MAAPA Annual Report 2003

Wiltshire
Chief Officer: Diana Fulbrook
1. Foreword

By Paul Goggins, Parliamentary Under-Secretary for

Community and Custodial provision in the Home Office

As the recently appointed Minister with responsibility for

the MAPPA, I am pleased to introduce this, the second,
annual MAPPA report. It is clear that in the last year
(2002/3) the multi-agency public protection
arrangements (the MAPPA) continued to play an
important role in what remains one of this government’s
highest priorities – the protection of the public from
dangerous offenders.

As someone with many years experience of working in

the field of child protection, I am particularly impressed
by the important contribution the MAPPA are making to
strengthen collaboration between agencies at a local
level where the focus is on the dangerous offender.
These improvements must, however, impact on the
protection of children. As the tragic death of Victoria
Climbie showed, an effective multi-agency partnership
is crucial and the MAPPA are an important element.

To ensure greater consistency in the MAPPA across

the 42 Areas of England and Wales, and to prepare for
the implementation of measures contained in the
Criminal Justice Bill, we published the MAPPA
Guidance in April. Building on good practice, that
Guidance clarified the structure of the operational
arrangements as well as the importance of formal
review and monitoring – of which this annual report is a
vital part. The Criminal Justice Bill will strengthen the
MAPPA in two ways. First, it will make the involvement
of other agencies part of the statutory framework.
Second, it will introduce the involvement of lay people –
those unconnected with day-to day operation of the
MAPPA – in reviewing and monitoring the MAPPA.
Annual reports and this new lay involvement show the
Government’s commitment to explaining how the often
sensitive and complex work of public protection is
undertaken.

The Government is also strengthening the protection of

the public with other measures in the Criminal Justice
Bill. They include new sentences for dangerous
offenders to prevent their release if they continue to be
dangerous. Additionally, the Sexual Offences Bill will
tighten up sex offender registration, introduce a new
offence of ‘grooming’, and enable sex offender orders
to be imposed on violent offenders who pose a risk of
causing serious sexual harm – thereby extending sex
offender registration to them.

I commend this report to you and congratulate all the

agencies and individuals who have contributed to the
achievement of the MAPPA locally in your local Area.

Paul Goggins
2. The National Picture
This section of the report draws and probation services and become especially with the few offenders
attention to wider context of the part of the MAPPA ‘Responsible who pose a very high risk of serious
operation and development of the Authority’. harm to the public, it is not
Multi-Agency Public Protection practicable for the general public to
Arrangements (the MAPPA). Supporting and co-ordinating the be involved. Lay advisers will,
development of the MAPPA however, ensure an appropriate and
The most important work undertaken throughout the 42 Areas of England a practical level of community
within the MAPPA is done locally, and Wales, is the National Probation involvement.
led by the police and probation – Directorate’s Public Protection Unit
who act jointly as the ‘Responsible (PPU). This Unit acts as a central MAPPA Offenders
Authority’ in your Area – and in each point for advice and, increasingly,
of the 42 Areas of England and involvement in the management of This year the annual report provides
Wales. The experience and good difficult cases. These include, for a more detailed breakdown of the
practice upon which this work is example, UK citizens who have number of sexual and violent
based began in the 1990s – most committed serious offences abroad offenders who are covered by the
significantly as a result of the closer and return to this country without MAPPA in your Area. As last year,
working relationship required by the anywhere to live. The Unit is also the figures include the number of
Sex Offender Act (1997). The able to provide financial support registered sex offenders. Because
Criminal Justice and Courts Services when the risk management plans sex offender registration is for a
Act (2000) formalised that make exceptional demands upon minimum of 5 years (and generally
relationship and built on the existing local resources. for much longer) the figures are
experience by requiring the police cumulative. This is why they have
and probation services to establish Involving the public increased – by 16 per cent in
arrangements (the MAPPA) for England and Wales. Only a very
assessing and managing the risks MAPPA developments in the next 18 small proportion (about six per cent
posed by sexual and violent months will also include the throughout England and Wales) are
offenders. The Act also required the appointment by the Home Secretary considered to pose such a high risk
Responsible Authority to publish an of two ‘lay advisers’ to each Area. or management difficulty that they
annual report on the operation of The eight Areas of England and are referred to the highest level of
those arrangements. This report, Wales which have been piloting the MAPPA – the Multi-Agency
covering April 2002 to March 2003, these arrangements since January Public Protection Panels (the
is the second annual report. (Cumbria, Greater Manchester, MAPPP).
Durham, South Wales, Dorset,
The importance of partnership Hampshire, Surrey and West Figures alone do not, of course, tell
Midlands) report that they add real the whole story. The anonymised
Key to the development of the value. Lay advisers will contribute to case studies illustrate the practical
MAPPA in the past year has been the review and monitoring of the work of the MAPPA, and
the closer involvement of other MAPPA which is undertaken by each demonstrate the preventive action
agencies, such as housing, health Area’s Strategic Management Board which can be taken. Prior to the
and social services, working – the work of which you can read MAPPA, action of this kind was
alongside police and probation. The more in this report. mainly taken by one agency alone,
truly multi-agency nature of the with the effect that on occasion
MAPPA and the collaboration which The purpose of appointing ‘lay offenders’ behaviour which might
underpins it is to be strengthened advisers’ is to ensure that have triggered preventative action
further by the Criminal Justice Bill. communities understand more of went unnoticed. The multi-agency
The Bill will place a ‘duty to co- what is done to protect them and approach of the MAPPA helps
operate’ on a wide range of that those involved professionally ensure that if an offender does
organisations including local health with the MAPPA are aware of the breach the condition of the licence
authorities and trusts; housing views of the community. The lay under which they were released from
authorities and registered social advisers will not ‘represent’ the prison or a court order prohibiting
landlords; social services community in the way, for example, certain activities, then action to
departments; Jobcentres; Youth that local councillors do, nor will they enforce the condition or order and
Offending Teams; and local be involved in operational decision- protect the public can be taken more
education authorities. In addition, the making. And, given the sensitivity of swiftly.
Prison Service will join the police much of what the MAPPA does.
If you are interested in reading the Service’s website with all of them being available once
reports of other Areas, they will be www.probation.homeoffice.gov.uk the last Area has published its
published on the National Probation (under the public protection section) annual report in September.

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3. What is MAPPA?
MAPPA stands for Multi-Agency offenders environment and where they are most likely to
Public Protection Arrangements. It circumstances in a way which will offend; the likelihood of being
is the means by which agencies reduce the likelihood of further caught and the consequences
work together to protect the public offences; and those which are • Other programmes including
from offenders who pose a risk of designed to control the offender. those designed to tackle
harm to the public. domestic violence, and those
Examples of measures which treat whose offences are drug related.
Local arrangements in Wiltshire or contribute to the treatment of • Psychiatric treatment
began in response to the Sex offenders include: • Depending on the assessment,
Offenders Act 1997 when the police probation supervision designed
and probation services set up joint • Use of a new comprehensive to tackle a whole range of risk
arrangements for the assessment offender assessment tool and offending behaviour factors
and management of registered sex (OASys) which identifies both such as: sensitising the offender
offenders and other offenders and the risk that an individual poses, to the circumstances when they
persons assessed as potentially the likelihood of further are most likely to commit
posing significant harm to the public. conviction and the factors which offences (time, place, with whom
In recognition that better public have contributed to their use of alcohol, emotional state
protection can only be achieved offending behaviour etc); increasing pro-social
through collaborative arrangements, • A thinking skills programme attitudes at the expense of anti-
the Police and Probation Service designed to address offending social attitudes; controlling the
secured the commitment and active related factors such as: an use of alcohol; improving the
involvement of all relevant statutory inability to appreciate the impact proportion of non offending
agencies and a number of voluntary their behaviour has on victims; friends and acquaintances and:
organisations whose responsibilities poor problem solving skills; an increasing willingness to accept
can contribute substantially towards inability to relate consequences responsibility for offending
effective public protection. to actions; acting without behaviour and the impact on
thinking victims, their families and
Disclosure of information either • For violent offenders a themselves.
between agencies or indeed programme designed to:
between agencies and individuals increase skills in dealing with Measures which alter the offender’s
and the public inevitably raises social situations where violence environment and circumstances in a
questions of human rights and civil is most commonly associated, way which will reduce the likelihood
liberties. The principle at work here, such as handling an argument; of further offences include:
however, is one of public protection teach anger control techniques
superseding the rights of individuals. and; improve the likelihood of • Ensuing appropriate
Decisions whether and how to offenders making non offending accommodation
disclose information are balanced choices in potentially violent • Improving literacy
according to these two imperatives situations • Providing help with securing and
• A programme which aims to maintaining work
Measures to protect the public fall prevent further offences • Improving budgeting skills
broadly into three approaches: those committed by sex offenders • Improving key relationships
which are designed to directly act on through sensitising them to: the
or treat the offender, so that they will impact which their offending has
be less inclined or able to commit on victims; the circumstances
offences; those which alter the
Measures designed to control the • Orders which prohibit an are enforced via electronic
offender include: offender from: travelling to tagging and licence conditions
certain areas; entering certain (in respect of offenders on
• Varying degrees of police premises, such as public release from custody) which if
surveillance houses; being out of their home breached can result in the
• Enforced requirements for an at certain times (curfew orders); offender being immediately
offender to keep to strict approaching certain individuals. recalled to prison.
reporting schedules On occasion such restrictions

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4. Which Organisations are Involved and What do they

Contribute?
It will be seen from the above range enforce the legislation and to prevent services to vulnerable people
of activities that keeping the crime throughout the Force area. whether they be children in need,
community safe from the potential older people, disabled people or
for some individuals to commit Wiltshire Probation Area those with mental health needs.
offences is a complex matter. To be
effective it therefore requires the Wiltshire Probation Area is one of 42 All services promote safety and
involvement and co-operation of a which make up the National welfare, which balances the needs
range of statutory and on occassions Probation Service. It is a law and wishes of individuals with the
voluntary organisations. enforcement agency delivering and safety of the wider community.
enforcing community punishments,
Wiltshire Constabulary supervising and working with Swindon now has a Vulnerable
offenders within the terms set by the Persons Committee (VPC), which
The Constabulary has worked with Court or Parole Board in ways that has replaced the ACPC (Area Child
partner agencies on a formal basis help offenders to reduce their Protection Committee) and involves
for a number of years with the offending and better protect the all agencies working together to
primary objective of “Keeping public and working with victims. protect children and vulnerable
Wiltshire Safe”. The responsibility of adults from significant harm and
the Constabulary includes working In recognition that better protection abuse and to prevent such
with partner agencies and voluntary can only be achieved through incidences of abuse occurring. All
groups to produce sound working collaborative arrangements the relevant member agencies have
practices which aim to minimise the Probation Service is committed to signed up to supporting the aims and
risk posed to the public from Sex working closely with colleagues from objectives of the VPC and have
and Dangerous Offenders. In other criminal justice agencies and given the commitment to working
conjunction with other departments statutory agencies and a wide range together to tackle the incidence of
around the Force area the of independent and voluntary sector domestic violence and the
Constabulary conducts and partners. management of risk and the
manages the registration of protection of the public.
offenders, risk assessments, and the Swindon Social Services
administrative processes which Wiltshire County Council -
surround the information sharing Swindon Social Services has a wide Department for Children, Education
procedures between organisations. range of statutory responsibilities, & Libraries
In the course of this work we explore including the provision of services,
opportunities to link in with other which sustains and contributes to the The Department for Children,
procedures which deal in areas such quality of life for individuals and the Education and Libraries includes
as Child Protection and Vulnerability communities across the Borough. children's social services and
to minimise the risk of harm. Finally, services to children with special
the overriding responsibility is to The duties and responsibilities of educational needs. This includes
Social Services include providing services to children who are in need
of protection. In conjunction with Avon and Wiltshire Mental Health Swindon Youth Offending Team
other agencies working with Partnership N.H.S. Trust (Wiltshire
vulnerable children, and working Part) Swindon Youth Offending Team was
through the Wiltshire Area Child formed, in partnership with the
Protection Committee, there is a The Wiltshire part of the Partnership Police, National Probation Service,
strong commitment to working Trust is an integrated mental health Social Services, Health and
together with other agencies in the and social care provider which was Education Departments, in 1999 to
management of risk and the established in April 2001, bringing prevent offending and re-offending
protection of the public together three health trusts and two by young people.
social services departments. The
Wiltshire County Council - Trust provides a full range of mental The assessment of each young
Department of Adult and Community health services, with risk person using the Asset structured
Services assessment and management being assessment tool, includes an
an integral part of work with service assessment of risk. Young people
Adult care services are provided to users. Both Social Services and who are assessed as ‘high risk’ are
older people, disabled people and Mental Health workers have been managed in accordance with the
those with mental health needs. The working closely with criminal justice RAMP/MAPPA protocol.
Department of Adult and Community agencies over recent years and have
Services is also responsible for the been fully involved in the HMP Erlestoke
Council's contribution to community development of the MAPPA.
safety and works through HMP Erlestoke is a category ‘C’
partnerships to support vulnerable Wiltshire Youth Offending Team adult male prison with a current
groups in the community. prisoner population of 330.
Established in May 1999, Wiltshire However, due to the increase
North Wiltshire District Council Youth Offending Team is a multi- nationally of the prison population,
agency partnership that provides Erlestoke is likely to expand to
North Wiltshire District Council is and co-ordinates services to victims accommodate approximately 100
committed to an inter agency and to young offenders and their further prisoners. We work closely
approach in all aspects of its work. families, with the overall aim of with other agencies in order to
Within the area of housing, officers preventing offending and re- reduce the risk of further offending,
work in close contact with Social offending by children and young both whilst the prisoner is in custody
Services, Probation and Housing people. Through comprehensive and also on release.
Providers to ensure a holistic assessment and intervention they
approach is taken in respect of seek to enhance protective factors We work with other agencies on
meeting the housing and support and tackle those factors associated MAPPA, and are fully committed to
needs of high-risk offenders and with increased risk. The YOT is the ethos of multi-agency working
other vulnerable persons. founded on the principle of multi- and intend to participate with our
agency co-operation as the best way partners in protecting the public,
to achieve outcomes for young both adults and children.
people and communities.
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5. How Does MAPPA Work?

There is an integrated system of • No action – revew date set. approach or have contact with
mechanisms and structures within • Single agency action – review named individuals or groups.
Swindon and Wiltshire aimed at date set. • Requirements to undergo various
assessing the risks posed by • Further assessment required forms of treatment including
potentially dangerous offenders, (i.e. home visit) – new date offending behaviour programmes
including all sex offenders, and set. and psychiatric treatment.
any violent offenders who serve • Referral to Multi –Agency • Measures to secure appropriate
sentences of 12 months or more. Public Protection Panel housing.
This involves all relevant (MAPPP). • Disclosure to specific individuals
agencies sharing information and • De-registration. or groups.
working closely together in order
to protect the public whenever this MAPPP meetings are scheduled Conduct of the meetings is guided
appears to be necessary. This is to operate in three locations in the by a formal agenda and
facilitated via a joint protocol county, each meeting once a confidential written minutes
which sets out the agreed fortnight, in either police or produced which clearly outline:
arrangements that agencies are probation service premises. In the risk management plan, aimed
required to sign and adhere to. addition to the police and at reducing, containing or
probation service, the standing managing the risks posed by
All registered sex offenders are membership includes Health subjects considered by the Panel;
initially assessed by the Police purchasers and providers, Social responsibilities; timescales and;
Force Intelligence Bureau using Services and Local Authority the review process. As well as
the Matrix 2000 assessment tool. Housing. Other relevant parties their respective experience and
This process involves visiting are invited on a case by case expertise, each Panel Member
offenders at their homes and basis. The Panel agrees a risk also has the authority to make an
liasing with other professionals, assessment which clearly sets out initial commitment of resources to
such as Probation Officers and the risk profile and factors the risk management plan.
Social Workers. Violent offenders involved in the case, including the
and sex offenders subject to particular circumstances where MAPPP cases are regularly
licence or community supervision the individual poses the greatest reviewed in order to assess
are assessed by the probation risk. A formal risk management progress in implementing the
service using the Offender plan is then agreed designed to agreed risk management plan and
Assessment System (OASys). manage and reduce the risk to take account of changed
factors. A typical risk circumstances.
This information is then management plan might include
considered by a panel meeting some or all of the following: Cases which pose an immediate
fortnightly at police HQ, with and serious threat can be fast
representatives from the police • Various degress of police tracked directly from the
and probation service and any surveillance. registration stage to the MAPPP.
other agency deemed appropriate • Reporting schedules.
in a particular case. The Risk The following are examples of
• Specific licence or Community
Assessment and Management recent MAPPA cases:
Rehabilitation Order conditions,
Panel (RAMP) is responsible for
for instance: stipulating where an
agreeing the level and nature of Through the MAPPA process the
offender must live; exclusion from
risk posed in each case and police were able to pass on
specific geographical areas or
based on this assessment information to the probation
premises; electronic tagging;
deciding on one of the following service concerning behaviour
imposition of a curfew or; not to
options:
which although not constituting an
offence in itself, was known to be An offender convicted of a violent Cases over the past year
a pre-curser to previous serious offence was assessed by the involving disclosure include
offences committed by this probation service as being disclosure to:
person. This resulted in a medium risk of harm and low risk
recommendation to the sentence of re-offending. He had a suitable • the employing school of a
enforcement unit that this man be release address, the benefit of a man convicted of internet
recalled to prison, a course of supportive family and moderately child pornography
action which was followed within good work prospects. He also • the Singapore Authorities
the space of a few hours. The had a positive attitude towards on a registered sex
MAPPA process was then used to probation supervision and a offender employed by
support the police in obtaining a willingness to work on factors them
Sex Offender Order resulting in which contributed to his offending. • the partner of a registered
him having to register with the At the Risk Assessment and sex offender
police on release from prison and management Panel (RAMP) it • the parents of a man
providing various powers to was therefore agreed that this convicted of serious
ensure future good conduct. was a case which could be violent offences
handled by the probation service
on a single agency basis.

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6. How is MAPPA Managed and Regulated?

A Board comprising of senior Partnerships and Local • Strengthening links with
managers from the signatory Criminal Justice Boards Area Child Protection
agencies has responsibility for • Preparing and publishing an Committees and
developing and overseeing annual report Vulnerable Persons
MAPPA. The Board meets • Planning the longer-term Committees
quarterly and its primary aim is to development of MAPPA in the • Considering and
'keep the arrangements light of regular reviews of the responding to the impact
established by it under review arrangements and with of relevant new
with a view to monitoring their respect to legislative and legislation, guidance and
effectiveness and making any wider criminal justice changes proposals
changes to them that appear • Identifying and planning how • Strengthening the Board
necessary or expedient'. In to meet common training and by ensuring that the right
pursuant of this aim the Board's developmental needs of those organisations are
activities, recently articulated by working in the MAPPA represented
the Secretary of State, include: • Reviewing funding
Over the past year the work of the arrangements
• Monitoring and evaluating the Board has focused on: • Contributing to the
operation of the MAPPA development of a regional
• Establishing connections • Ensuring that the new MAPPA strategy
which support effective arrangements are • Planning for the
operational work with other working well and making introduction of a national
public protection changes where required computer database
arrangements, such as Child • Reviewing the
Protection Committees, local arrangements in light of
Crime and Disorder new guidance issued by
the Secretary of State
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7. How are Victims Protected?

The safety of victims is a major work within the Wiltshire Area. between Probation Service and
preoccupation of MAPPA. Their Victim’s addresses are provided Victim Support staff. This model
needs are always carefully by the police. is supported by a Partnership
considered and measures to contract between Victim Support
ensure their protection built into Within the requirements of the Wiltshire and Wiltshire Probation
individual offender's risk Act, a central principle in Wiltshire Area. Contact may be by way of
management plans. This includes Probation Area’s work with victims a home visit, office visit or other
disclosure when this is considered is to be sensitive, responsive and agreed venue and will be largely
to be in the interests of victim flexible to a victim’s desire to have informed by any knowledge or
protection. contact (or not) and the nature insights gained from other
and means of facilitating that agencies contact with the victim
In addition to the above Section contact. and through telephone contact
69 of the Criminal Justice and confirming the appointment.
Court Services Act 2000 places a As a first step, Victim Support is
statutory duty upon the National contracted to establish whether or Victims are entitled to be kept
Probation Service, Wiltshire to not they have had any previous, informed of the offender’s release
contact victims and ask if they or ongoing contact with the victim. arrangements, the month and
wish to be consulted about the If this is the case, a Standard general location, and details of
release arrangements for violent Initial Contact Letter (offering a any licence conditions that restrict
and sexual offenders sentenced specific appointment) is forwarded the offenders movements in ways
to 12 months custody or more. on to the victim by Victim Support. which could impact on them.

Trained specialist Victim Liaison The preferred model for contact

Officers undertake victim contact with victims is joint working
8. Statistical Information Number of Offenders

1. Number of Registered Sex Offenders 255

2. The number of sex offenders having a registration requirement who 13

were either cautioned or convicted for breaches of the requirement,
between 1 April 2002 and 31 March 2003

3. Sex Offender Orders:

Applied for 5
Granted 5

4. Restraining Orders 3

5. Number of Violent and other Sex Offenders considered under MAPPA 214

6. The number of “other offenders” dealt with under MAPPA during the 28
year 1 April 2002 and 31 March 2003 as being assessed by the
Responsible Authority as posing a risk of serious harm to the public

7. Number of Offenders by category dealt with by MAPPP:

Registered Sex Offenders 36

Violent and other Sex Offenders 21
Other Offenders 28

8. Of cases dealt with by MAPP number who were:

Returned to Custody for Breach of Licence 9

Returned for Breach of Restraining Order or Sex Offender Order 1
Charged with a Serious Sexual or Violent Offence 1
Contacts

Wiltshire Probation Area Address Phone

Assistant Chief Officer Rothermere 01225 781950

Bythesea Road
TROWBRIDGE
Wiltshire
BA14 8JQ

Wiltshire Police Address Phone

Detective Inspector: Force Intelligence Bureau Wiltshire Constabulary 01380 722341

London Road
DEVIZES
Wiltshire
SN10 2DN

Victim Support Address Phone

Area Manager Victim Support Wiltshire 01380 729476

31a The Brittox
DEVIZES
Wiltshire
SN10 1AJ