Keeping

Communities
Safe
Multi-Agency
Public Protection
Ar rangements
Annual Repor t
2004–5
Cambridgeshire
CONTENTS
Foreword p. 1

Introduction p. 2

Key Achievements p. 3

Keeping Communities Safe

The Role of the Prison Service p. 4

Lay Advisors p. 5

How the MAPPA operates locally p. 7

Who’s Who in MAPPA p. 9

Contributing to the MAPPA process p. 13

Helping Victims of Crime p. 17

Risk Management p. 19

Case Histories p. 21

Understanding the Statistics p. 23

Statistical Information p. 24

Strategic Management Board p. 26

Contacts p. 27

Appendix A p. 28
 1

FOREWORD -
Ministerial Foreword by Baroness Scotland

The work being undertaken to improve the safety of communities through the Multi-Agency Public Protection

Arrangements (MAPPA) is vitally important and a priority for government. The annual reports for 2004/5 provide

evidence of that active engagement. Violence and sexual abuse are unacceptable wherever they occur and it is
evident that through MAPPA such offenders are identified and better managed than ever before. As the number of

offenders within MAPPA continues to grow as expected there is clear evidence that the Responsible Authority, that is

the local Police, Probation and the Prison Service, is addressing these additional demands by strengthening local

partnerships, using new statutory powers to restrict the behaviour of offenders, returning offenders to custody where
they breach their licence or order, and using the findings of research and inspection to strengthen national guidance

and local practice.

Although it is never possible completely to eliminate the risk posed by dangerous offenders, MAPPA is helping

to ensure that fewer people are re-victimised. The active implementation of the Criminal Justice Act (2003) during the

last year has clearly enhanced the ability of a number of agencies including health, social services and housing to

work collaboratively with the Responsible Authority in assessing and managing those sexual and violent offenders in

our communities who pose the highest risk of serious harm. For the continued success of MAPPA this collaboration

together with the scrutiny of policy and practice must become the hallmark of these arrangements. Similarly MAPPA

must integrate with other public protection mechanisms dealing with child abuse, domestic abuse and racial abuse.

For me, one of the most exciting developments in this arena in the last 12 months has been the appointment of lay

advisers to assist the Responsible Authority in the oversight of the arrangements. As ordinary members of the public

these lay advisors 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.

2

INTRODUCTION -
This report provides good evidence that Multi-Agency Public Protection Arrangements (MAPPA) are robust and well

supported by all partners. In Cambridgeshire during the past year there has been further strengthening of MAPPA as
a result of the implementation in April 2004 of the relevant provisions in the Criminal Justice Act 2003 - and these are

set out in the body of the report. One of the new provisions, that is particularly welcome, is the introduction of the lay

advisors. They bring a public perspective to the work of MAPPA and help to ensure that the Arrangements are

transparent. The primary principle of the National Probation Service in Cambridgeshire, which underpins all its work, is

the protection of the public. This report on the work of the MAPPA in 2004/5, I believe, demonstrates how all partners

working closely together are able to significantly improve their agency’s contribution to public protection in Cambridgeshire.

John Hughes Chief Officer Of Probation

This report demonstrates Cambridgeshire’s multi - agency approach to the management of sex offenders.

Cambridgeshire Constabulary is committed to supporting our partners in achieving this goal.

The past twelve months have seen a more focused approach to MAPPA and this has been strengthened by the

implementation of the Criminal Justice Act 2003. The introduction of Lay Advisors is a significant step towards

ensuring that our work is subject to independent scrutiny and we welcome and support this. Over the next 12 months
we will continue to strengthen the excellent relationship that we have forged with our partners to provide a co-ordinated

and professional approach to the management of those who present a risk to members of our community.

Julie Spence Acting Chief Constable Cambridgeshire Constabulary

This report covers the first full year where the Prison Service has undertaken the role as one of the three responsible

authorities in cooperation with our MAPPA partners. In Cambridgeshire the Prison Service representation is

undertaken by the Governor of Whitemoor prison near March. Active involvement in MAPPA allows the Prison
Service to develop one of its primary functions of protecting the public, with the Criminal Justice Act 2003 formalising

a framework for what had been existing practice in the management of dangerous offenders. This report evidences

the success of partnership working across criminal justice agencies in the county and is, hopefully, a reassurance to

the Cambridgeshire public that their safety is the key objective of these agencies.

Danny McAllister Regional Prison Manager


KEEPING
COMMUNITIES
SAFE
The 2004/2005 Annual Report of the
Multi-Agency Public Protection
Arrangements (MAPPA) highlights
the key achievements that have
been undertaken during the year,
and explains how the different
agencies are working together to
protect our communities.
The Criminal Justice and Court
Services Act 2000, amended by the
Criminal Justice Act 2003 (sections
325 – 327), required
Cambridgeshire Constabulary and
the National Probation Service,
Cambridgeshire, to place the local
protection arrangements on a
statutory footing. The Prison Service
has now joined this statutory
Responsible Authority.
3
KEY ACHIEVEMENTS
During the last 12 months there has been a range of significant new
developments that have improved the effectiveness of MAPPA in its work to
safeguard the public.
The work has been guided by the implementation of the CJ Act 2003 that
contained a provision to 'impose a duty to co-operate' on various agencies,
and these new structures with the MAPPA came into effect on 1st April 2004.
In 2004/2005 a programme of work has developed the new Memorandum of
Understanding as required under Further Guidance from the Home Office.
The memorandum replaces earlier protocols and has clarified our
understanding of the ‘duty to co-operate' by outlining each party's
responsibilities and duties towards the other. The memorandum includes
the agreement that agencies will:
- Share information to prevent serious harm to a third person
- Have representation at a senior level at the MAPPA Strategic
Management Board
- Attend MAPPA meetings as required and engage actively with the process
- Identify a named manager within each partner agency to oversee the
operation of the MAPPA arrangements
- Co-operate in the implementation of action plans for the management of
individuals who have been registered under the MAPPA
- Keep information secure
- Take part in an annual audit of this memorandum in order to ensure
it remains fully effective
- Be fair to fellow partners when dealing with the media
- Work to the principle that all personal data remains the property
of the disclosing agency
- Contribute resources, as negotiated, to support the operational
management of the MAPPA
- Commit appropriate resources for the implementation of MAPPA
action plans
- Provide advice where there may be no direct involvement but the
agencies' expertise may assist, e.g. in advising about how specific
services can be accessed.
4
THE ROLE OF THE PRISON SERVICE IN MAPPA - 2004/2005
The Prison Service, alongside Police
and Probation, is now part of the
Responsible Authority that is
established in each of the 42 Areas
in England and Wales. The
enhanced role of the Prison Service
in the MAPPA is in recognition of the
part it plays in protecting the public.
While offenders are serving their
custodial sentences, the Prison
Service also works with them to
address the causes of their
offending behaviour; and undertakes
further programmes of work to assist
their successful resettlement back
into the community.
As part of the Responsible Authority
the Prison Service is now
represented on each of the Strategic
Management Boards (SMBs). The
SMBs monitor and evaluate the
operation and performance of the
MAPPA in the 42 Police/Probation
Areas. The Prison Service estate is
configured differently and does not
conform to these designated areas.
The Prison Service estate, with its
establishments, is contained within
12 geographical areas and two
functional areas – the High Security
estate, and Contracted Prisons.
For this reason the Prison Service
representation on SMBs varies
across the country, although each
Prison Service Area Manager has
agreed with their SMB on how the
Service will contribute both
strategically and operationally to
their local 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 has resulted in:
- Prompt identification of MAPPA
offenders so that their details can
be used in sentence planning
arrangements, including
interventions to manage and
reduce risk
- Regular monitoring of the
behaviour of those assessed as
presenting the highest risk, and
sharing information with Police and
Probation colleagues
- All relevant risk management
information being provided to multi-
agency meetings which help plan an
offender’s release
- At least three months notification to
Police and Probation of the
expected release dates of those
offenders who have been referred to
the Multi-Agency Public Protection
Panel (MAPPP), and at least six
weeks notification of those being
managed at Level Two risk meetings
- 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 matters at both
area level and in every prison
establishment. These points of
contact are published together with
Police and Probation contacts to
ensure better communication across
the Responsible Authority.
The Prison Service is now an
integral part of the Responsible
Authority and plays a vital role in the
protection of the public.

LAY ADVISORS
This year has also seen the recruitment and appointment of Lay Advisors to the Strategic Management Board.
CAROLINE BOLTON-SMITH
As a newly recruited Lay Advisor to
the MAPPA I’d like to share my initial
experiences and views.
Recruitment consisted of multiple-
choice questions to test reasoning
skills and my attitudes to a wide
range of social and community
issues. The interview questions
probed for any immediate personal
reasons for wishing to contribute to
MAPPA (I have none) and my level
of commitment. This was followed
by an introductory weekend training
course in Birmingham with other Lay
Advisors from around the country.
We were a mixed group, ranging
from younger health-care workers
to full-time parents and older people
from professional backgrounds with
quite a few from a health/social
care setting.
The training weekend was an
opportunity to hear the differing
views of our role as Lay Advisors, as
each SMB runs slightly differently.
A particular issue was how, and the
extent to which we are accessible to
the public we are representing.
The talks provided really valuable
information about the research into
why and how the ‘person next door’
can take the path to becoming a
sexual offender against children.
Detailed discussions of how an
offender’s risk to the community is
assessed, and information about
how the majority of these offenders
can respond positively to treatment
programmes, provided both
considerable reassurance in the
process of MAPPA, and highlighted
the need for a greater number of
places for sexual offenders on
intensive residential treatment
programmes.
The importance of managed
inclusion of ex-offenders in the
community after treatment, with
close support and monitoring, rather
than exclusion and isolation, was
very persuasive and based on real
evidence from work in the UK and
other countries. For example we
heard about Stop it Now! a project
that runs a National telephone Help
Line (0808 1000 900) which aims to
prevent child sexual abuse. It
provides advice to adults who
recognise that they have an
unhealthy attraction to a particular
child, or to children in general,
and want to stop themselves
from causing harm. It also
provides advice to people who
have a concern about a friend or
family member.
5
I have attended one SMB meeting
so far and I am only just beginning
to find out how the Responsible
Authorities and local organisations,
with a ‘duty to cooperate’, work
together effectively. During my short
term involvement with the SMB, the
lead Police officer has already been
moved on and this has given me an
early warning of some of the
challenges the MAPPA face. I am
concerned that lack of continuity of
knowledge and focus within any one
of the Responsible Authorities will
make the role of Lay Advisors even
more difficult.
I have a background in science
research and experience of
contributing to Annual Reports that
contain complex sets of data.
I feel that I will bring a critical and
questioning approach to my role that
I will direct towards the procedures
that the professionals perhaps take
for granted. I want to ensure that the
best possible choices are made to
reach the balance between
individual rights and public safety -
based on all the available evidence,
and contributing to the clarity of the
information and relevance of the
annual MAPPA report to the public.
With further national training being
planned and local training being
arranged, I am able to look forward
to performing my role of Lay Advisor
with increasing effectiveness in
the future.
6

Members of the public can send comments and questions about the MAPPA
to the Lay Advisors who can put forward these views during the meetings of
the board.

A selection of the comments received will also be featured in next year’s Annual Report.
Lay Advisor – MAPPA, c/o National Probation Service, Cambridgeshire,
1 Brooklands Avenue, Cambridge CB2 2BB
 7

HOW THE MAPPA OPERATES LOCALLY

Cambridgeshire has been at the forefront of partnership work that

manages high risk offenders. The first Dangerous Offender
Conferences were held in 1997 with the establishment of a pilot
project in Peterborough.

Police and Probation Officers were able to come together to discuss and monitor the cases of
offenders who had committed serious sexual or violent offences. The two criminal justice agencies
were later joined by Social Services and Housing representatives. The pilot scheme was further
extended to include the two other Police divisions.
Current legislation ensures the highest risk offenders are formally discussed at regular Multi-Agency
Public Protection Panels (the MAPPPs).

The Police and Probation Services are also required to:

- Establish strategic management arrangements for reviewing and

monitoring the effectiveness of the MAPPA

- Establish systems to ensure that only those “critical few” offenders

who pose the greatest threat to the public are referred to MAPPPs

- Establish systems for information sharing and inter-agency

collaboration in respect of all relevant offenders

- Consider resource allocation and the need for multi-agency training

- Develop strategies for community and media communications

- Publish an Annual Report describing local MAPPA, including

statistical information.
8
The MAPPA manages a three tier system that ensures that the
most dangerous offenders receive the greatest degree of scrutiny
and oversight.
Level One
Offenders at this level are usually
classed as at a low or medium risk
of re-offending. The large
proportion of all MAPPA offenders
are likely to be managed at Level
One by one agency without
actively or significantly involving
other agencies.
Level Two
The management of offenders in
this category is handled at Local
Risk Management Meetings where
the active involvement of more
than one agency is required in
managing the risk. The level of risk
is more complex than Level One,
but does not require the intensive
supervision of the Multi-Agency
Public Protection Panel (MAPPP).
Level Three
The ‘critical few’ are offenders who
are assessed as being at high or
very high risk of causing serious
harm and are managed by a range
of agencies sitting on the Multi-
Agency Public Protection Panel.
This small group presents risks
that can only be managed by a
plan that requires close
cooperation at senior level or
where the case is exceptional
because of media scrutiny and/or
public interest in the management
of the case.
The MAPPA in Cambridgeshire has
been developed through the
appointment of a MAPPP Manager,
a Senior Probation Officer, who
was seconded to work at Police
Headquarters. The location of the
MAPPP Manager with the Police
has been a major success in
developing information sharing
between Police and Probation.
The post of the MAPPP Manager
is jointly funded by the two
agencies, as is the position of
MAPPA Coordinator. The
coordinator is an administrative
role that oversees the organisation
of formal meetings as well as
producing high quality minutes and
risk management plans.
Formal meetings are held regularly
in each of the Police Divisions. The
manager chairs the meetings
where members concentrate on
offenders living in the local
community, or about to be released
from prison. These meetings are
called Local Risk Management
Meetings and are at Level Two.
Level Three meetings for the
“critical few” are called on an
occasional basis when cases arise.
In 2004/5 only three offenders
were managed for a time at this
level. This is in line with Home
Office advice that only the “critical
few” should be referred to the
Level Three Multi - Agency Public
Protection Panel.
 9

WHO’S WHO IN MAPPA

Protecting the Public from sexual and violent offenders is best achieved by effective joint
working between all the relevant statutory and voluntary bodies. The private sector can also
have a role to play. A range of agencies has joined Cambridgeshire Police, the National
Probation Service, Cambridgeshire and the Prison Service in working together under
the MAPPA.

The following (‘duty to co-operate’ agencies) are signing the new Memorandum of
Understanding:
Cambridgeshire Social Services and Office of Children and Young People’s Services
Peterborough Education and Children’s Department and Peterborough Adult Social Care
Peterborough Youth Offending Service
Cambridgeshire Youth Offending Service
Peterborough City Council Housing Department
Cambridge City Council Housing Department
East Cambridgeshire District Council Housing Department
South Cambridgeshire District Council Housing Department
Fenland District Council Housing Department
Huntingdon District Council Housing Department
Hereward Housing Association Ltd
Huntingdonshire Housing Partnership
Muir Housing
Nene Housing Society
Cambridgeshire & Peterborough Mental Health Partnership NHS Trust.
Axiom Housing Society
Warden Housing Association
Cross Keys Housing Association
Premier Monitoring Services
Primary Care Trusts for Huntingdonshire, Greater Peterborough, East Cambridgeshire &
Fenland, Cambridge City & South Cambs District
Jobcentre Plus.

VOLUNTARY
The following voluntary agencies are also working with the MAPPA:
Bridgegate
Turning Point
Drinksense
Cambridge Cyrenians
10

Agency representatives attending a Level Two meeting that occurs monthly in all
three police divisions and is chaired by MAPPP Manager Carol Ashford.

Representatives from the Police, housing, social services and mental health attend
each meeting. Relevant case managers and other workers. who are actively
involved with the cases being discussed, are also invited to take part.

Decisions are taken concerning new cases, and members can review the events
and progress of on-going work with offenders previously considered at the
Level Two meeting.
 11

SENIOR PROBATION OFFICER

CAROL ASHFORD
ORGANISATION: Cambridgeshire Probation Area
TITLE: MAPPP MANAGER

As the MAPPP Manager for Cambridgeshire I chair meetings across the county.
I am always impressed by, and grateful for, the commitment shown by my colleagues
in the various agencies. I am convinced that by working together, and remaining
focused on practical risk management, we can continue to make an important
contribution to the safety of our local communities.

DETECTIVE INSPECTOR DAVE GRIERSON

ORGANISATION: Cambridgeshire Police.
TITLE: Divisional Intelligence Manager, Public Protection Unit

A single agency would not have the necessary resources to be able to deal with the vast
majority of the people that are MAPPP registered. We are presented with some quite
complex cases that require input from many of the organisations represented.
There is often a preventative element that is built into the work with the offender.
For example we may propose that the individual attend a specific Probation
programme that has been developed to target offending behaviour.
Working within the MAPPA means that we make a collective agreement that individual
agencies adhere to. No-one wishes to let down the process by failing to deliver.

DETECTIVE CONSTABLE MARTIN WILLIAMS

ORGANISATION: Cambridgeshire Police.
Working in the Public Protection Unit

My responsibilities involve the monitoring of sex offenders and other dangerous offenders.
This approach has to be extremely thorough.
We are monitoring just about every aspect of their lifestyle including who they speak to,
who are their associates, what are the patterns and trends that are emerging in their lives.
Our information helps inform the decisions that are taken on individual offenders.
There are four categories of risk: low risk, medium, high and very high and the selected
rating determines the amount of resources that are allocated to an individual offender.
12

PROBATION OFFICER ADRIENNE DRURY

ORGANISATION: Cambridgeshire Probation Area
TITLE: Probation Officer

I attend meetings when I am supervising a case requiring a high level of intervention from
different agencies. I can up-date members on any new developments.

PROBATION OFFICER JACIE DRABBLE

ORGANISATION: Cambridgeshire Probation Area
TITLE: Probation Officer

I am a newly qualified Probation Officer and I am co-working the case of a dangerous

offender with a more experienced colleague. I attended the meeting to improve my
understanding of how the MAPPA works.
I have been an observer at other panel meetings and seen how the different agencies
work so well together. The notes that are circulated afterwards are very useful.

LINDA PATRICK
ORGANISATION: Forensic Mental Health and Court Diversion Team
TITLE: Social Worker

Our role is to carry out assessments on individual offenders to ascertain their mental
health requirements following their release into the community. This may involve
arranging the required medical support and reliable access to medication.
We seek to manage and minimise their level of risk in the community.

DETECTIVE CONSTABLE ANDY MULLIGAN

ORGANISATION: Cambridgeshire Police.
Working in the Public Protection Unit

My first responsibility is to maintain the Cambridgeshire Sex Offender Register within

VISOR (Violent and Sex Offender Register), a national computer system that has
been rolled out nationwide to all Police forces. Information is regularly updated on
each registered individual.
My second responsibility is to work in partnership with the National Probation Service
and the Prison Service to manage the risk that certain individuals pose to the public -
and evolve an action plan that meets these concerns. For example, I may receive
a 90-day notification from the Prison Service that a potentially dangerous prisoner is
going to be released. We have to consider how to work with and supervise this offender
to offer the maximum protection to the public.

CONTRIBUTING TO THE MAPPA PROCESS
NATIONAL PROBATION SERVICE,
CAMBRIDGESHIRE
The National Probation Service,
Cambridgeshire, makes a wide
ranging contribution to the work of
the MAPPA. This includes:
- Initial assessment of offenders who
come before the courts for offences
of sex or violence. Probation staff
use a standard assessment tool,
the Offender Assessment System
(OASys). This assessment process
also enables the report writer to
determine an offender’s suitability
to attend the Sex Offender
Treatment Programme
- Supervision and management of
offenders placed on community
orders, including action to ‘breach’,
or in other words, to return an
offender to court or prison who has
failed to comply
- Delivery of Specialist Accredited
Programmes to address offending
behaviour, including the nationally
recognised “Thames Valley” Sex
Offender Treatment Programme
- Work with prisoners before their
release, and the supervision and
management of offenders on licence
living in the community, including
taking necessary action to recall
individuals back to prison
- Provision of accommodation in
National Probation Service Approved
Premises for offenders who need an
enhanced level of supervision.
13
CAMBRIDGESHIRE PRISON SERVICE
CONSTABULARY The Prison Service has become part
The Cambridgeshire Constabulary of the Responsible Authority for the
contributes to the MAPPA through MAPPA, and there is good liaison
investigating crimes that come to and established information sharing
light through the information sharing with HMPs Littlehey and Whitemoor.
activities of the MAPPA and taking Similar liaison systems are being
appropriate action. This includes: developed with the newly opened
prison in Peterborough, which is run
- Having dedicated Sex and by UKDS. This prison will eventually
Dangerous Offender Intelligence house the majority of
Officers on each of the three Cambridgeshire offenders,
Divisions who focus on public and the work to establish protocols
protection and the management of for information sharing and develop
high risk offenders sound risk management practices
will be an essential priority in the
- Using a nationally agreed Risk year ahead.
Assessment Tool (Risk Matrix 2000)
to prioritise Registered Sex
Offenders and visit them according
to agreed policy
- Having a dedicated officer holding
the constabulary responsibility for
the new National Register of Sex
Offenders (VISOR) and locating this
officer with the MAPPP Manager to
ensure prompt and effective
information sharing
- Jointly chairing the Strategic
Management Board and jointly
funding the post of the MAPPP
Manager and the MAPPA
Coordinator with the Probation
Service.
14
SOCIAL SERVICES
The Cambridgeshire MAPPA has
links to the Cambridgeshire County
Council and Peterborough City
Council. Both councils are
committed to creating safer
communities by working in
partnership with statutory authorities.
Social Services carry out serious
case reviews in accordance with the
provisions laid down in Working
Together (DoH 1999).
Social Services provides a
comprehensive Children’s Protection
Training Programme for practitioners
whose work involves the
safeguarding of children’s welfare.
Child Protection
Child Protection is a lead
responsibility for the councils.
Their responsibilities are undertaken
in partnership with the agencies
that make up the Cambridgeshire
and Peterborough Area Child
Protection Committees.
These responsibilities include :
- Undertaking enquiries with the
Police into allegations of abuse
of children
- Organising multi-agency child
protection conferences
- Providing key workers for all
children on the Child Protection
Register
- Safeguarding and promoting the
welfare of children in need
- Ensuring with Area Child Protection
Committee partners that the
procedures for safeguarding the
welfare of children are up to date
and effective
- Promoting “Keeping Children Safe”
work in all child care settings
e.g. schools, pre-school settings,
after school clubs
- Ensuring safe recruitment practices
are implemented across the councils
and promoted in all childcare
settings.
Protection of Vulnerable Adults
from Abuse
Cambridgeshire Adult Services and
Peterborough Adult Social Care
have the lead role in ensuring that
statutory agencies work in
partnership to protect vulnerable
adults from abuse.
The Cambridgeshire and
Peterborough Vulnerable Adult
Protection Committees bring
together representatives from the
statutory, voluntary and private
sectors responsible for working with
and providing services for adults.
The responsibilities of the
committees include:
- To develop, implement and monitor
local policies, guidance and
procedures for inter-agency work
- To improve ways of working in the
light of national and local experience
and research
- To improve the quality of adult
protection work through further
development of training
opportunities and programmes
- To ensure agreement and
understanding across agencies
about operational definitions and
thresholds for intervention
- To audit and evaluate how well
local services work together to
protect vulnerable adults.
YOUTH OFFENDING SERVICES
These services operate in
Peterborough and Cambridgeshire
and have the primary aim of
preventing youth offending amongst
10 – 17 year olds. The Youth
Offending Services are statutory
partnerships led by the local
authorities and involve a multi-
agency approach, which includes
the Police, Probation, Health and
voluntary sector services.
Programmes of supervision and
support are developed and delivered
to offenders in the community and in
youth offender institutes. There is a
growing preventative element that
provides for other agencies to
intervene with younger children.
Only a few young offenders will
come to the attention of the risk
management arrangements, but
those that do, will have difficult and
complex needs.
 15

The Multi-Agency Public Protection Arrangements give a very

comprehensive view of the individual offenders. Housing is an important part
of any supervision package. Our department is very involved in discussing the
accommodation needs of offenders and working with other agencies, such as
the Police, to see if they are suitable to be offered housing.
SARAH HEBBLETHWAITE
PETERBOROUGH CITY COUNCIL
16
CONTRIBUTING TO THE MAPPA PROCESS
STATUTORY AND VOLUNTARY
HOUSING
One of the most difficult and
challenging issues surrounding
public protection is the provision of
accommodation for released
prisoners. The number of statutory
and voluntary housing agencies that
have signed up to the MAPPA
Memorandum of Understanding
illustrates the importance of finding
suitable accommodation. Many
serious offenders are initially
released to National Probation
Service Approved Premises.
These places are limited and in high
demand. Offenders cannot stay in
Approved Premises indefinitely,
and will eventually move on to
further suitable housing at the
appropriate time.
A great deal of work is undertaken to
place offenders as sensitively and
safely as possible in local
accommodation. Housing agencies
rely on an individual’s risk
assessment report and other
information to help them make
informed and responsible decisions.
Supporting People legislation has
created opportunities to provide
accommodation support through
workers that will keep in regular
touch with offenders in community
provision. These workers provide
another way of monitoring offenders’
activities and helping them lead
responsible lives.
Bridgegate and Turning Point have both signed up to the original protocol. The two agencies have agreed to work on
a case by case basis with the MAPPA. Drinksense and Cambridge Cyrenians have become involved at an individual
case level by providing support for individuals that contributes to risk management plans.
HEALTH SERVICES
The involvement of health care
professionals is highly beneficial in
the work of the MAPPA. The
Cambridgeshire & Peterborough
Mental Health Partnership NHS
Trust has signed up to the original
protocol and will sign the new
Memorandum of Understanding.
A local Community Psychiatric
Nurse (CPN) or Psychiatric Social
Worker now attends the Local Risk
Management Meetings (LRMM) in
each of the Police areas. The
involvement of the CPN is proving
invaluable in ensuring there are
good practical arrangements for
newly released prisoners to receive
their prescriptions for medication, or
helping with quick access to
psychiatric assessment. Work on a
multi-agency basis is also targeting
the sizeable group of offenders who
exhibit worrying, and sometimes
dangerous behaviour, who “fall
between” the criminal justice and the
mental health system. Further work
is being done on a new generation
of protocols between the
Cambridgeshire NHS Mental Health
Trust and the other agencies under
the MAPPA.
Primary Care Trusts (PCTs) are now
signatories to the new Memorandum
of Understanding. MAPPA ensures
information is sent to GPs as
necessary to inform them of
particular risks associated with
their patients. There is very good
communication between the
local GP practice and those
responsible for offenders in
Approved Premises provision.
VOLUNTARY AGENCY ROLES
Bridgegate
Bridgegate provides advice,
information and counselling to drug
users, concerned others and
professionals. They have specialist
projects for young people and drug
using parents. Bridgegate also
manages the Communities against
Drugs Project that works closely with
the Police and communities.
They also work closely within the
Child Protection system and with
many statutory and non-statutory
partners. They provide services to
the Probation Service, Peterborough
Youth Offending Team and
Cambridgeshire Youth Offending
Service.
Turning Point
Turning Point is a leading national
charity that helps the socially
excluded build more independent
lives. The organisation provides
locally tailored services helping
people recover from the effects of
substance misuse and provides care
and support for individuals with
mental health problems or learning
disabilities. There are projects in
Cambridge and in Huntingdon, and
since 1998 a service has been
provided for the whole of Southern
Cambridgeshire. Both projects work
closely with and alongside statutory
agencies, assisting them in the
discharge of their responsibilities
under the Mental Health Act and the
NHS and Community Care Act. They
also have a history of liaison with
the Probation Service, working
with offenders who have mental
health problems.
 17

HELPING VICTIMS OF CRIME

The Criminal Justice and Court Services Act 2000, which set up the MAPPA, also consolidated earlier developments
concerning victims of crime. The Probation Service offers face-to-face contact with a member of the service to the
victims of all those sentenced to 12 months or more for crimes of sex or violence.

The purpose of the Probation Service's work with victims is to:

- Provide victims with general information about criminal justice and custodial processes

- Consult victims about whether they wish to provide information relevant to the consideration of any requirements or
licence conditions placed upon the offender on his or her release from custody

- Consult with victims about whether they wish to be informed about those licence conditions

- Transmit any such information put forward by victims to the authority considering the offender's conditions of release

- Inform the victim of any conditions or requirements attached to the offender's release, which are relevant
to contact with the victim or his family, and any other information.

The decision to engage with the Probation Service and, at what stage, is made by the victim.

One of the most important tasks involving the MAPPA is to ensure that past victims are not put at risk again when an
offender is released. Victim issues are featured as part of every risk management plan.

The Probation Service’s contact with victims of crime is primarily about the giving and receiving of information. There
are other agencies involved in assisting victims, including Victim Support, who offer a free and confidential service,
whether or not a crime has been reported. Trained staff and volunteers at local branches offer information and
support to victims, witnesses, their families and friends. Victim Support provides the Witness Service that is based in
every criminal court in England and Wales, and offers assistance before, during and after a trial.

National Victim Support line 0845 303 0900

Prison Service Victims’ Helpline 0845 758 5112

More information about local contact points for Victim Support services can be found at the end of this report –
Appendix A.
18

VICTIM’S VIEWPOINT
Mother of two, Jane is trying to rebuild her life. Her former partner was a persistent
offender who was released from prison and was on licence until July 2005. He was found
guilty of a number of assaults against Jane.

She said: “I don’t want him to have any contact with the children. I have an alarm in the
house that is connected to the Police system. It makes me feel a bit safer. I have been kept
informed of his progress, and I knew when he was to be released.

“I am contacted when his case is being discussed, and although they don’t tell me what is
said at the meetings, I am told of any changes to his circumstances. It is important for me to
know what is happening.”

RISK MANAGEMENT
There are many facets to the daily
work of the MAPPA partner agencies
regarding their involvement with
sexual and violent offenders.
Accurate and reliable risk
assessment lies at the heart of the
effective management of offenders.
All offenders under Probation
supervision in Cambridgeshire, or
released to the service on licence
following a prison sentence, are
subject to an initial assessment of
their risk using the OASys
assessment device. Any offenders
assessed as “Very High Risk of
Harm” must be referred to the
MAPPP Manager for discussion at a
formal meeting (generally Level Two,
occasionally Level Three).
Those who pose a “High Risk of
Harm” must be referred to the
Probation Officer’s Line Manager
for a discussion about MAPPA
referral. Probation Officers also use
a more specialised assessment
device – called Risk Matrix 2000 –
to assess the risk of reconviction of
Sex Offenders.
Police also use Risk Matrix 2000 to
assess all sex offenders required to
register with them. All sex offenders
who score as “Very High Risk” are
referred to the MAPPP Manager as
a matter of policy, with “High Risk”
being considered with the local
inspector as a potential for referral.
19
Risk assessment at a formal
meeting - a LRMM or a MAPPP -
is when the offender is discussed
under the arrangements. This
process ensures the risk
assessment by the referring agency
is updated after information has
been shared by the other
participating partners.
The agencies involved will go on to
set up a risk management action
plan - and decide how often it
should be reviewed.
20

“The panel meetings enable partnership members to share information under

our confidentially agreements. This prevents an offender trying to play one
agency off against another. We are all fully informed. I know that our joint
work is having a positive impact on offenders’ lives and reducing the risk to
the public.”
DETECTIVE CONSTABLE MARTIN WILLIAMS
CAMBRIDGESHIRE POLICE.
 21

EXAMPLES OF MAPPA CASES THAT HAVE BEEN SUCCESSFULLY MANAGED

This first case shows how the agencies worked together to reduce the risks posed by Offender A who was
nearing the end of a seven year sentence for manslaughter. He was initially dealt with as a Level Three
MAPPP case.
Concern about Offender A increased
as he came to the end of his
sentence. His behaviour had been
aggressive and non-cooperative
towards prison staff and other
prisoners. A direct assault on a
governor and reports of threats
towards family members led to a
referral to the prison psychiatrist
who said Offender A had a Paranoid
Personality Disorder. The
recommendation was that he should
be closely monitored on release.
There was no release address for
Offender A and a further Level Three
MAPPP meeting was called.
Members agreed that an element of
his behaviour could be linked to his
anxiety about release. Offender A
and his victim had been involved in
the drug scene, and there was the
real threat that he could be the
victim of a revenge act. Police and
Probation undertook a joint visit and
discussed this issue with him –
which began to secure his
cooperation. A Consultant Forensic
Psychiatrist visited Offender A who
assessed his need for medication
and ongoing mental health care in
the community. The Consultant
Forensic Psychiatrist also arranged
a referral to community drug
services. Offender A was told he
was the subject of information
sharing and risk management at
Level Three.
On his release Offender A stayed
briefly in bed and breakfast
accommodation before one of our
housing partners offered a
temporary one bedroom flat in an
area some distance from the victim’s
family and associates.
The threats to his family had no
substance, and in fact the family
was subsequently able to offer some
practical support. On his release the
Police assisted in getting Offender A
several appointments with relevant
professionals, and Offender A began
to co-operate with them. The Police
built on this co-operation by visiting
his new address and keeping him
under a form of surveillance. After
reviewing the situation, the MAPPP
decided that the work so far had
reduced the imminent risk of serious
harm that he posed. Offender A’s
case was moved to Level Two
monitoring, where ongoing
information sharing ensured that any
concerns could be dealt with
promptly. He has not re-offended.

Most cases do not need to be referred to a Level Three MAPPP even when they pose considerable risk
issues. Even serious sex offenders can be dealt with successfully at the Local Risk Management Meetings
especially when the Police make full use of Sex Offender Prevention Orders. Offender B is an example of a
sex offender who is being successfully managed in this way.

Offender B has an offence of
Indecent Assault against his step-
daughter for which he served a
sentence of imprisonment. Whilst on
licence he completed a Sex
Offender Groupwork Programme to
target his offending behaviour.
Offender B has a degree of learning
difficulty and although he attended
and participated in the programme,
there were concerns that he had not
fully understood the issues, and
could not see how the new
approaches could control his
behaviour. Offender B left his
partner and became involved with
the wife of another sex offender who
had children. She became pregnant.
Social Services were heavily
involved with both families, and it
became apparent that although he
had agreed to restrictions on
contact, he was breaking them with
the connivance of the new partner.
This lead to an arrest for failing to
register his address (as a
Registered Sex Offender) and a
referral to the MAPPA. Social
Services commissioned a major
assessment on Offender B that
concluded that the risk of further
sexual offending against children
would be high.
Through the activities of the MAPPA,
the Police have enough information
to apply for a Sex Offender
Prohibition Order.
Included in the conditions are:
- Not to seek or initiate contact or
communicate whether physical or
verbal, directly or indirectly with any
female under the age of 16
- Not to associate or befriend a
female under the age of 16
- Not to visit or reside in any private
dwelling where a female under 16 is
present
- Not to befriend or become involved
with any female who is the parent or
guardian of any female under 16.
There are also specific conditions in
relation to the children of both
families. Offender B continues to be
monitored and if he breaches any of
these conditions of the Sex Offender
Prevention Order, he risks receiving
a maximum prison sentence of
5 years.
22

ON RELEASE INTO THE COMMUNITY

In some cases repeat offending is very likely and the surveillance and supervision is planned accordingly.
The third case history updates a report that was featured in last year’s Annual Report, and illustrates how
the work of the MAPPA sometimes involves on-going monitoring over a number of years.
Last year we reported how Offender Once again he ignored licence The prison shared information about
C became obsessed with a girl who conditions on release, and after a his continuing refusal to discuss the
did not want a relationship with him. general alert in the relevant area, he problem, and his patterns of
Over time his behaviour became was arrested and charged with a behaviour such as pacing up and
more and more threatening until he further breach of the Restraining down his cell. A Probation Officer
was charged with harassment and a Order. A Psychiatric Report was visited Offender C and he indicated
Restraining Order was issued. requested and the Consultant an increased willingness to
Breach of the order led to a prison Psychiatrist asked for a remand into co-operate on his release. His
sentence but he refused to a secure medical unit to observe agreed licence conditions included
cooperate with licence conditions him and do a full assessment. living in Approved Premises,
and again tracked her down. He The professional view was that avoiding specified exclusion zones,
broke into the home where she was Offender C did not have a mental and his victim was given protection.
temporarily living. Offender C was illness, but he could be helped if he Offender C managed to comply for a
sent back to custody, and was would agree to cooperate. couple of weeks but a failure to
referred to the MAPPA at Level Two. Although Offender C took the first return to the hostel at curfew time
A plan was put in place for his steps towards discussion of his led to an immediate recall. He was
subsequent release that involved a problems, he would not agree to seen near his victim’s home and the
major protection package for his further work. He thought that prison Cambridgeshire Police helicopter
victim, and included work to engage would be an easier alternative in used its night vision camera to
with him, and help Offender C to see relation to continuing to live where locate him - and he was arrested.
how damaging his actions were. he wanted. He was given a two year
sentence and monitored throughout
his sentence.

The Thames Valley Sex Offender Groupwork Programme (TV-SOGP) has been developed by
international experts in the field of sex offender research. This programme has been designed to meet the needs of
sex offenders living in the community who are subject to supervision either directly from the court or following release
from prison.

The TV-SOGP is essentially for males over the age of 21 who have committed any sexual offence, including internet
offences. The treatment programme is based on structured work in a group setting, with additional work being
undertaken with individual offenders where necessary. TV-SOGP uses cognitive behavioural methods to challenge
how the thoughts, feelings and emotional responses of offenders link to their abusive behaviour.

Key elements of the programme include:

- Risk assessment and management

- Making sex offenders aware of the damage caused to their victims
- Challenging denial by encouraging offenders to take full and active responsibility for their sexual offending behaviour.

UNDERSTANDING THE STATISTICS
STATISTICS – what do
they show about the work
of the MAPPA in
Cambridgeshire?
The three case examples give a
snapshot of how offenders are
monitored through the MAPPA.
They show how practical and
focused the work has to be, and
how quickly actions are taken. The
number of offenders dealt with is
predicted to rise year on year, in line
with the overall growth of the
number of registered sex offenders.
Many sex offenders are registered
for life so there will be a cumulative
effect to the total. The following
section of the report gives a detailed
breakdown between cases managed
at Level Two (the Local Risk
Management Meeting) and Level
Three (the Multi - Agency Public
Protection Panel).
This year the figures show that the
number of Registered Sex Offenders
in Cambridgeshire, who all come
under the MAPPA, stands at 353 as
opposed to last year’s total of 322.
The number of those (excluding
Registered Sex Offenders) who had
a 12 month plus sentence for a
sexual or violent offence, and who
were released into the community,
was 192 – almost identical to the
previous year (190).
There were 13 “other offenders”
identified by the agencies as having
a conviction for an offence that
indicated they were capable of
causing serious harm, and referred
to the Level Two Meetings. In total
there were 558 offenders (as
opposed to 540 in the previous year)
who came under the totality of the
MAPPA of whom a relatively small
number - 98 (17.6%) were
considered to pose a significant risk
of harm that merited referral to the
formal procedures for discussion
and risk management. Nearly all of
these offenders were dealt with at
Level Two. There were only three
Level Three cases.
The statistics show that 15 sex
offenders were prosecuted for
breach of their requirement to
register. They also demonstrate that
recall is used to remove offenders
from the community for behaviour
that has breached their licence
conditions – such as non
compliance with a hostel curfew. On
May 1st 2004 Sex Offender
Prevention Orders (SOPOs) were
introduced which replaced the
previous Sex Offender Orders.
23
As for Offender B, in the case
examples, these can be used to set
specific conditions to prohibit
behaviour that in the past has led
to offending.
Eight of these orders were applied
for and seven interim orders were
obtained - all of which are expected
to eventually result in full orders
being made. A new notification order
enables the Police to apply for
registration in this country of an
offender who has committed a
sexual offence abroad. One offender
is now registered in this way.
In the last year 20 offenders, out of
the 98 managed through the
MAPPA, were recalled. The number
was just over 20% - and no one
committed a serious sexual or
violent offence. Our aim is to
manage risk as actively as possible,
and to remove offenders from the
community when justified to prevent
the commission of further offences.
Overall the work of the MAPPA can
be shown to have made an
important contribution to “Keeping
Communities Safe”.
24

STATISTICAL INFORMATION

No. of Offenders

1. Category 1 MAPPA offenders: Registered Sex Offenders (RSO)

i. The number of RSOs living in Cambridgeshire on 31st March 2005. 353

i(a) The number of RSOs per 100,000 head of population. 43

ii. The number of sex offenders having a registration requirement who 15

were either cautioned or convicted for breaches of the requirement,
between 1st April 2004 and 31st March 2005.

iii. The number of (a) Sexual Offences Prevention Orders (SOPOs) (a) 8
applied for (b) interim SOPOs granted and (c) full SOPOs imposed (b) 7
(c) 5
by the courts in Cambridgeshire between 1st May 2004 and
31st March 2005.

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

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

2. Category 2 MAPPA offenders: Violent offenders and Other Sexual

offenders (V&OS)

vi. The number of violent and other sexual offenders (as defined by 192
Section 327 (3), (4) and (5) of the Criminal Justice Act 2003)
living in Cambridgeshire between 1st April 2004 and 31st March 2005.
 25

No. of Offenders

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

vii. The number of ‘other offenders’ (as defined by Section 325 (2)(b) of 13
the Criminal Justice Act (2003)) between 1st April 2004 and
31st March 2005.

4. Offenders managed through Level 3 (MAPPP) & Level 2

(local inter-agency management)

viii.The number of MAPPA offenders in each of the three Categories Level 3 Level 2
(i.e. (1)- RSOs, (2)- V&O and (3)- OthO above) have been managed RSO 1 48
through the MAPPP (level 3) and through local inter-agency risk V&O 1 35
management (level 2) between 1st April 2004 and 31st March 2005. OthO 1 12

ix. The number of the cases managed at levels 3 or 2 Level 3 Level 2

(a) who were returned to custody for breach of licence a) 1 19

(b) who were returned to custody for breach of a Restraining Order or b) 0 3
Sex Offender Order
(c) charged with a serious sexual or violent offence. c) 0 0
26

STRATEGIC MANAGEMENT BOARD

The original steering committee set up to develop the MAPPA was formally reconstituted as the Strategic
Management Board in October 2003. The meeting is jointly chaired by Margaret Lowe, Assistant Chief Probation
Officer, Detective Superintendent Garry Swaine for Cambridgeshire Constabulary and Martin Lomas, Governor HMP
Whitemoor. The function of the Board is to:

- Monitor (on at least a quarterly basis) and evaluate the operation of the MAPPA, particularly that of the MAPPPs
- Establish connections with other public protection arrangements such as Area Child Protection Committees, local
Crime and Disorder Partnerships and Local Criminal Justice Boards that support the operation work at the MAPPA
- Prepare and publish the Annual Report and promote the work of MAPPA in the area
- Plan the longer term development of the MAPPA in the light of regular reviews of the arrangements and with respect
to legislative and wider criminal justice changes
- Identify and plan how to meet common training and developmental needs of those working in the MAPPA.

Membership of the Strategic Management Board includes Senior Managers from Health, Mental Health Services,
Housing, Adult Social Care Services, Children’s Services, Jobcentre Plus, Electronic Monitoring Services and
Youth Offending Services as well as Police, Probation and the Prison Service. We also have representatives
from Education and from Victim Support and have recruited two Lay Advisors (members of the public) in line
with national developments.
 27

CONTACTS

Cambridgeshire
Multi - Agency Public Protection Arrangements
National Probation Service, Cambridgeshire

Matthew Ryder Probation Headquarters

Assistant Chief 1 Brooklands Ave
Probation Officer Cambridge
CB2 2BB
01223 712345

Carol Ashford Cambridgeshire Constabulary HQ

Multi - Agency Hinchingbrooke Park
Public Protection Panel Huntingdon
Manager PE29 6NP
0845 4564564

Cambridgeshire Constabulary Cambridgeshire Constabulary HQ

Garry Swaine Hinchingbrooke Park
Detective Superintendent Huntingdon
PE29 6NP
0845 4564564

Prison Service HMP Whitemoor

Martin Lomas Longhill Road
Governor March
Cambs
PE15 OPR
01354 602350
28

APPENDIX A

Victim Support – information and contact details

CAMBRIDGE & ELY VICTIM SUPPORT

Unit 4
Dales Brewery Tel: 01223 329000
Gwydir Street
Cambridge
CB1 2LJ

FENLAND VICTIM SUPPORT

March Business Centre
Old School Buildings Tel: 01354 658231
Dartford Road
March
PE15 8AN

PETERBOROUGH VICTIM SUPPORT

252a Lincoln Road Tel: 01733 349897
Millfield
Peterborough
PE1 2ND

HUNTINGDON VICTIM SUPPORT

Primrose Centre Tel: 01480 417600
Primrose Lane
Huntingdon
PE29 1WG

All general pictures featured in this report have been used to give a pictorial
representation of the work of the MAPPA in Cambridgeshire. No person shown in
street scenes or pictures of buildings are connected with the MAPPA.