MAPPA Annual Report 2004

1. Contents
Introduction by Chief Officers 3

Key Achievements 4
Public Protection 4
Systems Operating 4
Cases Managed 4

How the MAPPA operates locally 4

What is MAPPA? 4
What does MAPPA do? 5
What doesn’t MAPPA do? 5
Which organisations are involved? 5
How does MAPPA work? 5
Case Example Mr A 5
Case Example Mr B 6
Case Example Mr C 6

Strategic Management Board 7

Looking Ahead for 2004 and onwards 7

Victims 7
The Critical Few 8
Understanding Risk 8
The Sexual Offences Act 2003 8
Violent Offenders 8
Duty to Co-operate 8

Statistics 9
Commentary on local statistics 10
Registered Sex Offenders 10
Violent and Other Sex Offenders 10
Other Offenders 10
Court Orders 10
MAPPP Offenders 10

Contact Points, responsible Authority & other relevant Agencies 11

2. Introduction by Chief Officers

Sexual and violent offences are appalling crimes that

deeply affect the lives of victims and their families and
inspire fear in local communities. Their impact can be
profound and long-lasting, leaving victims feeling
unsafe even in their own homes. Work undertaken
over the last year by the MAPPP signatory agencies
reflects the high priority which the Government places
on tackling sexual and violent crimes

Although the existing Multi-Agency Public Protection

Arrangements (replacing the previous Inter-Agency
Public Protection Arrangements) were only rolled out in
August 2002, over the last year significant effort has
been invested towards improving the arrangements
through building on experience and responding to new
national initiatives and legislation. Whilst no system
can guarantee absolute safety, this report clearly
illustrates that the citizens of Wiltshire are well served
by the public protection arrangements operating in
Wiltshire.

Diana Fulbrook Dame Elizabeth Neville

Chief Probation Officer Chief Constable
Wiltshire Probation Area Wiltshire Constabulary
National Probation Service
 _____________________________________________________________________________________________

3. Key Achievements
Public Protection
The MAPPA system in Wiltshire has
successfully managed cases
throughout 2003/4. There have
been no offenders managed through
the MAPPA system and identified as
very high risk of harm on the Home
Office criteria who have been
convicted of further serious offences.
A number of offenders of all
categories have been returned to
court for re-sentence or recalled to
prison as a result of information
gained, shared and analysed
through MAPPA contacts and
meetings.
Systems Operating
Work between the Police and the
Probation services over the last year
has been at the core of the success
of MAPPA with close involvement in
the field between both probation
officers and specialist police officers
having responsibility for violent and
sexual offenders. Wiltshire Police
Head Quarters has provided
excellent support in maintaining a
register of violent and sexual
offenders with links to this area.
This is run by two registrars who log,
analyse and share information with
the other agencies working with
offenders
Meetings regarding offenders are
held regularly throughout the
County, utilising specialist staff who
work within a true multi-agency
public protection system.
Cases Managed
A wide range of cases have been
included into the system, including
offenders released from prison, on
discharge from hospital, or those
who have moved into the area from
other Counties and Countries. The
agencies involved include a wide
range of statutory and voluntary
bodies. The voluntary agencies
have been specialists in drug and
alcohol counselling and
accommodation.
Case examples are described in a
later section.

_____________________________________________________________________________________________

4. How the MAPPA Operates Locally

What is MAPPA? These run alongside the established
Within Wiltshire these have been arrangements for child protection
Each of the 42 Police and Probation running since the 1997 Sex and protection of vulnerable adults.
areas now has Multi –Agency Public Offenders Act indicated closer
Protection Arrangements (MAPPA). working was required and the The emphasis in MAPPA is to
These are Multi-Agency Criminal Justice and Court Services assess and manage the offender to
arrangements which enable shared Act 2000 set out how this should reduce the risk they might present to
locally based assessment, happen. The arrangements the community at large as well as,
conferencing and management of operating now since April 2004 are on some occasions, to known
offenders who have committed based on the developments required individuals or staff working with
dangerous, violent or sexual by the Criminal justice Act 2003 and them.
offences. the Sexual Offences Act 2003.
What does MAPPA do?
• Identifies violent and sexual
offenders in the area
• Shares information with agencies
dealing with the offenders
• Assesses the risks an individual
may present
• When needed, brings agencies
together to manage risk.
What doesn’t MAPPA do?
• MAPPA meetings do not assume
responsibility for a case
• MAPPA does take responsibility
from an agency
• MAPPA does not require
agencies to work beyond their
existing statutory duties.
Which Organisations are
Involved?
The Police, Probation and Prison
Services are the core “Responsible
Authority” for the MAPPA. On
practical case management they
work with other agencies to share
information and assessments,
decide on the risk individuals pose,
meet to share plans and review
resulting actions.
• Police ) Constituting the
“Responsible
• Probation ) Authority”
• HMP (April 2004 onwards)
• Housing
• Health services (managerial,
clinical and commissioning)
• Social Services
• Youth offending teams
How does MAPPA Work?
The day to day management of the
MAPPA system is the responsibility
of the MAPPA Co-ordinator, a new
post created during this last financial
year and which was filled in January
2004. The Co-ordinator, who is
based at the Police Headquarters in
Devizes, oversees the arrangements
and chairs multi-agency meetings.
Offenders are identified by the
agencies working in the system
through their offending whether
dangerous, violent or sexual as well
as through their behaviour.
Information is quickly gathered from
agencies and a decision is made as
to how to proceed.
Many less serious cases can be
managed by single agencies, while
others will involve meetings of
practitioners or of senior staff as
appropriate. Over the last year the
involvement of more agencies has
been set in legislation with a “duty to
co-operate” obligation. This also
allows statutory and some voluntary
institutions, not normally associated
with having a public protection
function, to take an active role in the
collective task of problem solving
and using their resources to protect
communities.
In cases where multi-agency work is
considered to be the most
appropriate way of managing an
offender safely, decisions are made
on the appropriateness of
accommodation and disclosure of
previous offences to family friends or
neighbours. Conditions in prison
licences are often imposed which if
breached, may result in the
offenders recall. Psychiatric
treatment considerations could be
shared with other agencies to ensure
offenders are dealt with
appropriately.
Meetings are minuted and decisions
recorded. Actions planned are
reviewed in subsequent meetings.
The whole process is subject to audit
and review to identify good practice
as well as areas for improvement or
development.
Case Examples:
1. Mr A aged 45
Background:
Convictions for theft, assault and
sexual assault on a teenage boy.
The sexual assault was unusual
as it appeared to be a physical
attack rather than a sexually
motivated act. This man was
referred into the MAPPA process
by the Probation Service which
was to supervise him on release
from prison. He had a record of
alcohol abuse which disinhibited
him and previous associates
were also heavy drinkers. He
was prone to violent outbursts.
Furthermore, he was thought to
be the subject of a personality
disorder.
Risk Assessment:
This case was managed by
Police, Probation, Community
Forensic (Psychiatric) Team, and
Housing Dept. He was initially
assessed as posing a Very High
Risk of Harm to the Public.
On initial release this man re-
offended by being drunk and
disorderly and the Probation
Service arranged his recall via
the Home Office. This action was
carried out by the police.
Risk Management Plan
• Close Supervision by
Probation Service - On
release, a major focus was his
alcohol abuse and the sexual
assault.
Alcohol advice agencies saw
him as a condition of his
supervision.
 Re-housing - It was
determined that he would be
more of a risk to the
community if he became
homeless and unable to
receive regular contact that
would be necessary. He was
re-housed.
Overt monitoring of his
situation - Joint visits at his
home was undertaken by the
Police and Probation Services
to check on his
circumstances, assess his
attitudes, behaviour and
intentions.
Public Protection Outcomes:
Mr A ceased drinking and no
longer associated with his
former friends.
The community was
protected by stabilising a
man enabling him to find
motivation to change his
behaviour.
The agencies were able to
share assessments of his
actual offences so that they
were able to establish that
he was not a sexual risk to
children.
Overall risk was reduced to
medium, which, from very
high, is substantial.
It is believed he has not
offended since re-release a
year ago.
He has finished his statutory
contact with the Probation
Service however; he will
remain subject to sex
offender registration and
hence monitoring by the
Police for another 5 years.
2. Mr B aged 40
Background
Convictions for assault on his ex-
landlady whist drunk. He has
previous conviction for violent
offences. He has links with the
psychiatric services who
prescribe him medication and
with alcohol treatment agencies.
When he appeared in court he
was made subject of a protect the public.
Community Rehabilitation Order
for three years operated by the
Probation Service.
Risk Assessment
Initially Mr B was assessed as
high risk while he was in an
unstable lodgings situation and
was drinking. Inter-agency liaison
involved Police, Probation,
Housing, Environ-mental Health
and Psychiatric Services.
Risk Management Plan
Probation supervision through
frequent meetings
Enforcing his attendance for
alcohol counselling
Anger management work with
the probation officer
Medication by the psychiatric
services
Home visits by the police to
check on risks to those with
whom he lived with.
Practical assistance from the
council to clean up his
lodgings was unusually
arranged, to stabilise him and
his wider domestic
arrangements.
Public Protection Outcomes
Re-housing away from the
victim
Referral of the victim for
support.
Reduction of alcohol use.
Reduction of general risk to
the public.
This case continues without a neat
conclusion but illustrates agencies
working together to support an
individual in the community who
would otherwise be more of a risk.
Those, with whom he lives are
identified and involved in the
process, so that as much as possible
within legislation and resources
available, can be accomplished to
3. Mr C aged 50
Background
Convicted sex offender. Assault
on his infant son. He was made
the subject of a 2 year
Community Rehabilitation Order
with a condition to attend a Sex
Offender Treatment Programme.
He has no other convictions. His
wife and other children have
ceased to have any contact with
him.
Risk Assessment
This case was discussed at an
assessment meeting with Police
and Probation officers. A full
Local Level Risk Management
Meeting with other agencies was
not needed as Social services
had been involved in the child
protection assessments at the
time of Mr C’s arrest. He was
identified as High Risk to
Children.
Risk Management Plan
• Supervision by the Probation
Service - Sex Offender
Treatment Programme
• Accommodation to be
checked for suitability - Mr C
found lodgings which were
checked out by Social
Services.
Information sharing to other
relevant agencies - He
disclosed some high risk
behaviour which was shared
with a neighbouring county as
he visited the seaside.
Prohibition on particular
behaviour - He was instructed
not to visit the seaside.
 Overt monitoring of his
situation – Police and
Probation will continue to visit
him at home.
Public Protection Outcomes
Mr C’s contacts with another
sex offender identified and
specifically prohibited
_____________________________________________________________________________________________
5. Strategic Management Board
Structure
The Board meet on a quarterly basis
and is chaired by a member of one
of the Responsible Authorities. The
system for the management of the
MAPPA has not changed
significantly over the last year
although the coming year will bring
the biggest change since inception.
This will be the appointment of two
“Lay Advisers” who will form part of
the Strategic Management Board
(SMB) membership. It is expected
that they will take up their roles in
the autumn.
Work
The work of the SMB is to consider
the strategic issues, develop and
_____________________________________________________________________________________________
6. Looking Ahead for 2004 and Onwards
Victims
In addition to the work to tackle
offenders, the Government has
rightly placed much emphasis upon
meeting the needs of victims of
Identification of a potential
individual victim enabled her
to be safeguarded.
Mr C has now moved within
the county; however his sex
offender record goes with him.
Supervision by both Police
and Probation officers will
continue to actively monitor
agree local policies to enable the
work to be undertaken and evaluate
performance. The whole MAPPA
process needs to work within the
National Guidelines and to learn
from national developments and
initiatives. The Board and its sub
division, the Practice and
Procedures Group complete this
work. Should any offender who is
subject to the MAPPA process be
charged with any serious sexual or
violent offence a “Serious Offence
Case Review” is undertaken by the
Board and lessons communicated to
local agencies and professionals.
Practical work over the last year has
included the revision of the Policy
and Procedures documents to
comply with the changes in
crime. This and the prevention of
further people becoming victims lie
behind the MAPPA system.
The involvement of Victim Liaison
Officers in appropriate cases and the
his behaviour, situation and
attitudes.
His case is to be reviewed again
under the MAPPA system. The
risks he poses will be reassessed
and if needed, a multi agency
meeting would look at further
actions to protect the public.
legislation in the Criminal Justice Act
2003 and Sexual Offences Act 2003.
The Board instituted an audit of the
MAPPA minutes system which
resulted in a reformatting of the
minutes to more clearly display risk
assessments, actions planned and
their outcomes.
In line with the findings of the joint
inspectors report “Safeguarding
Children” more formal links have
been established with the Area Child
Protection Committee through
agency representatives sitting on
both MAPPA and ACPC. The same
link has been made with the local
Vulnerable Person’s Committee.
involvement of the police Domestic
Violence Units, in interagency
discussion meetings and risk
management planning will continue
and develop. The attention paid to
the needs of specific identified
victims and potential victims will also
continue.
The Domestic Violence Crime and
Victims Bill will build on the existing
Victims’ Charter and set out specific
responsibilities that each criminal
justice agency and Victim Support
must provide to victims. It is
expected that this will have an
impact on the work of the MAPPA.
The Critical Few
The focus on work with sexual,
violent and dangerous offenders will
continue with an emphasis on
identifying what has been termed the
“Critical Few” who need particular
attention, care in handling and who
demand particular resources, or who
may cause great concern to the
public. These offenders may
present a higher risk of harm and are
more unstable whilst being known to
many agencies. Particular attention
is given to identifying these
individuals and to target resources to
protect the public through their
effective management. Many
offenders qualify for inclusion into
the MAPPA system, but do not
necessarily present a high risk of
serious harm. To identify them and
only allocate resources appropriate
to them, allows a more
comprehensive focus on the ‘critical
few’.
Understanding Risk
The development of risk assessment
and management has progressed in
recent years. There are now exists,
tried and tested risk assessment
tools which when used by skilled
trained staff, enable assessments to
be made, which research has shown
to be sound. Police, probation,
youth offending team staff and
prison staff all now use such tools.
A challenge for other agencies
brought into the system is to
understand the implications of the
outcomes of these assessments for
their own work with offenders. All
agencies need to look at the
particular circumstances and
personal details behind the terms,
dangerous or violent offender, let
alone sex offender, to make
appropriate judgements as to which
are the “critical few” and which are
the many who they can work with
safely and effectively within normal
procedures.
The Sexual Offences Act 2003
This legislation affects the operation
of the MAPPA system in a number of
ways.
Existing and new sex offenders are
liable to be monitored by the police
and have to report to them on their
activities more so than in the past.
This will enable a quicker response
to an offender putting themselves
into a higher risk situation, which
could well trigger inter-agency action
by the MAPPA, or Child Protection
Procedures.
A range of new civil preventative
orders will be available from May 1st
2004. These will replace the existing
Sex Offender Orders and allow more
appropriate targeting of offenders,
who can be included in the MAPPA
process through offences committed
abroad, prohibited from travelling
abroad to commit offences or
brought into the MAPPA system
before committing offences when
suspected of “grooming” children for
later sexual abuse.
More rigorous notification
conditions for the sex offenders
New civil preventative orders
available for the monitoring of sex
offenders
Violent Offenders
The MAPPA will continue to work
with the Public Protection Unit of the
National Probation Service and
develop the support given to
accommodation providers for extra
staff to help safely re-integrate
offenders who can be otherwise
difficult to place. Special conditions
can be imposed on some of these
offenders including electronic
monitoring of curfew for up to 5
years after release. A long term
focus of work in the MAPPA is the
small numbers of offenders who
have to be released at the end of
determinate sentences while they
are recognised as still presenting a
risk to the community.
Duty to Co-operate:
The Criminal Justice Act 2003
introduces a ‘Duty to Co-operate’
with the MAPPA, which requires the
responsible authority to collaborate
with each of the following bodies:
• Social Service Departments (or
equivalents)
• Primary Care Trusts, other NHS
Trusts and Strategic Health
Authorities
• Job Centres
• Youth Offending Teams
• Registered Social Landlords,
which accommodate MAPPA
offenders
• Local Housing Authorities
• Local Education Authorities and
• Electronic Monitoring Providers
This will set on a statutory footing
the good practice evidenced in the
close inter-agency working in
Wiltshire and Swindon over the last
few years
7. Statistics

Wiltshire Annual Report Statistics for 2003/2004

with year on year comparisons for 2001/02 and 2002/03

Registered Sex Offenders (RSO) MAPPP Offenders within MAPPA

01/02 02/03 Diff % 03/04 Diff % 02/03 03/04 Diff %

Number of RSO 185 255 70 37.8% 234 -21 -8.2% Number of RSOs 36 9 -27 -75.0%
RSO per 100k 30 42 12 40.0% 38 -4 -9.5% Number of V&OS 21 6 -15 -71.4%
RSOs cautioned 5 13 8 160.0% 12 -1 -7.7% Number of OthO 28 5 -23 -82.1%

Violent and other Sex Offenders (V&OS) Outcome measures of MAPPP activity

01/02 02/03 Diff % 03/04 Diff % 02/03 03/04 Diff %

Number of V&OS 200 214 14 7.00% 129 -85 39.7% Return to Cust.
Breach of licence 9 1 -8 -88.9%

Other Offenders (OthO) Returned to Cust.

Breach of SOO 1 1 0 0.0%
01/02 02/03 Diff % 03/04 Diff %
Number of OthO 5 28 23 460.0% 78 50 178.6% Charged with further
serious offence 1 0 -1 -100.0%

Statistics relating to Court Orders MAPPA calculations for 2003/2004

01/02 02/03 Diff % 03/04 Diff % Category Result

SOO applied for 1 5 4 400.0% 0 -5 -100.0%
SOO granted 1 5 4 400.0% 0 -5 -100.0% Total MAPPA offender population in this Area 441
ISOO applied for 0 0 0 0 0 0 0 Total MAPPP offender population in this Area 20
ISOO granted 0 0 0 0 0 0 0 % of MAPPA that are MAPPP Offenders 4.50%
RO granted 0 3 3 0 2 -1 -33.33%
For the purposes of calculating the number of Registered
Sex Offenders per 100,000 head of population, the PPU
SOO - Sex Offender Order, ISOO - Interim Sex Offender Order, have used the results from the 2001 census. The head-
RO - Restraining Order count for Wiltshire was reported as 613487.

MAPPP Population in 2004

Registered Sex Offenders

270

220 30%

170
45% RSO
OthO
120 V&So

70

20
25%
185 255 234

2001/2002 2002/2003 2003/2004

 _____________________________________________________________________________________________
Statistics Contd.
Commentary on the local
Statistics
The way in which cases have been
counted within Wiltshire has been
brought into line with the national
collation of statistics. This has
resulted in an apparent reduction in
some categories and an increase in
others.
Registered Sex Offenders
The number of Registered Sex
Offenders within Wiltshire is
attributable to the removal of those
with a Wiltshire address but still
serving prisoners, who were
previously counted in this figure.
They should have not been counted
in the last years’ statistics. The
accuracy of this figure is assured
through the comparison of the
number of Registered Sex Offenders
per 100k in comparable areas.
The overall number of Category 1
Registered Sex Offenders is
expected to continue to rise for the
foreseeable future as both the 1997
Sex Offenders Act and now the 2003
Sexual Offences Acts created both
fixed and indefinite registrations.
The earliest and shortest
registrations are only now running
out while the larger number of longer
term and smaller number of
indefinite registrations will continue
to build.
Violent and Other Sex Offenders
With regard to the Category 2
Violent Offenders and Other Sexual
Offenders a similar reduction in
numbers is also attributable to the
removal of serving prisoners from
the Wiltshire statistics.
Other Offenders
The number of Category 3 Other
Offenders continues to increase.
This is a proportionately large
increase as it includes all those
referred into the MAPPA system
through other agencies, as well as
those who have ended statutory
supervision after release from prison
or ended the period of sex offender
registration, but are still considered a
substantial risk. As the MAPPA
system has become better known to
other agencies working in the
community with offenders referrals
are made for advice. These can
result in simple and effective plans
and links between agencies to
protect the public.
Court Orders
The number of court orders held in
Wiltshire has increased to 6 with an
offender subject to one moving into
the area while no new ones were
deemed necessary in the report
period, however application has now
been made for new orders which will
appear in next years statistics. The
low need for new orders is in good
part a positive reflection on the
compliance achieved by the Police
Officers who visit and monitor the
sex offenders in the community.
MAPPP Offenders
A substantial change has occurred in
Wiltshire, in the organisation of the
highest level interagency cases, with
the adoption of the most recent
national guidance requiring 3 levels
of MAPPA cases. Previous to that,
although the higher level were
treated differentially according to the
risks which they posed, the same
meetings structure was used which
had the effect of combining the level
2 and 3 figures for purpose of
statistics.
8. Contact Point within the responsible Authority and Other
Relevant Agencies

Wiltshire Probation Area Address Phone

Assistant Chief Officer (Specialist Services) Rothermere 01225 781950

Bythesea Road
TROWBRIDGE
Wiltshire
BA14 8JQ

Community Safety and Criminal Justice Department Address Phone

Wiltshire Constabulary London Roadm 01380 722341

DEVIZES
Wiltshire
SN10 2DN

Victim Support Address Phone

Area Manager Victim Support Wiltshire 01380 729476

31a The Brittox
DEVIZES
Wiltshire
SN10 1AJ