTs). YOTs are themselves
Multi-agency partnerships in which police and
probation play an important role but are
regarded as performing a 'single agency' risk
assessment and risk management role. YOTs
are responsible for the supervision of young
people on community orders and during their
licence period following their release from
detention. They have skilled, specialist staff
who can manage risk effectively, whilst also
addressing the vulnerability of the young
people themselves
Most of the young offenders for whom YOTs
have responsibility will not, by virtue of the
type and length of sentence they receive fall
within MAPPA but with the minority that do
present a high risk YOT managers - who are
9
now core members of the local risk
management meetings - will refer them to
MAPPA.
As a new manager in the Youth
Offending Team I have been attending
Hull Local Risk Management Meetings
since November 2004. This time
coincides with the issue of a guidance
document "Managing Risk in the
Community3" from the Youth Justice
Board. This paper clarifies the process of
risk assessment and the link to local
MAPPA systems for Youth Justice
Officers. I predict that there will be an
increased incidence of case notification
at Level 1 from the Hull YOT in the
coming months as we become more
familiar with the new guidance.
Team Manager
Hull Youth Offending Team
Jobcentre Plus
Jobcentre Plus is an executive agency of the
Department for Work and Pensions formed in
2002 when the Employment Service, which
ran Jobcentres, and those parts of the Benefits
Agency which provided services to people of
working age through social security offices,
were combined.
Jobcentre Plus aims to provide work for those
who can, and support for those who cannot,
by :
• Helping disadvantaged people into
work, as a route out of poverty;
• Providing financial support as a safety
net for people of working age while
they are out of work;
• Addressing inequalities of
opportunity;
• Protecting the integrity of the benefit
system; and
• Working with employers and partners
to address market failure in the
labour market.
All these activities underpin the Department
for Work and Pensions' purpose of promoting
"opportunity and independence for all".
The priority customers, identified by the
agency's performance target structures, are
3
Managing Risk in the Community, Edition 1
(2005) Youth Justice Board.
those at greatest disadvantage in the labour
market. These customers include people with
specific disadvantages, such as ex-offenders,
refugees, homeless people, drugs misusers and
people without basic skills. Helping them
contributes to wider goals, including cutting
crime and re-offending rates.
Freshstart is an initiative that builds on the
close working links between Jobcentre Plus
and the Prison Service. Evidence suggests that
employment is a key factor in reducing the
likelihood of re-offending. Effective links
between Jobcentre Plus and the Prison Service
can help to make an impact by guaranteeing
that offenders about to be released are put in
touch with Jobcentre Plus staff at the earliest
opportunity. This will be specifically through a
work focussed interview where customers can
begin to explore job opportunities and help
available through New Deal or other Jobcentre
Plus programmes. For those unable to work,
through disability or illness, claims to benefit
can be made.
There may be cases where MAPPA decides
there is a need to notify local Jobcentre Plus
offices that restrictions should be placed on an
offender's employment. In those rare cases
only the identity of the offender and the
nature of the employment from which the
offender should be restricted will be disclosed
to a senior manager and in most cases this
would be done with the full knowledge and
permission of the offender who would see the
benefit of not being sent for interviews etc
where wider disclosure of their offending may
be required.
Local Education Authorities (LEA)
Broadly speaking the role of LEAs is four-fold:
school improvement; special educational
provision; access to education; and, strategic
management of schools and the local
education service. Their 'core business' does
not therefore involve them directly with the
assessment and management of MAPPA
offenders and their most likely involvement in
the MAPPA is in cases which involve, either:
(a) a MAPPA offender aged under 18 and
who is referred by the Youth Offending
Team to the MAPPA at either Level 2 or
Level 3; or
(b) a case where a MAPPA offender poses
risks to young people for whom the LEA
has a responsibility/duty of care which
may be affected by the arrangements to
10
manage the risks the MAPPA offender
poses.
The LEA representative on MAPPA provides an
insight into the workings of schools and the
LEA and has some knowledge of child
protection, information sharing protocols and
current arrangements for risk assessment. The
education service, particularly schools, can
make a helpful contribution to the work of
MAPPA because:
• Schools are able to provide their
pupils with programmes of child
protection awareness training. i.e.
Stranger Danger etc. This training can
be re-enforced at times when there is
a particular local risk.
• School staff are well placed to be
alert and aware regarding activities
within the locality that could provide
a threat to pupils.
• In particular situations, and with the
authorisation of MAPPA through the
Police, schools are in a position to
warn individuals or groups of pupils,
or staff, regarding possible danger.
• Schools are able to provide a safe
environment during the daytime for
children and young people.
• The local school is often the first port
of call for parents who want to voice
their concern regarding worrying
activities in the area.
• Schools are often able to provide
helpful information to assist the work
of MAPPPs.
Local Housing Authorities
The provision of accommodation for offenders
released from prison presents a continuing
challenge for those working in public
protection. Close working ties, through
MAPPA, are therefore invaluable in seeking to
place offenders as sensitively and as safely as
possible in their local communities.
Local Housing Authorities have two functions
that relate to the resettlement of offenders:
the allocation of long-term accommodation
and the provision of housing assistance for
people who are homeless.

I have been involved in MAPPA activity since
I took on my current role some four years
ago. Prior to this I had a working
relationship with Probation Personnel and
also other agencies including Social Services,
Police etc in my previous role as an Estate
Manager
My own views are that the MAPPA plays a
critical role in dealing with high and medium
risk people and is a practical way of
progressing their need for placement and
accommodation and attempting to avoid
potential difficulties with the general public.
The meetings can sometimes be long due to
the number of cases that have to be
discussed and sometimes my
involvement/contribution can be minimal.
However my feeling is that no matter how
small the contribution it is always welcomed.
As an accommodation provider the Housing
department have a purposeful role to play.
One of the difficulties sometimes is where
we may agree to re-house an ex offender in
a certain property type, in a certain area of
the City and this can cause "challenges" from
my colleagues on the Estates i.e. "why my
area, not in my backyard" scenario. I guess I
am the link between the MAPPA and the
Estates but unless the Housing Manager is
fully convinced that to house someone in
his/her area is the right decision then
difficulties can emerge.
Finally, in my opinion there are many success
stories to be had and these far outweigh any
failures that have occurred within the
MAPPA remit.
Housing Rights & Services Manager Kingston
upon Hull
Under homelessness legislation local housing
authorities must ensure that advice and
information about homelessness, and
preventing homelessness, is available to
everyone in their district free of charge. They
must also ensure that suitable accommodation
is available for people who apply to them for
housing assistance where the authority is
satisfied that those people are eligible for
assistance, have become homeless through no
fault of their own and they fall within a
priority need group. This is known as "the
main homelessness duty".
11
The priority need groups are specified in
legislation and include, among others a person
who is vulnerable as a result of time spent in
custody.
Clearly, given the importance of
accommodation in the resettlement of
offenders and hence in the assessment and
management of risk, local authority housing
representatives can make an important
contribution to the MAPPA. As indicated
above, this will not necessarily mean that they
have a specific duty to accommodate an
offender but their advice about
accommodation and the procedures by which
it is allocated and the suitability of particular
housing stock will provide a valuable
contribution.
Registered Social Landlords (RSLs)
Registered Social Landlord (RSL) is the
technical name for social landlords that are
registered with the Housing Corporation -
most are housing associations, but there are
also trusts, co-operatives and companies.
Housing associations are run as businesses but
they do not trade for profit. Any surplus is
ploughed back into the organisation to
maintain existing homes and to help finance
new ones. Housing associations are now the
main providers of new social housing.
Most associations are small and own fewer
than 250 homes. However, the largest seven
per cent of associations - those with 2,500
plus homes - own 78 per cent of all the
sector's homes. Some were founded centuries
ago but many trace their origins to the 1960s
and over the last decade, many new
associations - such as Shoreline in Grimsby -
have recently been formed to manage and
develop homes transferred to them by local
authorities.
Not all RSLs provide accommodation for
MAPPA offenders, and it is only those which
do that are required to co-operate in the
MAPPA. MAPPA locally therefore only engages
with those RSLs when they are giving
consideration to accommodating a MAPPA
offender or are asked for the provision of
general advice in regard to accommodation.
 As one of the area's largest provider of social
housing, I see Shoreline Housing
Partnership's involvement with MAPPA as
essential from all points of view, because we
share MAPPA's dual role of assisting in the
resettlement of offenders and protecting the
public.
Very often, a lack of housing is a major
obstacle to that resettlement and we are
able to help with general housing advice and
information about the housing stock. The
type and location of property can be crucial
for the safety or well-being of either the
client or the public and, dependent on stock
availability, we can assist MAPPA to resolve a
particular issue.
It is sometimes necessary to affect an urgent
move when a client's safety is threatened, be
they a victim of crime or an offender subject
to risk from others and this can be facilitated
via a direct request from MAPPA.
We do, however, have our failures;
sometimes we have to refuse a client as a
potential tenant when they do not meet the
criteria for eligibility on the housing register.
Equally, the best laid plans can come to
nothing when the potential victim voluntarily
seeks out the person from whom we have
sought to protect them.
Senior Applications Officer
Shoreline Housing Partnership
Local Authority Social Services -
Councils with Social Services
Responsibilities
The links between the responsibilities of
councils with social services responsibilities
and the MAPPA are mainly in the area of child
protection and safeguarding children. The
MAPPA authorities are members of the Area
Child Protection Committee (ACPC),soon to be
Local Safeguarding Children Boards, and
individual practitioners in police, probation
and social services work together to manage
the risk posed to children by particular
dangerous offenders.
12
My experience of attending the meetings
and contributing to them is that all agencies
have the opportunity to obtain a broad
picture of how the subjects being discussed
will impact not only on their service area and
responsibilities, but also on those areas
covered by other agencies.
The added value of this model is that the
discussion element allows expertise to be
shared in an environment conducive to
reaching consensus and relatively objective
joint decision-making. The presence of key
professionals ensures that all decision-
making and planning takes account of
relevant legislation and procedural
requirements for all agencies.
I have on more than one occasion now
agreed to a particular course of action to be
taken outside of the meeting that has
involved working closely with another
agency, usually probation, in order to
progress a case to a satisfactory conclusion.
A particular example of this has been some
work conducted jointly with a probation
officer to develop a management action plan
pending the release of a convicted murderer
into the community - with the intention of
moving into a family environment. The
officer and I achieved what we believed was
a safe and workable plan that both
safeguarded the children concerned and
allowed the subject the potential to live a
"family life" on his release. In the event the
subject was not granted parole but the work
remains on file for future use when release is
eventually sanctioned.
Child Protection Co-ordinator
North Lincolnshire Child Protection Team
Local authorities have a duty, where they have
reasonable cause to suspect that a child who
lives, or is found, in their area, is suffering, or
likely to suffer, significant harm, to make such
enquiries as they consider necessary to enable
them to decide whether they should take any
further action to safeguard or promote the
child's welfare. A 'reasonable cause to suspect'
may arise because of the known presence of a
dangerous offender in the area, and local
authority staff work will with staff from the
MAPPA agencies to manage the risk that
person poses to children.

Since 2001 I have attended the MAPPA
panels regularly, at first feeling
apprehensive, feeling the weight of
responsibility in making recommendations in
order to safeguard children. As in all multi
agency settings relationships have to be
forged and trust in each others judgment
built up.
I find the panel to be truly multi agency,
with shared responsibility and operates well
in line with ' Working Together to Safeguard
Children'.
I see my role as advisor in managing the risk
an offender may pose to either particular
children or children generally, ensuring that
information is shared with social service
colleagues, following up referrals made to
the department and feeding back to panel
when required.
4
'Working Together to Safeguard Children'
describes MAPPA and its processes as
mirroring child protection conferences, but
with the focus on managing the risk posed
by the perpetrator which are central to the
inter-agency approach.
I enjoy sitting on the panel. I feel the child
protection perspective is important, and I
have learnt a lot about the importance of
"joined up" working.
Area Manager
Children and Families Services
Kingston upon Hull Social Services
Following the tragic death of Victoria Climbié
Lord Laming stated;
" The support and protection of children
cannot be achieved by a single
agency….Every Service has to play its part" 5.
As legislation6 which has its roots in the
report which followed the Victoria Climbié
Inquiry comes into force there will be a greater
expectation, indeed a duty, placed on other
agencies to have regard to the need to
safeguard and promote the welfare of
children. In their position as principal point of
contact in regard to concerns about the
welfare of children it is anticipated that social
or children's services will lean more towards
4 5
Working together to safeguard children; a guide to
inter-agency working to safeguard and promote the
welfare of children. 1999. Dept of Health, Home
Office, Dept of Education & Employment. HMSO.
13
MAPPA for the management of adult
offenders in ways that will, through effective,
multi agency risk assessment and
management, reduce the risk of harm such
offenders may present to children.
As a Child Protection Co-ordinator for East
Riding and a member of the MAPPA
meetings, I have found the MAPPA
arrangements to be an important mechanism
for inter agency working to safeguard
children.
For example, there have been instances
whereby information has come to light at
MAPPA meetings that a high risk offender
intends to live with a vulnerable family.
Members of MAPPA can agree actions to
prevent this potentially dangerous situation
e.g. by redirecting the offender, and Social
Services are then also able to assess the
situation further and provide the family with
advice and guidance. These actions can take
place without invoking the more formal child
protection process or they can dovetail with
the child protection procedure but
whichever path is taken MAPPA has acted as
an information sharing trigger to
professionals to put protective plans in place
for children
.… the MAPPA task is often difficult with
information that is sometimes not easy to
listen to. However it is hard to imagine how
the issues were addressed prior to MAPPA
and it can only be concluded that the panel
fulfils an important arena in the protection
of the public with children included. I have
always found the East Riding panel to be
supportive and helpful which makes the
tasks it has to complete that much easier.
Finally the MAPPA enables professional
relationships to be established that lead to
good communication and child protection
activity beyond the MAPPA panel.
Child Care and Protection Co-ordinator
East Riding of Yorkshire Social Services
Health Services
MAPPA's interaction with health services is as
diverse as any adult offender's contact with
the service. It may be at the primary care level
through for example a GP or pharmacist or at
the secondary level through hospitals,
consultants, etc. The "duty to co-operate"
therefore whilst under the umbrella of a
particular health Trust, operates at those
various levels as needs arise.
Lord Laming in the Victoria Climbié Inquiry Report
6
Children Act 2004
 The Humber Mental Health Teaching NHS
Trust has had a regular seat on the Local Risk
Management Meeting for the East Riding
area for the last year. This regular
attendance has proven to be useful in that a
significant proportion of the people who are
subject to multi-agency public protection
arrangements have a history of, or are
currently using, mental health services.
During the past year it has become apparent
that while colleagues from the Probation,
Police and Child Care do show a concern for
the mental health of the people they work
with, they find the organisation and
operation of mental health services
confusing. Therefore one of my roles as a
member of the LRMM is to explain the
operation of the mental health services in
terms of appropriate referral routes and the
availability and appropriateness of services
for individuals being managed under
MAPPA.
While hopefully being able to develop the
understanding of colleagues about mental
health issues the LRMM also offers me the
opportunity to learn and understand the role
of Police, Probation and Child Care in
relation to public protection and offender
management. This understanding can then
be fed back into the mental health system
which often has similar difficulties
understanding the role and function of the
other agencies.
Clinical Nurse Manager
Adult Inpatient Services (East Riding)
Clearly there are particular issues about
working with health professionals and the
sensitivities of information sharing and co-
operation because of the very different
relationship they have with their patients.
However, all the advice and published
guidance indicates that clarity about roles and
the legal principles which enable information
to be shared in certain circumstances, will
avoid misunderstanding and disagreement.
Reference is made to those principles in the
section on information sharing in the MAPPA
Guidance.
As with all MAPPA cases the consent of the
offender is obtained wherever possible for
information to be sought or passed on.
However situations where patient information
may be passed on without consent include ;
14
• where serious harm may occur to a
third party
• where a doctor believes a patient to
be a victim of abuse and the patient
is unable to give or withhold consent
• where, without disclosure a doctor
would not be acting in the overall
best interests of a child or young
person who is his/her patient and
incapable of giving consent
• when, without disclosure the task of
preventing, detecting or prosecuting
a serious crime by the police would
be prejudiced or delayed
The Forensic Mental Health Service is a
specialist service within the delivery of
mental health services in North East
Lincolnshire. We work with mentally
disordered individuals who offend, or have
the propensity to offend, and our work
covers all aspects of the criminal justice
system including point of arrest and post
sentence.
We function as an integrated member of the
MAPPA meetings, providing input direction
and advice to all parties involved in risk
management. We are able to visit and
assess those referred to the MAPPA meetings
and thereby provide individual assessments
relating to mental health and risk
management issues.
… we offer a fully qualified staff group
which consists of practitioners from both
health and social service backgrounds who
are able to offer a range of skills and
experiences that will hopefully compliment
the other disciplines within the MAPPA
arena. We are committed to MAPPA to
reducing risk through the MAPPA process.
The team representative at these meetings
will refer and receive referrals of cases where
the mental health or behaviour of an
individual is of concern, share information
and provide advice on case management.
Such individuals may be returning to the
locality from penal or secure hospital
establishments and may require housing,
social care or clinical supervision from
appropriate professional groups.
The MAPPA forum provides our service with
a valuable point of contact within the
provision of services to mentally disordered
offenders from the locality thus enabling a
sharing of the expertise and judgement from
within a multi - agency framework.
Manager
Forensic Mental Health Team, Grimsby.
Mental Health Trusts are perhaps the most
significant health bodies on whom the duty to
co-operate falls because most instances will
involve mentally disordered offenders.
However, the duty does apply to all health
bodies and representatives from the various
disciplines are core members at meetings held
under MAPPA.
The involvement of the learning disability
Service with MAPPA has been ongoing for a
number of years and strangely it has always
felt like a good idea, not that there are a
huge number of offenders with Learning
Disability managed through MAPPA, it just
seems to work
I attend the monthly meetings and view that
responsibility as multi faceted. I provide
expert opinion on individuals with whom I
am working, often in partnership with other
professionals. I can give a specialist opinion
on individual offenders described as having a
learning disability but who are being
managed by other agencies and can offer
background information on people with a
learning disability who may be involved with
those on the MAPPA agenda and as such be
at risk or vulnerable…
.….there is always the risk that liaison will
come across as a bit limp, vague and thin,
but in many respects it is the most important
aspect of the Learning Disability Service link
with MAPPA. The contacts, expertise and
experience that our service can draw on, is
invaluable in ensuring the safety of both
individuals with a learning disability who
offend and the community in which they
live.
Manager/Community Nurse
Community Team Learning Disability
North Lincolnshire
The benefits for the health service for co-
operation in MAPPA have been summarised as
providing;
• a source of information about
patients
• a conduit and framework for joint
working
• a useful source of advice on
appropriateness and implications of
various medical treatments and
interventions
• help in management of risk in
complex cases.
15
I have represented the Community Mental
Health Service (Scunthorpe) in the MAPPA
since July 2003.
The purpose of my representation is to
provide general information to the group on
issues that relate to offenders with Mental
Health problems who may require MAPPA
management and giving feedback on
offenders who are known to the Community
Mental Health Services in order to help the
decision making process of the MAPPA
group.
My personal experience of attending MAPPA
meetings have been very rewarding and has
improved my knowledge of how difficult
cases are managed with absolute
confidentiality. I am most fascinated by the
way people who pose great deal of risks are
being managed with knowledge of people
from different professional backgrounds.
My perception of the group is of well-
disciplined professionals who share a
common goal of protecting the public. As a
result of this, a robust risk management is
always achieved which adds to the credibility
of the MAPPA group and makes it a
worthwhile venture.
MAPPA group is a very useful forum in
sharing information, and has brought about
collaborative work, which makes our service
more effective and more responsive. As a
result, risks have become more manageable
in terms of drawing up contingencies within
our service. As a service we have therefore
become more proactive rather than reactive.
Community Mental Health Services North
Lincolnshire
Key achievements over the
past year
Prison Service.
One of the important ways in which the
Criminal Justice Act (2003) strengthened the
MAPPA was to make the Prison Service part of
the Responsible Authority with police and
probation in each of the 42 Areas in England
and Wales in April 2004. The Prison Service
was then given an enhanced role in
recognition of the important part it
As part of the Responsible Authority the Prison
Service is now represented on each of the
Strategic Management Boards (SMBs) in the
42 Areas. The Prison estate is configured
differently from Police/Probation areas in that
its establishments are contained within only
12 geographical areas and two functional
areas - the High Security estate, and
Contracted Prisons. For this reason
arrangements for Prison Service representation
on SMBs vary across the country, but each
Prison Service Area Manager has entered into
an agreement with the SMBs on how the
Service will contribute both strategically and
operationally to the MAPPA.
Playing an effective role in the multi agency
risk management of MAPPA offenders requires
good communication between criminal justice
partners. Over the past year the Prison Service
has taken steps to ensure that there are
dedicated points of contact for public
protection at both Area level and in every
prison establishment, and that these are
published together with police and probation
contacts to ensure better communication
across the Responsible Authority.
With the ever increasing MAPPA population
and the proportion of those received into
prison likely to grow with the introduction of
the new public protection sentences, the
inclusion of the Prison Service as part of the
Responsible Authority will continue to be vital
in protecting the public.
ViSOR
ViSOR is a new national computer based
Violent Offender & Sex Offender Register and
is set to play a vital role locally and nationally
in monitoring sex, dangerous and violent
offenders.
The system went live in with Humberside
Police in February of this year and all sex
offenders and other offenders managed on a
multi agency basis under MAPPA are now
entered on the system. Liaison is ongoing with
colleagues in other police areas to ensure the
integrity of information, to merge information
from different areas and ensure that only one
file on the offender exists with clear indication
of which officer in which area is managing
that case.
Because all police forces and eventually all
probation areas and prisons will have access
to the database, intelligence added by a
police, probation or prison officer in one part
of the country will become immediately
searchable by officers in another. This means
that offenders are better tracked making it
more difficult for them to change appearance
and re-emerge undetected to offend in
another part of the country.
16
MAPPA Co-ordinator
A MAPPA Co-ordinator was appointed at the
beginning of the period of review. Whilst the
responsibility for the operational management
of the offenders subject to MAPPA remains
with the field officers the co-ordinator works
with those field staff to establish a consistency
of approach in the way offenders are referred
to, and handled by, the MAPPA. The co-
ordinator chairs the Level 2 Local Risk
Management Meetings and is accompanied by
a minute taker who prepares and distributes
the minutes centrally, again seeking to
establish a consistency of practice across the
area.
The MAPPA Co-ordinator liaises with
colleagues from the Responsible Authority and
"Duty to Co-operate agencies developing and
gate keeping the referral process, acting as a
central point of contact for MAPPA issues both
in the area and for out of area enquiries and
arranging and delivering multi agency training
on risk and the MAPPA process.
MAPPPs held centrally
Immediately prior to the period under review
the Level 3, Multi Agency Public Protection
Panels were held locally in the Divisions.
However in order to bring a more consistent
approach and help maintain a central overview
of all high and very high risk offenders in our
area they have, since April last year, been held
centrally at Police or Probation Headquarters
and chaired by the police or probation Senior
Management Team member having
responsibility for the MAPPA. This appears to
be working well and has resulted in
attendance at those meetings of the
appropriate level of agency representation and
facilitated the effective handling of cases
where the offender travels across divisional
boundaries in our area.
Recall Procedures
The steady rise nationally in the number of
offenders sentenced to imprisonment has lead
to an accompanying increase in the number of
offenders on licence supervised by the
National Probation Service. Additionally part of
the Criminal Justice Act 2003 which came into
effect in April of this year in regard to
Dangerous Offenders means that prisoners will
be supervised for longer periods in the
community following their prison sentences.
 CASE STUDY 2
A sex offender with a history of sexual
assaults on children he sought out
around local schools was released on
licence to another area following a long
prison sentence.
Shortly after his licence expired he was
again involved in indecency offences and
placed on a Community Rehabilitation
Order with a condition that he attended
a sex offender treatment programme.
He finished the programme but the
tutors assessed him as still presenting a
risk of serious sexual harm he was
instructed to repeat elements of the
work.
Whilst repeating the programme he
moved to our area to live with his
parents and was almost immediately
arrested and convicted of harassment of
two girls and sentenced to a further
term of imprisonment.
The prison sentence was a short one
which meant that on release he was not
subject to a licence allowing probation
to dictate where he lived but probation
did have a reason for contact as the
Community Rehabilitation Order was still
in force on his release. The police also
had an overview of him as he was
required to register with them as a sex
offender. Additionally, because the
offender had used his car when
committing the offence he was
disqualified from driving.
Prior to his release he was referred to
MAPPA and dealt with at Level 3, the
Multi Agency Public Protection Panel.
A risk management plan was agreed and
it was decided to advise him fully of this
plan and involve him and his family as
much as possible in its execution.
Unfortunately his family did not view
him as a risk but as a result of joint visits
from police Risk Management Officers
and his supervising probation officer
they saw the advantage to everyone of
steps being taken to ensure their son did
not re-offend or put himself in a
position where he could be accused of
intending to offend. On that basis police
17
obtained permission from the offender
to make certain disclosure to neighbours
and schools
It was agreed that head teachers of
schools around his home needed to be
aware of his presence and have a clear
action plan if he was seen near to any of
them. A complication with this was that
living as he did on the border of another
area two education authorities needed
to be involved and this was achieved
through the MAPPA process.
Social services contacted the family
living next door to him who had children
and ensured that the parents were fully
aware of the particular situation and the
children knew what to do if ever
approached by any single male in the
street.
Arrangements were made for him to
attend a Sex Offender Programme in this
area and through such participation his
moods and behaviour were monitored.
Police and probation officers agreed to
each visit the family home every
fortnight meaning that the offender was
seen every week. His movements were
discussed and he agreed to keep the
police informed of any significant trips
away from his home.
Local police in this area and police in the
neighbouring area were made fully
aware of his situation and his
description and vehicle details were
circulated. To date the man has co-
operated fully with the agencies
supervising him and continues to attend
the Sex Offender Programme. He has not
to our knowledge re-offended.
Because of this the use of revocation of the
licence and recall to prison can be used as a
more flexible risk management tool. A new
National Protocol was therefore introduced in
January of this year to ensure that there is a
more collaborative approach between police
and probation to ensure supervision,
monitoring revocation decisions and in
appropriate circumstances a swift recall to
custody.
In our area the national agreement has been
implemented to suit local circumstances such
that police and probation work closely,
through MAPPA where appropriate, in setting
any conditions it is felt need to be attached to
a licence, share information of the offenders
adherence to the licence and ensure that once
a decision has been taken to revoke a licence
the offender is returned to custody as speedily
as possible in order to protect the public and
prevent re-offending.
Strengthening of Police Teams
In response to the move over the last year to a
more consistent approach in managing high
risk offenders across the area and the increase
in collaboration required by legislation in
supervising sexual and violent offenders in the
community the number of police Risk
Management Officers has been increased in
each of the 4 police divisions in our area.
These officers are working more closely with
colleagues from social services and probation
and often joint visiting offenders and their
families or sharing supervision of offenders.
Joint training with the probation service is
being undertaken for supervisory and field
officers in risk assessment and management.
CASE STUDY 3
A man with a history of violent assaults,
criminal damage, offensive weapons and
drug misuse and supply became
obsessed with a woman whom he met
socially but who did not wish to have a
relationship with him.
His behaviour in trying to make contact
with her became such that he was
eventually arrested near her home and
sentenced to imprisonment.In prison he
refused any help with his drug problem
and continued to demonstrate violent
behaviour, assaulting other prisoners
and staff.
As his release date approached it
became clear to prison staff that his
obsession with the woman was
returning but now with the added factor
that he saw her as the reason he was in
custody. He began to make remarks
about what he intended to do on release
but these were made in such a way that
legal action in regard to treating these
remarks as "threats" was extremely
18
difficult. These "threats" were taken
seriously by the prison and a Level 3
Multi Agency Public Protection Panel was
called by the supervising probation
officer in the community to plan for the
offender's release.
That meeting was attended by
representatives from police, probation,
housing authorities, forensic mental
health services, social services, and the
prison.
A risk management plan was formulated
which involved the victim being offered
a house move by the local authority
prior to the offender being released. The
victim was loath to take up this offer as
she had established network of friends
and support where she lived. Alarms
were therefore installed in her home by
the police and the local policing team
made fully aware of the situation.
Licence conditions were agreed to
include a direction that the offender did
not contact or attempt to contact the
victim, an exclusion zone was made
around the victim's home and the
offender was required to reside in
probation approved premises on release.
The offender was transferred to a local
prison to facilitate easier monitoring of
his movement immediately on release.
It was felt there was no choice but to
make the exclusion area around the
victim's home but this of course
indicated to the offender that she was
living in the same place as when he had
offended against her and he chose to
see this as her enticing him further
thereby increasing the risk he presented.
It was noted that a further significant
factor in the risk this man posed was a
return to drug abuse.
The offender was released and did go to
the probation approved premises. Soon
after release monitoring by the
probation service revealed that he was
again using an illegal class A drug and a
decision was taken to revoke his licence
and return him to custody where it is
anticipated that his mental health can
be assessed and treatment and support
given as required.
What do the Statistics tell
us?
The statistical information published in this
year's report is substantially the same as last
year's. However, to capture a more accurate
picture of the work being done under MAPPA
figures on level 2 (Local Risk Management
Meetings) activity in addition to level 3
(MAPPPs) are included as well as outcome
measures from that activity. New civil orders
introduced by the Sexual Offences Act 2003
which replace and build on the Sex Offender
Order and Sex Offender Restraining Order are
also included.
There are currently 645 Registered Sex
Offenders living in our area against a figure of
584 for the previous year. An increase in
numbers over last year is inevitable at this
stage because the numbers are cumulative as
offenders are required to register for extended
periods of time and currently the number of
offenders who are required to register on
conviction is greater than the number whose
registration period has come to an end.
However the national increase over last year is
anticipated to be 15% and in our area it is just
over 10%.
During the reporting period 20 Registered Sex
Offenders were cautioned or convicted for
breaching the requirements of their
registration.
The number of Category 2 offenders, i.e.
violent and other sex offenders, recorded as
living in this area in the reporting period is
344. This number is significantly higher than
that recorded last year. However it should be
remembered that this is not the number of
such offenders present on any one day but is
the number who have lived in the area for a
period, however short, at any time during the
year. It is felt that this years figures are a
reflection of the true situation now that the
appointment of a MAPPA co-ordinator enables
an area wide scrutiny of the figures.
The number of Category 3 offenders dealt
with during the reporting period is slightly
down at 35 against 55 last year and such a
19
decrease was not anticipated. This is because
there have been two significant influences on
this figure over the last year. Firstly the criteria
in regard to risk has been more stringently
applied thereby ensuring that only those that
were assessed as presenting a current risk of
serious harm were considered. Secondly
however more focus is now directed on
offences involving domestic violence. At this
time the sentences for offences involving
domestic violence often do not meet the
criteria for automatic consideration under
MAPPA Category 2, Violent Offenders (a
sentence of at least 12 months imprisonment
is required) but nevertheless the offenders
behaviour is such that there is still considered
to be a current risk of serious harm to their
victims - meeting the criteria for Category 3.
For the first time we have included details of
the number and categories of offenders dealt
with under MAPPA at the Level 2 Local Risk
Management Meetings (LRMMs) as well as the
Level 3 Multi Agency Public Protection Panels
(MAPPPs)
27 Offenders were managed by Level 3 Multi
Agency Multi Agency Public Protection Panels
at some stage during the reporting period. At
2.6% of the total MAPPA caseload in this area
(1024) this is within the nationally predicted
range of less than 5% but it is an increase on
last years figure (8). A more detailed
examination of the figures will be undertaken
to ascertain to what degree the number of
referrals was influenced by the availability for
the first time of a central MAPPP coupled with
the lack of resources in any particular division
preventing the case being managed at a more
local lower level rather than the level of risk
presented by the offender driving the referral.
There is no significant difference between the
number of Category 1, Registered Sex
Offenders (12) and Category 2, Violent and
Other sex offenders (10) managed at Level 3.
158 offenders across the area were dealt with
at the lower level of risk management, Level 2,
Local Risk Management Meetings. This figure
does not include those offenders who may
have been managed at a higher level at some
point, perhaps to access resources which could
only be authorised at a senior management
level, and who then have been returned to
local jurisdiction. It is anticipated that
nationally cases managed at Level 2 will make
up 20% of the total MAPPA caseload. In our
area the figure at 158, (15.4%) is slightly
lower than the predicted average. Again there
is not a great difference between the number
of Registered Sex Offenders (58) and Violent
Offenders (70).
2 of the 27 cases managed at Level 3, Multi
Agency Public Protection Panel and 17 of the
158 cases managed at Level 2, Local Risk
Management, were returned to custody for
breaching the conditions of their licence.
Revocation of the licence and recall to prison
should not be seen as a failure of the risk
management process. Rather it is an indication
that those managing the offenders are
prepared to take swift, decisive action when,
by re-offending or through their behaviour, an
offender indicates that the risk they present to
the public in the community is unacceptable.
Following recall further work can be
undertaken to address that behaviour or other
risk management initiatives can be put in
place, which will enable the consideration for
further release when the risk presented by the
offender is considered acceptable. As
mentioned above the part of the Criminal
Justice Act 2003 which came into effect in
April of this year in regard to Dangerous
Offenders means that prisoners will be
supervised for longer periods in the
community following their prison sentences
and the use of revocation of the licence and
recall to prison will be used more frequently as
a flexible risk management tool.
In March 2004, ie at the beginning of this
review period, a notification, screening and
review procedure for serious further offences
committed by offenders currently being
supervised by probation service was
introduced nationally. The purpose of this is to
ensure that a robust system of scrutiny is in
place for these offenders so that any failures
can be identified and rectified, but also that
good practice, not withstanding the
commission of a serious further offence, is
recognised and supported. The trigger factor
for this process is the seriousness of the
further offence committed not the level of
supervision or risk management being applied
so this is not purely a MAPPA initiative.
20
However scrutiny of these cases should lead to
learning and possible changes in service
delivery relevant to all offenders including
those managed under MAPPA.
For these purposes a serious sexual and violent
offence is defined as;
• Murder; Attempted murder; Arson
(where there is an intent to endanger
life); Manslaughter; Rape;
Kidnap/abduction or attempted
kidnap/abduction;
• Any other very serious violent or very
serious sexual offence, armed robbery
(defined as robbery involving a
firearm), assault with a deadly
weapon or hostage taking, or;
• Any other violent or sexual offence
where the offender/ offence is likely
to attract significant media interest or
which raises wider issues of national
interest.
Of the 27 cases managed at Level 3 , Multi
Agency Public Protection Panels, none were
charged with any serious further offences
whilst under that supervision. Of the 158 cases
managed at Level 2, Local Risk Management
Meetings, 1 was charged with a serious
further offence whilst under that supervision.
This case involved a man with a history of
violence, including domestic violence, who
was at that time being supervised by the
probation service under a Community
Rehabilitation Order given for the possession
of drugs, possession of an offensive weapon
and the breach of a previous Community
Rehabilitation Order. The offences and
sentence did not meet the criteria for
automatic referral to MAPPA but the case was
referred under the Category "Other Offender"
by the supervising probation officer because
of concerns in regard to the risk the man was
beginning to present to his ex partner and her
children. The split with his partner was recent
and acrimonious and the man had reverted to
drug and alcohol abuse. Appropriate action
was taken in regard to the protection of the ex
partner and children but then the man was
arrested and charged for allegedly taking part
in a serious group assault on others.
Subsequently these charges were withdrawn.
Sexual Offences Prevention Orders are
obtained on application to a court. They place
restrictions on an offender to prohibit access
to certain places (e.g. schools) and to certain
groups of people (e.g. children). The Order
remains in place for a minimum of 5 years. In
Humberside 16 Sexual Offences Prevention
Orders were applied for by the police during
this review period. 11 have been granted and
5 are currently being processed. None have
been refused. The orders were made both at
point of sentence for a sexual offence
following close liaison with police Risk
Management Officers, police officer in the
case and probation and as stand alone
applications when concern has arisen about an
offenders behaviour. 1 offender has been
taken to court and convicted of breaching the
Order and is currently serving a custodial
sentence for that breach.

The MAPPA process cannot guarantee absolute

protection. Working with the type of offenders
we do, even the most diligent efforts of
practitioners cannot always prevent re-
offending and serious harm.

However we feel MAPPA continues to

represent a significant strengthening of public
protection in Humberside. We believe the
statistics confirm that the development of our
work under MAPPA in the assessment and
management of risk is reducing re-offending
and thereby significantly preventing further
serious harm by the most serious offenders in
our community.

21
 Humberside Area
MAPPA ANNUAL REPORT STATISTICAL INFORMATION
For the reporting period 1st APRIL 2004 - 31st MARCH 2005
Number of Offenders
1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)

i) The number of Registered Sex Offenders living in our Area on 31st March 2005. 645
This is information principally held by the police and is a snapshot of RSOs on 31/03/05. It does NOT include RSOs in prison.

ia) The number of Registered Sex Offenders in our Area per 100'000 head of population. 73

ii) The number of sex offenders having a registration requirement who were either cautioned
or convicted for breaches of the requirement, between 1st April 2004 and 31st March 2005 20

iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied for (b) interim SOPOs a) 16
granted and (c) full SOPOs imposed by the courts in our Area between b) 0
1st May 2004 and 31st March 2005 c) 11

iv) The number of (a) Notification Orders applied for (b) interim Notification Orders granted a) 0
and (c) full Notification Orders imposed by the courts in our Area between b) 0
1st May 2004 & 31st March 2005 c) 0

v) The number of Foreign Travel Orders (a) applied for and (b) imposed by the courts a) 0
in our Area between 1st May 2004 & 31st March 2005 b) 0

2. Category 2 MAPPA offenders: Violent and Other Sexual offenders (V & O)

vi) The number of violent and other sexual offenders (as defined by Section 327 (3), (4) and (5) of
the Criminal Justice Act (2003)) living in our Area between 1st April 2004 and 31st March 2005 344
This figure includes only those Category 2 offenders who are living in our Area during the reporting period.
They do NOT include those Category 2 offenders who are still in custody.

3. Category 3 MAPPA offenders: Other Offenders (OthO)

vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of the Criminal
Justice Act (2003)) living in our Area between 1st April 2004 and 31st March 2005. 35
This figure does not include any offenders who are included in either the Category 1 or 2 (i.e. (i) and (vi) above) unless
they have left those categories and are still considered by the Responsible Authority to pose a risk of serious harm

4. Offenders managed though Level 3 (MAPPP) & Level 2 (local inter-agency

management)
Level 3 Level 2
(viii) Number of offenders in each of the three Categories (i.e. (1)- RSO, (2)- V&O RSO 10 58
and (3)- OthO above) who have been managed through the MAPPP (level 3) V&O 12 70
and through Local Risk Management Meetings (level 2) in our Area OthO 5 30
between 1st April 2004 and 31st March 2005.
The level 2 figure does NOT include those offenders who have not been managed at level 3 at any point in the counting period.

(ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1st April 2004 and 31st March 2005 how many, whilst
managed at that level:
Level 3 Level 2
(a) Were returned to custody for a breach of licence? a) 2 17
(b) Were returned to custody for a breach of a restraining order or sexual offences prevention order? b) 0 1
(c) Were charged with a serious sexual or violent offence? c) 0 1
These figures indicate the level at which the offender was managed at the time of their breach/further offence (e.g. if an offender was initially managed at Level 3 but
goes on to commit a serious further offence after he has been moved to Level 2, they are recorded in the 'Level 2' column for question (c))

22
 Strategic Management Board Members
Angela Montgomery Nigel Richardson
Solicitor & Secretary to Humberside Probation Board Director of Social Services
Senior Manager for Risk Pittwood House
Ashby Road
National Probation Service - Humberside SCUNTHORPE
21 Flemingate North Lincolnshire DN16 1AB
BEVERLEY 01724 296002
East Riding of Yorkshire HU17 0NP nigel.richardson@northlincs.gov.uk
01482 867271
Angela.Montgomery@humberside.probation.gsx.gov.uk Jon Plant
Acting Head of Service for Children and Families
Brunswick House
John Godley Strand Close
MAPPA Co-Ordinator Beverley Road
Crime Management Policy Unit HULL HU2 9DB
Humberside Police Headquarters 01482 616004
jon.plant@hullcc.gov.uk
Priory Road Police Station
Kingston upon Hull HU5 5SF
Julie Ogley
01482 220248 Executive Director of Community Care
john.godley@humberside.pnn.police.uk N E Lincs Council
Municipal Buildings
Town Hall Square
John Crosse GRIMSBY DN31 1HU
Assistant Chief Constable 01472 325456
Humberside Police Headquarters julie.ogley@nelincs.gov.uk
Priory Road Police Station
Kingston upon Hull HU5 5SF Allison Watson
0845 60 60 222 Head of Resettlement
John.Crosse@humberside.pnn.police.uk HMP Hull Hedon Road
HULL HU9 5LS
01482 282418
Det Chief Superintendent David Hunter Allison.Watson@hmps.gsi.gov.uk
Humberside Police Headquarters
Priory Road Police Station Neil Cowans
Kingston upon Hull HU5 5SF Head of Security
0845 60 60 222 HMP Full Sutton
Full Sutton
david.hunter@humberside.pnn.police.uk YORK YO41 1PS
01759 475003
Jon Mager neil.cowans@hmps.gsi.gov.uk
Head of Lifelong Learning
ERYC Mr Said Ali
Operational Manager
County Hall Humber Centre for Forensic Psychiatry
BEVERLEY Beverley Road
East Riding of Yorkshire Willerby HU10 6XB
01482 392000 01482 336200
jon.mager@eastriding.gov.uk Said.Ali@humber.nhs.uk

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Agency Contact Points

Humberside Police

Police Headquarters 0845 60 60 222

Priory Road
Kingston–upon-Hull
HU5 5SF

National Probation Service – Humberside

Head Office 01482 867271

21 Flemingate
Beverley
East Yorkshire
HU17 0NP

HM Prison Service

Yorkshire and Humberside Area Office 01937 544500

Marston House
Audby Lane
Wetherby
LS22 7SD

MAPPA Co-ordinator

c/o Crime Management Policy Unit 01482 220248

Humberside Police Headquarters
Priory Road
Kingston-upon-Hull
HU5 5SF

Victim Support Schemes

Hull 01482 587666

Haltemprice & Holderness 01482 307284

East Yorkshire 01262 401689

Goole and Pocklington 01405 767070

Grimsby and Cleethorpes 01472 250251

Scunthorpe and North East Lincolnshire 01724 871324

National Victim Support Line 0845 30 30 900

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