Multi-Agency Public

Protection Arrangements
Annual Report 2004-2005

SOUTH WALES POLICE NATIONAL PROBATION SERVICE

HEDDLU DE CYMRU for England and Wales
Contents

Introduction by Ian Lankshear, John May and

Barbara Wilding 1

National Perspective 2

Achievements 3

How MAPPA operates locally 7

Partners with a view 9

MAPPA case studies 10

Frequently Asked Questions 12

Statistical information 13

Statistical commentary 14

SOUTH WALES POLICE

HEDDLU DE CYMRU

NATIONAL
PROBATION SERVICE
for England and Wales
 Introduction

Ian Lankshear Barbara Wilding, QPM

Chief Officer of South Wales Probation Chief Constable South Wales Police

❝ The protection of the public through Multi-

Agency Public Protection Arrangements (MAPPA)
continues to be our top priority in Probation.
The partnership with Police and Prison colleagues
in this work is vital and has grown substantially in
the last year, including the commitment to joint
staffing of a Public Protection Unit. The
contribution of the area’s Lay Advisers to the
work of the partnership is becoming increasingly
important and, with my colleagues, I will be
seeking to ensure the work of MAPPA is more
widely understood in the communities we serve.
The partnership work undertaken to manage the
risks posed by serious offenders and the delivery
of services for their victims is at the forefront of
planning across criminal justice agencies. This
report provides substantial evidence of this and
the positive impact for communities in South
Wales.
❞ funded by the Probation Service and South Wales
❝
In the South Wales area, Multi Agency Public
Protection Arrangements provide an excellent
example of how committed partnership working
is making our communities even safer and more
secure.
These arrangements bring together, at both
strategic and practitioner level, a wide range of
partners with the aim of ensuring that a
comprehensive assessment of risk is built enabling
appropriate action plans to be drawn up and
implemented. It is the most effective way of
ensuring that potentially dangerous offenders who
present a threat to the safety of the public are
strictly monitored and controlled.
I am also pleased to report that over the course
of the year partnership arrangements have been
further enhanced through the development of a
MAPPA Co-ordination Unit. This is to be jointly
Police and will result in even closer and more
effective working arrangements.

John May I have no doubt that this annual report will

Area Manager, HM Prison Service reassure the public of our commitment and

❝
determination to make South Wales known
The Prison Service became a responsible nationally and internationally as one of the safest
authority of the Multi-Agency Public Protection
Arrangements in April 2004. Acquiring that status
has enabled us to develop further the already
areas in the United Kingdom.
❞
excellent working relationships with our partners.

“The close integration of our efforts to manage

and reduce the risks presented by our most
serious offenders is undoubtedly proving effective
in supporting the safety of communities across
Wales. With our partners’ help, we are better
able to identify those offenders who present a
particular risk, to target them for programmes
and interventions aimed at reducing their
propensity to re-offend, and to prepare careful
release plans which minimise the possibility of
future victims.

“It is axiomatic that, in work with the higher-risk

offenders, it is the occasional failure that makes
the headlines. It is therefore a particular pleasure
to be part of a structure, which is increasingly
recording success in managing and reducing the
risk of harm to citizens in Wales.
❞

Multi-Agency Public Protection Arrangements Annual Report 2004-2005 1

National Perspective
Baroness Scotland
Minister of State for Criminal Justice and Offender Management
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
2 Multi-Agency Public Protection Arrangements Annual Report 2004-2005
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.
Strategic Achievements
Management Board
members
Ian Barrow The Strategic Management Board (SMB) was
South Wales Probation established during 2002 and is chaired by the
Assistant Chief Constable (Crime) and Assistant
Helen Bennett
Chief Constable (Public Protection). It is attended
Cardiff and Vale NHS Trust
by, among others, the two Lay Advisers.
Janet Chaplin
South Wales Probation The implementation of the new Criminal Justice
Simon Clarke Act 2003 placed a responsibility on a number of
South Wales Police agencies including social services, health, Job
Centre Plus, Youth Offending Teams, local
Sue Cousins
Merthyr Tydfil CSP authority housing, registered social landlords,
education and electronic monitoring providers to
John Dale co-operate with the Responsible Authorities of
Lay Member
Police, Probation and Prisons to assess and
Chris Davies manage potentially dangerous and sexual
Job Centre Plus offenders.
John Davies
Bridgend CSP South Wales has had a history of excellent inter-
agency co-operation and already had
Jeff Davison
arrangements in place to cover most of these
Swansea CSP
organisations. However, there was concern that
Sharon Dixon Community Safety Partnerships (CSPs) were not
Lay Member integral to this process. To address this the SMB
Mal Gay was reformed during the year.
YOT Manager BCBC
Dick Geen One representative from each Strategic CSP now
Cardiff CSP represents the local authority area irrespective of
their designation or responsibility. Additional
Jane Griffiths
membership of the Board comes from the areas
Neath Port Talbot CSP
of work who have a duty to co-operate. This
Albert Heaney arrangement will be monitored throughout the
NSPCC year to ensure that it is achieving its aim of
Alison Lewis bringing the responsibility and understanding of
Securicor – Parc Prison public protection to the heart of the community.
Martin Price
NPT CBC Another result of the SMB reform was the
creation of a number of sub-groups to focus on
Gwennan Roberts particular areas of difficulty locally. The SMB
RCT CBC
Accommodation sub-group is made up of
Sean Sullivan representatives from a number of agencies
HMP Cardiff including the Probation Service, Police, the Local
Dave Thomas Authority Housing Departments, Welsh Assembly
SWAP Forum Government and voluntary sector groups.
Tegwyn Williams
The group was established to ensure a consistent
Caswell Clinic
approach to the housing of MAPPA offenders
Jenny Willott across the South Wales Area. This was to
Victim Support recognise the vital role stable accommodation can
ACC Giles York play, both in terms of supervising and monitoring
South Wales Police MAPPA offenders and ensuring their successful
Tony Young resettlement and rehabilitation. It also recognises
Vale CSP that achieving stable accommodation for this
group of offenders can be extremely challenging
because of the difficult victim issues involved.
The SMB Quality Assurance sub-group
consists of representatives from the Probation
Service, Police and Community Safety
Partnerships. The group also liaises with, and
Multi-Agency Public Protection Arrangements Annual Report 2004-2005
receives input from, the Area’s Lay Advisers.
The South Wales Area participated in national
research during the course of the year and this
highlighted many strengths in local MAPPA work.
However, some areas for improvement were also
identified, these were primarily around work with
Level 2 offenders – those subject to the Multi
Agency Risk Assessment Conference (MARAC) –
and ensuring that appropriate thresholds were set
for Level 1 and Level 2 cases.
In addition a template is currently being devised
for use at Level 2 meetings, which will mirror the
process of Level 3 meetings, ensuring an
improved level of consistency across the Area and
an effective method of quality assurance.
The group will undertake a comprehensive audit
of Level 3 work during the coming year.
One of the important ways in which the Criminal
Justice Act (2003) strengthened the Multi-Agency
Public Protection Arrangements (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. The Prison Service has been given this
enhanced role in recognition of the important part
it plays 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.
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 and 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. The main focus of
the Prison Service contribution is at an operational
level. A number of measures have been put in
place 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
3
Achievements
• 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
• 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 the Multi-Agency
Risk Assessment Conference meetings,
designed to deal with those offenders who
pose a particular level of risk
• No changes to release dates or arrangements
being made without prior consultation with
Police and Probation.
Playing an effective role in the multi agency risk
management of MAPPA offenders requires good
communication between criminal justice partners.
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
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.
Jerry Knight Director, HMP/YOI Parc
❝
This past year we have been very actively striving
to ensure that we are participating fully and
effectively to the South Wales Public Protection
procedures.
We have implemented the Prison Service Order,
which specifically outlines our responsibility to
MAPPA. We have a rolling schedule of training in
place to ensure that all staff are aware of new and
important local arrangements for identifying and
sharing information with our strategic MAPPA
partners in Police and Probation. There has been
a significant positive shift in the way staff
understand the role of prisons in this work. A
wide range of new procedures have ensured that
we can both comply with requirements and
develop our good practice in this area.
4 Multi-Agency Public Protection Arrangements Annual Report 2004-2005
This work brings challenges and opportunities for
prisons. We need to ensure that we have
established sustainable, effective processes to
undertake this work to a high standard and in this
way we will fully realise our potential for
significantly contributing to protecting the public
in South Wales.
❞
Sean Sullivan
Head of Crime Reduction - HMP Cardiff
We have been actively working since becoming
the third Responsible Authority to develop and
streamline our MAPPA procedures. It should be
acknowledged that this has demanded a
substantial shift in prison culture: a shift that takes
in risk outside the prison walls as well as security
within them.
We know of many offenders who fit comfortably
into prison life, but who can pose a serious risk of
harm on release. There is ongoing educational
work to be done with prison staff to further
develop this understanding of public protection
work.
The system developed at Cardiff identifies all
prisoners who fit the MAPPA criteria, as well as
others such as harassers and racially motivated
offenders. An assessment process is carried out
and, at a multi-agency Public Protection Board
held each month, their areas of risk is agreed and
appropriate action decided.
In addition to this formal system, potentially
dangerous prisoners are identified through other
means such as the OASys assessment, reports
from probation officers, psychologists and drugs
workers. Significantly, the most frequent reports
come from the community psychiatric nurses, this
is no surprise given the extent of mental health
problems within the prison.
Another key to success is effective
communication with outside agencies, especially
Police and Probation. Having a probation officer
in prison dedicated to MAPPA work has helped us
to improve those links. An important
consequence of establishing better contacts with
the organisers of domestic violence MARACs has
been an improved awareness of a specific group
of offenders, many of whom fall below the risk
threshold for MAPPA.
Finally, we are looking at the role of the Police
Liaison Officer. This role has traditionally been
embedded within the Security Department, but
 Achievements
its importance to public protection reflects just
how much these two major functions of the
prison overlap and interact with each other.
Acknowledging and formalising this interaction will
be the next big step forward that we take.
❞ Probation Officer, In Reach Teams and Secure
Mick Micklam
Deputy Governor - HMP Swansea
❝
At HMP Swansea, public protection is key
performance driver as part of the vision of the
new National Offender Management System.
Public protection issues are taken forward by a
multi-disciplinary team. A seconded prison
Probation Officer and the prison’s Sentence
Management Unit link via the OASys System. The
Probation staff keep a daily updated register of
dangerous offenders, sex offenders, offenders
who pose a risk to children and young people,
those remanded for harrassment issues and
Persistent and Prolific Offenders. At the time of
writing there are 103 prisoners held in HMP
Swansea who fall into these catagories. This
information is available to all prison departments
and wing staff and can inform how prisoners are
managed in the establishment.
The prison holds a monthly public protection
meeting chaired by the Deputy Governor when
prisoners who are due to be released and those
whose future release plans are causing concern,
are discussed by the Multi-Disciplinary Team. This
process provides effective links to the MAPPA
processes on the outside and can help plan for the
effective risk management of dangerous prisoners
on release. There are developing links with In
Reach Mental Health Teams, Drug Agencies,
Housing Providers and Job Centre Plus as well as
the traditional links to field teams and hostels.
Multi-Agency Public Protection Arrangements Annual Report 2004-2005
The systems seem to be working well as can be
evidenced from a recent case when HMP
Swansea was holding ‘one of the critical few’.
Close co-operation with the home based
Mental Health Units led to the Deputy Governor
attending a special MAPPA meeting in Pontefract,
Yorkshire, to enable the prisoner to be moved to
HMP Leeds immediately before release. This
meant that the effective risk management plans
could be properly implemented.
The prison is building links to provide information
to enable effective release and risk management
plans to be put in place to help protect the public
from dangerous offenders.
❞
South Wales’ contribution to
MAPPA Nationally
Assistant Chief Officer Janet Chaplin
represents Wales on the national Probation
Service Public Protection Network. This group,
which is chaired by the Head of the Public
Protection Unit, meets quarterly. Its remit is to
facilitate information sharing and the development
of ideas about practice and policy in relation to
the supervision and management of potentially
dangerous offenders. In particular, it provides a
national forum where best practice can be shared
and developed both in terms of the management
of this group of offenders and also the multi-
agency partnerships that are necessary for the
delivery of this work.
Assistant Chief Officers from across the Welsh
Probation Areas, who have a responsibility for
public protection, meet on a quarterly basis to
ensure that there is a regional dimension to
the work undertaken. This is a valuable
opportunity to share best practice, capitalise on
new initiatives and disseminate information across
the country. It also offers a vehicle for close links
with the Welsh Assembly Government and, in the
future, an opportunity for Lay Advisers to have a
support network.
South Wales MAPPA representatives were invited
to attend the Essex Area’s conference entitled
Innovations in MAPPA during the year. The
conference was focusing on new developments
and areas of good practice nationally.
South Wales were invited to contribute because
of the work that had been piloted on the
introduction of Domestic Violence Multi-Agency
Risk Assessment Conferences (MARACs). This
5
Achievements
work has attracted national attention and was
highlighted as an example of good practice in the
study, commissioned by the National Probation
Directorate and undertaken by De Montfort
University, into MAPPA practice.
Ian Barrow, Area Manager for South Wales
Probation and Detective Inspector Steve Bartley
attended the conference and made a joint
presentation on the reasons why the Domestic
Violence MARACs had been introduced, how the
Area engaged with the relevant groups and the
benefits of such an approach for Probation, Police
and in particular the victims of Domestic Violence.
The feedback from attendees at the conference
was very positive with much interest generated
about the approach.
Detective Superintendent Simon Clarke
chairs the All Wales Public Protection Group
made up of senior officers from the four Welsh
❝
Police forces to ensure consistency of procedures
throughout Wales, to assist in information sharing
and to develop best practice.
Simon also sits on a National Association of Chief
Police Officers (ACPO) group representing Wales.
This group deals with MAPPA and the
management of sex and dangerous offenders
within the Police Service
nationally.
In addition he is part of a national working group
across the Police, Prison and Probation Services
to review and develop MAPPA Guidance. In
particular this is around the roles of MAPPA
❝
Co-ordinators and the Strategic Management
Boards across England and Wales. He has also
recently joined a national working group to
develop National Guidance for Public Protection
Officers for the management of sex and
dangerous offenders within the community.
One of the members of the Public Protection
team within South Wales Police, Detective
Constable Jim Hurn, is part of the national ViSOR
User Group. ViSOR is the register for the
management of sex and dangerous offenders
throughout the South Wales Police Area.
The role of the Lay Adviser, having been piloted
successfully in South Wales, was extended across
England and Wales during the year. The
introduction of members of the community to the
process of managing these groups of offenders
came about in response to the murder of Sarah
Payne and the calls for ‘Sarah’s Law’.
6 Multi-Agency Public Protection Arrangements Annual Report 2004-2005
It is with sadness that we note the death of one of
our Lay Advisers, Mike Thomas, and record our
thanks for the work he did while he held the
position.
A real challenge during the year has been the
recruitment of a second Lay Adviser following
Mike’s death, and it is pleasing to report that
Sharon Dixon has now been appointed to take on
these responsibilities.
The role of the Lay Adviser is one of a “critical
friend”. Lay Advisers sit on the South Wales
MAPPA Strategic Management Board (SMB)
which undertakes the formal review of the
arrangements in place which are used to assess
and manage the risks of these offenders.
John Dale
Lay Adviser for South Wales MAPPA
This has been a sad year with the death of Mike
Thomas the other Lay Adviser, leaving me alone
to watch the growth and development of the
work of the Strategic Management Board.
It has been good to see its membership finalised
and the growth in knowledge of each others work
along with the development of ground level work
that has continued at a high level ensuring the safe
management of dangerous offenders.
❞
Sharon Dixon
Lay Adviser for South Wales MAPPA
I have recently been appointed as a Lay Advisor
and I am looking forward to the challenges that
lay ahead. I have had the opportunity to meet
professionals from the Probation Sevice as part of
my induction. I have also been invited to MAPPA
tier 2 and 3 meetings over the coming weeks
It is my intention to meet with the Prison and
Police professionals in a bid to gain a greater
understanding of the links currently being forged
by all relevant agencies.
I am keen to help develop the work already
started here in South Wales and look forward to
questioning and challenging the current processes
that are in place so that I gain a valuable insight.
The next few months will be interesting and very
worthwhile.
❞
 How MAPPA operates locally
The MARAC and the MAPPP
MARACs and MAPPPs are the two forms of inter-
agency contact used to manage the risks posed by
an individual offender
• Multi-Agency Risk Assessment Conference
(MARAC)
• Multi-Agency Public Protection Panel
(MAPPP).
The aims of both forums are the same:
• To share information
• To assess levels of risk and their implications
• To consider implications for victims
• To devise the individual management plan
• To agree the implementation of management
plan
• To agree the monitoring and review process
of the management plan
The MAPPP has two additional aims:
• To consider or review the need to register the
subject as a Potentially Dangerous Offender
• To consider any issues relating to disclosure in
the public domain
There are two definitions in terms of the risk
management and MAPPA processes which are
essential to understand. They are:
The critical few - those offenders who are
managed under the MAPPP process. They are
defined as those who:
• Following a full risk assessment are considered
to be at high or very high risk of causing
immediate serious harm
• Present risks that can only be managed by a
plan which requires close co-operation at a
senior level because of its complexity or
unusual resource requirements
• May not be considered to be a very high risk
but who, because of exceptional
circumstances, are likely to be subject to a
high level of media interest or public scrutiny
and there is a need to ensure that public
confidence is sustained.
Violent and sexual offenders - defined as those
offenders who are defined under section 68 of the
Criminal Justice and Court Services Act
2000, particularly those in subsections (3) (4) (5),
who are not required to register as sex offenders
under the terms of the Sexual Offences Act 2003.
Multi-Agency Public Protection Arrangements Annual Report 2004-2005
What is a MARAC?
A MARAC is a formal multi-agency conference
that is used to manage the risk assessment
process of known Sex or Potentially Dangerous
Offenders and consider any implications for
victims. Minutes and agreed management action
plans are detailed at each meeting and distributed
to all attendees to ensure that those involved
understand the contribution they are expected to
make.
MARAC meetings are held each month, or more
often if required, and in addition to Police and
Probation the following agencies are invited to
attend:
• Social Services
• Local Authority Housing
• Victim Liaison Officer
• Prison Service
• Youth Offending Team – if the offender is
under 18.
Other agencies or individuals such as Health, HM
Customs and Excise, Housing Associations,
Psychiatric Nurses may also be invited to the
meeting, depending on the circumstances of the
offender.
MARACs are usually the first step in the risk
management process and can, in the case of the
“critical few” lead to a MAPPP.
What is a MAPPP?
The MAPPP deals with the “critical few” – those
offenders who need the highest level of multi-
agency collaboration.
A MAPPP is usually held following a referral from
the MARAC but, in a very small number of cases,
where the offender represents an exceptionally
high risk to the public, a request for a MAPPP can
be made by the senior Probation and Police
Officers.
As with the MARAC certain agencies will always
be invited to attend a MAPPP. These include:
• Social Services
• Local Authority Housing
• Victim Liaison Officer
• Supervising Probation Officer
• Police Public Protection Officer
• Prison Service
• Youth Offending Team – if the offender is
under 18.
7
How MAPPA operates locally

In addition it may be appropriate, depending on

Approved premises
the case, to invite other agencies or individuals, all
offer an enhanced
of whom will have relevant information that will
level of supervision
assist the MAPPA process.
by:
The role of Probation • Imposing a night-time
hostels curfew
• Providing 24 hour staffing
Probation hostels in Cardiff and Swansea have an
important role to play in the management of • Undertaking ongoing
potentially dangerous offenders in the community. assessment of attitudes
and behaviour
The hostels house more than 50 residents • Ensuring ongoing pro-
between them. Many of these are social modelling
accommodated at the hostel as a condition of
their licence following release from prison, • Providing a programme of
although residents may also be on bail or a regular supervision,
community order. The hostel runs to strict rules support and monitoring
and offers a structured environment for offenders. • Surveillance and ongoing
police liaison
There are a number of activities that residents can
undertake during their residency. There is a focus • Reinforcing compliance
on developing basic skills, such as literacy and with bail or licence
numeracy and helping residents to improve their conditions
personal circumstances through, for example, • Encouraging attendance
better money management. Activities on, and supporting learning
concentrate on developing the self-esteem and gained through accredited
victim understanding of offenders and ensuring programmes
that they are safely reintegrated into the
community. • Maintaining contact with
supervising staff in the
Probation field teams

8 Multi-Agency Public Protection Arrangements Annual Report 2004-2005

 Partners with a view
Sheelagh Keyse
Director, Jobcentre Plus Wales
❝
❝
Jobcentre Plus Wales has for sometime worked in
close partnership with the Probation and Prison
Services in supporting our shared customers. I
welcome the opportunity to develop this
relationship further through representation on the
MAPPA Strategic Management Board. We will
make every effort to support public protection by
helping to prevent dangerous offenders accessing
❞
inappropriate job and training opportunities.
Albert Heaney
NSPCC & Chair of the South Wales Child
Protection Forum
❝
As a society we have to face up to the fact that
there are dangerous offenders in all our
communities and manage the risks they pose.
The Multi-Agency Public Protection Arrangements
play a vital role by enabling agencies to exchange
information and ensure that appropriate risk
management arrangements are in place for
dangerous offenders. Agencies are now working
❝
much more closely together than ever before.
Whilst we cannot always eliminate the risks
posed, we can do a huge amount to manage risk
and protect our children and communities.
As a representative on the South Wales MAPPA
Strategic Management Board, I welcome the co-
ordinated and considered approach by all agencies
involved to manage risk and provide protection to
❞
the general public.
Helen Bennett
Head of Mental Health Nursing, Cardiff &
Vale NHS Trust
❝
Since the implementation of the Strategic
❝
Framework there has been real progress through
partnership working. The robust MARAC and
MAPPP processes that are now in place have
encouraged staff engagement which has impacted
positively on patient care and public safety.
These robust procedures have helped to develop
best practices through the establishment of a
Public Protection team in Cardiff. The intention is
that all partner agencies will be co-located to
ensure good team communication, effective team
working and a cohesive plan for each client.
❞ exclusion areas.
Multi-Agency Public Protection Arrangements Annual Report 2004-2005
Dave Thomas
Consultant to the South Wales Adult
Protection Forum
Through effective partnership working, the
collective aim of the South Wales Adult Protection
(SWAP) Forum and its associated Area Adult
Protection Committees is to prevent and
eradicate abuse against vunerable adults across
South Wales. It is reassuring to note that the
Multi-Agency Public Protection Arrangements
developed in South Wales have made significant
strides towards preventing the re-occurrence of
serious physical and sexual abuse against those
members of our society that are most vunerable.
Only through continued collaborative working
between agencies involved in the care, support
and protection of vunerable people will we be
able to eliminate the potential risk posed by
predatory and serial offenders.
❞
Jane Griffiths
Community Safety Manager
Neath Port Talbot
Community Safety Partnerships rely heavily on
information sharing and awareness raising among
agencies and the public in their efforts to address
issues of crime and disorder and reassure local
residents.
The work of the MAPPA is very much a part of
that partnership process to protect and reassure
agencies and the public that dangerous offenders
are being dealt with appropriately.
❞
Andrea Chichester and
Chris Lewis
Service Delivery Officers, Premier
Monitoring Services Ltd
As specialists in electronic monitoring we have
always worked in close cooperation with our
partner agencies, offering assistance in the field of
monitoring high risk and persistent offenders.
We look forward to a continuing close
relationship with the Board, by giving immediate
input of new innovations in electronic monitoring,
such as the current trials and implementation of
tracking by Global Positioning Satellite and
❞
9
MAPPA case studies
Domestic abuse case study
Mr M was released on licence following a four
year prison sentence for an offence of Affray and
Grievous Bodily harm. He had several previous
convictions for offences of violence generally
following periods of heavy drinking. At the point
of Mr M’s imprisonment there was anecdotal
evidence of domestic abuse but there had been
no formal charges. Mr M was the subject of a
Multi-Agency Risk Assessment Conference
(MARAC) which, prior to his release, assessed his
level of Risk of Harm as being high – this was
based on his pattern of offending and alcohol mis-
use. The Risk Management plan included monthly
MARAC Reviews.
At the first MARAC Review, Probation reported
that Mr M was complying fully with the conditions
of his licence. However, the Police again made
reference to anecdotal information concerning
domestic abuse. On that occasion it was
determined that the Police Domestic Abuse Co-
ordinator and Women’s Support Unit would be
asked to monitor the situation and report back to
next Review or earlier if necessary. This resulted
in a MARAC being convened ten days later – the
Police having had a call-out to a domestic incident.
The Health Representative advised of the
partner’s attendance at hospital to treat facial
injuries. Having been referred to the Women’s
Safety Unit the partner was supported in her
decision to press charges against Mr M. Following
the charge of assault the Probation Service took
action to request immediate revocation of his
licence. He was arrested four hours later and
returned to prison. His licence has since been
revoked.
MAPPA case studies
Mr S has a history of sex offences which
included a seven year Prison sentence for
rape.
Before he was released in 2004 he was subject to
a MAPPP meeting. He was assessed as posing a
very high risk of harm to children and young
people. He was registered as a dangerous
offender.
Mr S was released from Prison under Probation
supervision and was required to reside at an
Approved Premises. He was witnessed by
members of the public acting in a suspicious
manner towards three teenage females.
10 Multi-Agency Public Protection Arrangements Annual Report 2004-2005
Following multi-agency investigation his licence
was revoked and he was returned to prison.
Following his subsequent release he was managed
again through the MAPPA process and a Sexual
Offences Prevention Order was successfully
secured to help manage the risk presented by Mr
S. This was granted for life in 2005 by the
Magistrates’ Court.
In March information was received by the Police
that a man by the same name was plying children
with cannabis and alcohol. An investigation was
conducted and subsequently Mr S appeared at the
Crown Court and received a 30 month prison
sentence.
Mr D was subject to a Risk of Sexual Harm
Order, containing a number of prohibitions
designed to protect children and young
people from harm.
This information was shared with a number of
agencies to help manage the risk posed by Mr D.
A member of the public called the Police with
concerns, after witnessing Mr D approaching a
young woman and also being close to a primary
school.
Police Officers were immediately sent to the area
and Mr D was arrested. He admitted breaching
one of his prohibitions and was remanded in
custody before appearing before Magistrates.
While Mr D was not a registered sex offenders
before this offence he now has an indefinite
requirement to register and in this way his actions
can be monitored.
The Home Office has confirmed that this is the
first conviction of this kind.
Mr R is a convicted paedophile resident at
one of the Approved Premises in South
Wales.
While checking mail at the hostel a member of
staff noted a letter from a female prisoner to Mr
R that was covered in amourous graffiti. The staff
member alerted the Deputy Manager who took a
photocopy of the envelope and passed it to a
member of the Police Public Protection team.
Police officers traced the woman to a prison in
Bristol and discovered that she had two young
children. This was a particular concern as the
offender had been previously convicted after
befriending women with young children, offering
 MAPPA case studies
to babysit and abusing the children in their
mother’s absence.
At the request of the Police the hostel continued
to monitor Mr R’s mail and warned him not to
continue contact with the woman. On the day of
her release from prison Mr R left the hostel and
did not return as indicated. The Police were
alerted and, on investigation, discovered that he
had travelled to Bristol to pick the woman up and
take her shopping.
Mr R was interviewed the following day and
admitted that he had maintained contact. This
was in breach of his licence and led to his recall to
prison.
Victim case study
Mr L committed serious sexual offences
against young girls, offences which also
involved threats of violence and abduction.
Sentenced to a lengthy prison sentence, Mr L was
assessed through a MAPPP meeting as being
highly dangerous to young children. Mr L had
many previous convictions for sexual offending
and denied his behaviour entirely.
Because of victim issues and his considerable
notoriety within the Area, it was inappropriate for
him to return to his home area upon release.
Arrangements were made, through the Public
Protection Arrangements, with another Probation
Area to house him in an Approved Premise on his
release from prison.
Post-release and while living away from South
Wales, work was underaken with a local authority
housing provider to identify suitable
accommodation within South Wales. This was a
difficult and time consuming task because of the
need for appropriate accommodation which
presented a manageable level of risk. Discussions
included Social Services Child Protection
managers and a number of Housing Associations.
Various potential addresses were identified and
visited by Police to assess them for risk.
Eventually one was agreed as appropriate and
plans are now underway to resettle Mr L at this
address.
His transport from the hostel to South Wales will
be carefully managed with a number of Police
forces alerted and surveillance undertaken as
Multi-Agency Public Protection Arrangements Annual Report 2004-2005
appropriate. He will be required to report to his
case manager upon arrival. Should he not do so
his licence will be revoked immediately.
Mr L will be subject to monthly MAPPP progress
reviews for the foreseeable future and, as well as
maintaining regular and frequent contact with his
case manager, he will receive regular visits from
the Police. The MAPPP will continue to assess
and manage the level of risk that Mr L poses on
his return to South Wales and if, at any time, this
risk increases the multi-agency approach will
ensure that he is managed to minimise the risk to
the public.
In cases such as these the Probation Service has a
statutory responsibility to contact the victim, or
their family within eight weeks of sentence to
provide information about the offender at key
points during the sentence. This is, by its very
nature, a very difficult and sensitive area of work
and staff working with victims receive specialist
training to ensure that they have the necessary
skills. Victim Liaison Officers do not supervise
offenders, or have contact in any other way, their
role is to provide information and ensure, prior to
the offender’s release, that the victim’s voice can
be heard.
Probation was particularly pleased to receive the
following letter from the family of one of Mr L’s
victims.
“We are writing to express our deepest gratitude
and appreciation for the quality of service we
have received in relation to the release from
prison of an offender who committed a crime
against our daughter.
“Clearly, this is an emotive and difficult subject for
us to face as a family and, in these circumstances,
we could not have asked for a more impressive,
sensitive and professional handling of the situation.
The Victim Liaison Officer has been in touch
whenever necessary, visited our home, explained
things simply and thoroughly, following up with
telephone calls and offering helpful advice at all
times.
“In a day and age when people are so quick to
find fault, we felt we would like to take a moment
to congratulate you on a department that is
simply outstanding.”
11
Frequently asked questions
These people should be
locked up for life, why are
they released from prison?
Few people, however terrible their crime, can be
imprisoned indefinitely. Prison sentences are laid
down in law and, at the end of the sentence most
offenders will be released back into the
community.
Why aren’t they tagged?
They are. But only for as long as there is a legal
power to do so, for example the length of a
prison licence. Once this has expired agencies
continue to work together to monitor offenders
by conventional methods.
Why aren’t the public told
where they live?
Police and Probation have a great influence on
where offenders may or may not live. They are
aware of the particular dangers posed by each
individual and will not allow them to reside in a
location that increases their risk of re-offending.
For instance, close proximity to schools, childrens'
playgrounds or their previous victims.
Extensive research will go into the housing of an
offender and will include consultation with other
agencies such as housing and education
authorities, always with the aim of assessing and
12 Multi-Agency Public Protection Arrangements Annual Report 2004-2005
reducing risk. Public knowledge of the location of
these offenders would drive them underground.
It is safer for everyone concerned if their location
is known only to the responsible agencies.
Why have they got to live
near me?
Re-integration into communities is known to be
the most effective way of managing offenders.
With careful monitoring most offenders present
little risk.
Are my children at risk?
All parents should make their children aware of
“stranger danger” to ensure that they have the
information they need to stay safe. High risk
offenders are monitored frequently and can have
conditions imposed on them which prevent them
from having contact with children or frequenting
areas where children play as appropriate.
However, the statistics indicate that a very large
percentage of offences against children are
committed by family members or known friends.
Where can I go to look at
the Sex Offender Register?
The Sex Offender Register is a confidential
document that is used by partner agencies to
assist with the management of offenders and is
not available to the public.
 Statistical information

All statistics cover the period 1 April 2004 – 31 March 2005 unless stated otherwise.
Glossary of terms
• MAPPA
Category 1 MAPPA offenders: Registered Sex Offenders (RSO)
Multi Agency Public
Protection Arrangements Number of RSOs living in South Wales on 31.3.05 765

• MAPPP Number of RSOs per 100,000 of population 61

Multi Agency Public
Protecton Panel Number of RSOs either cautioned or convicted for breaches of requirement
To manage the few between 1.4.04 and 31.3.05 21
offenders who pose the Number of:
highest risk to the • Sexual Offences Prevention Orders (SOPOs) applied for 6
community – these are • Interim SOPOs granted 0
categorised as Level 3 • Full SOPOs imposed by Courts 6
offenders
Number of:
• ‘Critical few’
• Notification Orders applied for 1
Those offenders managed
• Interim Notification Orders granted 0
through the MAPPP
• Full Notification Orders imposed by Courts 1
process
• MARAC Number of Foreign Travel Orders:
Multi Agency Risk • Applied for 0
Assessment Conference • Imposed by Courts 0
To manage those offenders
presenting a risk to the
Category 2 – Violent Offenders and other Sexual Offenders
community - categorised
as Level 2 offenders Number of violent and other sexual offenders (defined by Section 327 (3) (4) (5) of
CJA 2003) living in South Wales between 1.4.04 and 31.3.05 414
• Strategic Management
Board
The Board manages the
Category 3 MAPPA offenders: Other offenders
MAPPA process and has
responsibility to ensure Number of other offenders (defined by Section 325 (2)(b) of CJA 2003)
that it is applied between 1.4.04 and 31.3.05 0
consistently across South
Wales
Offenders managed through Level 3 and Level 2
• Responsible Authority
Those agencies who are Number of RSOs managed at: Level 3 - 28
responsible under statute Level 2 - 125
for the Public Protection
Arrangements. They are: Number of Violent and other offenders managed at: Level 3 - 20
Police, Probation and Level 2 - 307
Prisons Number of other offenders managed at: Level 3 - 3
• Category 1 offenders Level 2 - 143
Registered sex offenders
Cases where offenders were:
• Category 2 offenders • Returned to custody for breach of licence Level 3 – 11
Violent and other sexual Level 2 - 48
offenders
• Returned to custody for breach of restraining order or SOPO Level 3 – 0
• Category 3 Offenders Level 2 – 0
Other offenders defined by
Section 325 (2) (b) of the • Charged with serious sexual or violent offence Level 3 – 2
Criminal Justice Act 2003 Level 2 – 0

Multi-Agency Public Protection Arrangements Annual Report 2004-2005 13

Statistical commentary
Comparison with 2003-4
figures
The increase in the number of registered sex
offenders is a positive indication that the sex
offender registration process is working in South
Wales. Similarly, the increase in the number of
sex offender orders applied for and granted -
from 3 in 2003-4 to 6 in 2004-5 - is evidence that
the police, supported by other agencies, use the
legislation available to enhance public protection.
The slight decrease in category 2 & 3 - from 448
in 2003-4 to 414 in 2004-5 - is not significant.
This year for the first time, in addition to
information relating to the highest level of risk of
harm cases (MAPPA Level 3) the report includes
cases managed at the lower level (MAPPA Level
2). The large numbers involved do not indicate
an increase in the number of sexual or violent
offenders in South Wales. Rather, they offer the
public the reassurance that all offenders who are
assessed as posing a possible risk of harm are
managed through a very robust and regularly
reviewed inter-agency approach.
Breach of Licences
The large number of offenders returned to prison
following a breach of their licence evidences the
way in which South Wales responds to any
infringement of licence conditions.
In most cases the breach related to offenders
failing to comply with conditions of their licences
such as entering an exclusion zone, or failing to
notify change of address. By responding
14 Multi-Agency Public Protection Arrangements Annual Report 2004-2005
immediately to all such instances South Wales
agencies ensure offenders understand that
compliance to all conditions is mandatory.
Knowing that risk assessment on all offenders is
the highest priority for all staff should also serve
to increase public confidence.
Serious Further Offences
Only 2 of the 626 offenders managed through the
MAPPA process committed a serious further
offence.
In the first of these cases a detailed Risk
Management Plan had been devised and followed.
This included relapse prevention work from the
time of the offender’s release from prison.
Alcohol prevention sessions were also provided
together with very close supervision. His address
was monitored by the police and he was the
subject of an electronic night-time curfew. The
South Wales Police
enquiry which followed the further offences
Police Headquarters
indicated that the risk of harm action plan had
Bridgend CF31 3SU
been followed, inter-agency supervision had been
good and nothing more could have been done to
Geoff Cooper
prevent a further offence.
Head of CID
The second incident concerned a young offender
Simon Clarke
transferred from the Youth Offending Team to the
Head of
Probation Service. The original allegation which
Public Protection Bureau
related to a serious further offence was
subsequently reduced to a lesser offence.
However, the service did undertake an enquiry
which assisted in developing some learning points
for all organisations.
In neither of the above cases was there any
serious and/or long term harm to the victim.
NATIONAL
PROBATION SERVICE
for England and Wales
National Probation Service
South Wales Probation Area
Tremains House
Tremains Road
CF31 1TZ
Phil Jones
Director of Operations
Janet Chaplin
Assistant Chief Officer
Designed and Printed by
South Wales Police Print Department
Telephone: 01656 869264