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Staffordshire

Multi-Agency Public Protection Arrangements


Annual Report 2002–3
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Contacts

Staffordshire Probation Area Address Phone

Mr. David Walton University Court, 01785 223416


Chief Officer Staffordshire Technology Park,
david.walton@staffordshire.probation.gsx.gov.uk Beaconside,
Stafford.
ST18 0GE

Mrs. Muriel Lawrence


Assistant Chief Officer
muriel.lawrence@staffordshire.probation.gsx.gov.uk

Staffordshire Police Address Phone

Huw Jones M.A. Police Headquarters, 01785 232219


Assistant Chief Constable Cannock Road,
Stafford.
ST17 0QG

Paul Davey Police Headquarters, 01785 232535


Detective Superintendent Cannock Road,
Stafford.
ST17 0QG
mappa@staffordshire.pnn.police.uk

1
Foreward

This is the second annual report of the Staffordshire Multi Agency Public Protection Panel
(MAPPP). It highlights the safeguards put in place to protect the people of Staffordshire from
violent and sexual offenders and describes the processes used to manage those risks.

This year the total number of sex offenders living in the county has increased from 320 (in
2001-2002) to 363. This is to be expected. As new offenders join the sex offenders’ register,
90% of those previously registered remain under supervision for statutory periods of five
years, ten years or life, dependant upon the severity of their crime and their age at
conviction/caution. This remains a tiny percentage of the Staffordshire population.

Lower risk offenders make up the bulk of this register – two thirds of those will be registered
for ten years or less. These statutory periods mean that fewer offenders leave the register –
around 8% per year – while new offenders are registered at a rate of 20%. This increase has
been boosted by proactive police campaigns, such as those focused on the purchase of
illegal web-based materials.

This increasing cumulative total is not a bad thing. It means that MAPPPs, which were
established as part of the Court Services and Criminal Justice Act 2000 and boosted by the
Sex Offenders Act 1997 under which the register was created, can properly manage those
who may pose a risk – however small.

MAPPP membership is drawn from various social agencies – the police, probation service,
local authorities and health and housing services – to ensure that all community issues are
taken into consideration in the management of sexual, violent and other potentially
dangerous offenders.

Those on the sex offenders’ register have committed offences ranging from possession of
indecent photographs to sexual assault. Those within the violent offender category have
convictions ranging from causing actual bodily harm to murder. Headline-grabbing sex
offences such as attacks by paedophiles or child murders are extremely rare and those
perpetrators would represent only a tiny proportion on any register.

MAPPPs are all about prevention. Assessing and managing the risk of sex and violent
offenders provides a layered approach, from prison release to treatment and supervision.
We recognise that these types of offenders can cause great distress and concern to our
communities but this co-ordinated multi-agency approach tackles the risk they pose to
protect the public.

John Giffard CBE, QPM David Walton


Chief Constable, Chief Officer,
Staffordshire Police 2 Staffordshire Probation Area
1 Area Summary

The origins of the Multi Agency Public Protection Arrangements


In the Criminal Justice and Court Services Act 2000 the Government placed a legal duty on the local Chief Constable and the
Probation Board for their area to put in place multi agency arrangements for the protection of the public from violent and sexual
offenders who might pose a risk of serious harm. This report is the second since the legislation came into effect and covers the
period 1 April 2002 to 31 March 2003.

Better public protection is achieved by agencies, (particularly police, probation, prisons, social services and youth offending teams)
sharing information and working together. Action plans are put in place that will reduce offenders’ risk to the public following
sentence by the court and on release from prison.

Multi agency arrangements to protect the public had been in operation in Staffordshire for some time prior to 2000. Following the
Sex Offenders Act 1997, Staffordshire Police and agencies in Staffordshire came together and established arrangements for the
assessment and management of sex offenders.

Staffordshire Police established dedicated police officers in each division to manage the registration and supervision of registered
sex offenders. Part of this is a pattern of regular visits to the offenders to ensure that they are still living at their registered address
and to monitor any factors, which might indicate a risk to individuals or the general public.

Legislation requires offenders convicted of certain sexual offences to notify the police of their address within 72 hours for initial
registration and 14 days of further changes including changes of address and travel abroad.

Staffordshire police has a good record in enforcing registration, 98.62% of those who should register have complied with the
requirement and continue to be at their registered address. Seventeen have been pursued and prosecuted for failing to comply.

Regular multi agency risk assessment meetings share information to assess the risks presented by an offender and then agree
what actions agencies will take to minimise it. Action plans are regularly reviewed to assess how effective the actions have been
in reducing the risk.

The monitoring of sex offenders might indicate a return to behaviour, which precipitated previous sexual offending e.g. targeting
areas where children might be or other vulnerable people and attempting to form inappropriate relationships. Where evidence
can be gathered of activities linked to the risk of re-offending the police have been successful in securing sex offender orders in
appropriate cases. This order prevents offenders engaging in specified activities like going to swimming pools when children are
on the premises or to playgrounds or having unsupervised contact with minors. However, not all sex offenders offend against
children and not all sex offender orders will be aimed at protecting potential child victims. Some will be to protect adults.

Three offenders in Staffordshire have sex offenders orders placing restrictions on their behaviour. The behaviour of offenders
subject to such orders continues to be monitored and offenders who engage in behaviour, which breaches the order, can be
immediately arrested.

The maximum penalty for a breach of a sex offender order is five years in prison. The police in Staffordshire have prosecuted four
breaches (including a repeat) with a custodial sentence resulting in each case.

Most of the sexual and violent offenders who might pose a risk of serious harm to the public are under the supervision of the
probation service. Staffordshire Probation Area has within its risk management policy clear procedures for assessing the risks
presented by every offender for whom it has a statutory responsibility. Probation staff will gather information from other agencies
in order to assess the risks that individual offenders present. Once this has taken place, probation staff with colleagues from other
agencies and the offender will work together to minimise the risks presented by the individual offender.

A good deal has been learned from agencies working together in the last few years. The lessons learned have shaped
Staffordshire’s response to public protection. MAPPPs have been in operation in Staffordshire since April 2001. The core
membership comprises senior managers from police, probation, social services, and a police officer from the Public Protection
Unit [PPU], it also involves those who are working on a day to day basis with the offender. This is discussed further within the
“Roles and Responsibilities” section.

In Staffordshire we are working towards a three-level system of risk assessment and management with level three being the
highest risk of category. Seriousness of risk and the resources needed to manage the risk are the primary factor determining the
level at which cases will be discussed.

3
2 The Principles Underpinning Public Protection
The protection of the public is the Following an offender’s Reports on offenders’ progress in
prime concern, which drives these assessment, an individual may be the group are shared with the
measures. This balances the rights placed on specific group work MAPPP and offenders are clearly
of the victim and the offender. programmes. The enhanced told as they begin the group that if
thinking skills programme requires they fail to comply enforcement
All work under the arrangements is attendance for twenty sessions action will be taken promptly. This is
carried out in accordance with the totalling fifty hours. Offenders very likely to result in a custodial
legal requirements and the spirit of participate in a series of exercises sentence.
the Human Rights Act 1998, the using questions, which require them
Data Protection Act 1998 and the to think about how they react to their Both these programmes clearly
Police and Criminal Evidence Act feelings, behaviour and relate to work on changing the way offenders
1984. other people. They are asked to manage their lives and therefore
think about the consequences of their risk by raising the importance
To balance rights and their behaviour, learn from past of “internal controls”. This is critical
responsibilities the work carried out decisions and understand other in reducing the level of risk that they
under the arrangements will peoples’ perspectives. present, both during supervision or
wherever possible attempt to when they no longer have statutory
engage an offender in the The community sex offender group contact with the probation service.
management of their own risk. work programme is based on
Teaching offenders’ ways of research in USA and the United Supervision by the probation and
managing their own risk will be part Kingdom. This has repeatedly police services combined with
of their action plan to reduce their demonstrated that imprisonment programmes to teach control and
risk to the public and their progress alone will have little, if any effect on the prevention of relapse are key to
will be monitored by the multi repeat offending. Intensive group self-control. Often other specialist
agency panel. work has been shown to lead to a services are used to achieve a
significant reduction in re-offending reduction in risk for example a
Staffordshire Probation Area runs a rates. The programme requires timely intervention by the mental
number of nationally accredited and offenders to attend sessions for two health services or accommodation
intensive programmes to tackle the years and requires a high level of providers. Self-management will be
risks presented by high-risk motivation and commitment from supported by varying degrees of
offenders. These programmes can participants. external control, which might
be a condition of a community include required residence at a
rehabilitation order or a condition in During the programme, offenders probation hostel, curfew and where
a release licence following a prison must examine their thought appropriate drug testing. Failure to
sentence. processes, attitudes and belief respond to these requirements can
systems, their offending and the often result in return to prison.
impact on victims. It is a demanding
programme.

3 Roles and Responsibilities


The Chief Constable and Probation An early and significant response to The role of the unit is to co-ordinate
Board is deemed to be the the legal requirements placed on the arrangements for the
“responsible authority” for public Staffordshire Police and the assessment and management of all
protection by establishing Probation Board, was the setting up relevant offenders.
arrangements to assess and of the jointly staffed PPU, already
manage the risk posed by sexual, referred to above.
violent and other dangerous
offenders in Staffordshire.
4
3 Roles and Responsibilities (continued)

The responsible authority must put In its work with offenders the q Staffordshire County
in place a strategic management agency has a responsibility Council and Stoke-on-
board comprising senior managers to reduce the risk of re- Trent City Council
from relevant agencies. This board offending and the risk of education departments
has a responsibility to review the serious harm to the public. are involved in the
effectiveness of local public The most dangerous arrangements for identifying
protection arrangements. This is offenders will be referred to and referring those
covered in more detail under a the PPU. considered appropriate to
separate section headed “Strategic the PPU and participate in
Management of Multi Agency Public q Staffordshire County relevant case meetings.
Protection Arrangements”. Council and Stoke-on-
Trent City Council q Housing Provision plays a
Those agencies with specific roles social services significant role in the
and responsibilities for MAPPA are:- departments have a effective management of
statutory duty to provide offenders. Progress
q Staffordshire Police has a services for a range of continues to be made with
duty to protect life and individuals including children housing authorities and
property. Immediate action in need and their families, associations to provide a
is taken to deal with people older people, people with helpful working framework
presenting a high risk of disabilities and those with that recognises the needs of
causing serious harm to the mental health needs. The housing providers, the
public. In appropriate cases role of social services community and the offender.
action will be followed up by departments in working with
a referral to the Public other agencies through the Given that appropriate
Protection Unit for a multi Area Child Protection accommodation can
agency response. Committees [ACPC] means reduce the risk presented
that they have a key part to by an offender, the Home
Dedicated officers are play in the assessment and Office have recently funded
available throughout the management of the risks the provision of two
county to manage and posed by those who might specialist staff to focus on
monitor sex offenders. cause serious harm to the securing appropriate
This would include visiting public. accommodation for
offenders, gathering offenders who might pose
intelligence and acting Both departments are core a risk of harm to the public.
upon it. contributors to public Once this has been
protection arrangements by achieved the specialist
Staffordshire Police is a referring appropriate cases, staff will maintain close
core contributor to the and contributing to the contact with the offender to
public protection overall management of monitor their progress and
arrangements and provides public protection include any evidence of
senior management arrangements. increasing risk. Regular
representation on the reports are provided to the
MAPPP and the Strategic q Staffordshire County multi agency meeting.
Management Board [SMB]. Council and Stoke-on-
In addition the service Trent City Council youth
provides a significant offending services have a
contribution to the level two responsibility to assess the
multi agency meetings. risk by young people of re-
offending and risk of
q Staffordshire Probation causing serious harm to the
Area has a statutory duty public.
to supervise most of the
offenders falling within the
MAPPA.
5
3 Roles and Responsibilities (continued)

q Health providers primarily Police and probation staff The next Criminal Justice
those involved in forensic always exchange Act will involve the Prison
services, refer appropriate information on offenders Service becoming equally
cases to the PPU. Senior during sentence and responsible with Police
managers have also particularly when planning and Probation for area
assisted with disclosures for release. In specific public protection
to protect staff and other cases prison staff will attend arrangements.
patients from violent or MAPPPs in the area where
sexual offenders. the prisoner will go on
release. The release
q Local Prisons have been of those posing a risk of
involved in drawing up serious harm will be planned
protocols concerning the well before release date.
management of potentially On behalf of the Prison
dangerous offenders and Service a management
their release from custody. representative from HMP
However Staffordshire Stafford participates in the
together with other areas MAPPA Strategic
has prisoners serving Management Board.
sentences all over the
country.

4 The Operation of Multi Agency Public Protection Arrangements


How are sexual and violent risk assessment systems, which The agency who has identified the
offenders who pose a risk of serious assist in the identification of those offender will contact the PPU, set
harm identified? How are they who pose a risk of serious harm. In out their concerns and request a
assessed and managed in order to addition, the police use a national multi agency meeting who consider
minimise the risk to the public? This assessment framework which is the risk and how this will be
is the essential work of the MAPPA. applied to every sex offender in managed.
Staffordshire.
In Staffordshire, multi agency public
Identification of relevant Work is progressing on ensuring protection meetings are held twice
offenders that other agencies have risk per month to consider those who
assessment procedures in place to pose the highest risk of causing
Agencies in Staffordshire most likely identify those who they come into serious harm to the public. Each
to come into contact with potentially contact with who might pose a risk case is considered by senior
dangerous offenders are all of serious harm. managers from police, probation,
involved with the public protection social services and staff from the
arrangements. Some agencies are public protection unit. It will also
heavily involved on a regular basis: Assessment and Management involve those working with the
others less so. Most of the relevant offender on a day to day basis.
offenders will be supervised by the What happens when a relevant
probation service or the youth offender who poses a risk of serious
offending team or subject to harm is identified?
monitoring by the police as a
registered sex offender. These
agencies have nationally agreed
6
4 The Operation of Multi Agency Public Protection Arrangements
(continued)

The meeting will consider the Office, following recommendation Case example two
following: by the probation officer. The
conditions were: Simon was sentenced to custody
ü who is at risk from the for offences against boys in the
offender q to reside where approved by community. On release from prison
ü in what circumstances the supervisor he quickly reoffended in a similar
ü when q seek supervisor’s manner and was again sentenced
ü identify what harm might agreement to any to prison where he undertook an
occur. employment or voluntary extensive sex offender programme.
The meeting will determine what activities On the occasion of his second
action must be taken to reduce the q not to have inappropriate release the MAPPPs had been
risks to individuals and the public contact with children. established which discussed the
and decide which agency will be plan needed to reduce the risk of
responsible for particular action The plan included supervision by further offending.
which will be reviewed at the next the PPU. Steve was visited in prison
meeting. by staff from the unit where Simon was to be released from a
conditions for his supervision were prison outside Staffordshire. He
A critical time for some high risk discussed with him. To ensure that was collected from prison and taken
offenders is their immediate release supervision got underway to accommodation where he could
from prison. In order to manage immediately from prison he was be monitored.
this, for example, the offender may collected and taken to the
be collected at the prison gates and accommodation where the Any ‘internal controls’ to prevent
taken to their home area. This requirements were once again reoffending developed by Simon
process will include: reinforced including the curfew. through the prison sex offender
programme were reinforced by
ü registration at a designated Steve was regularly supervised by ‘external controls’ in the form of
police station the unit. The unit identified that he monitored accommodation and
ü the police have the power to was forming relationships with stringent release licence conditions.
take the offender’s photograph vulnerable women with children and The licence involves residence
and finger prints. he had obtained employment were approved, curfew to coincide
contrary to the terms of his prison with children going to and from
licence. Information regarding the school, employment restrictions,
Case example one risks presented to children was restrictions on entering leisure
disclosed to the women to allow facilities without approval and
Steve has a number of serious them to protect their children. Not attendance at a sex offender
previous convictions against only had employment been gained programme run by the probation
children, including child abduction. in a potentially risky situation service in the community. Any
As a consequence of his offence his without declaring convictions but attempt to contact victims is
release from prison was a cause of also without the probation officer’s prohibited in the licence and Simon
great concern. This was discussed agreement. The potential employer is not allowed to enter the area in
over a number of months by the was informed which prevented which they live. The probation
multi agency public protection Steve taking a job with the service and police have carried out
meeting to ensure his safe return to company. the supervision of his licence.
the community.
Given the nature of his behaviour Simon has not re-offended.
The release plan agreed between and his failure to comply with
the agencies included the provision release licence, a successful
of accommodation where he could application was made the Home
be supervised and monitored which Office which led to his immediate
was reinforced by a curfew. recall to prison.
Conditions were imposed on his
release from prison by the Home
7
4 The Operation of Multi Agency Public Protection Arrangements
(continued)

Case example three When offenders fail to comply with children and disclosures have been
their supervision conditions action is made with a view to protecting
Richard has a long history of promptly taken. adults as well as children.
committing offences of extreme Disclosure is used to great effect in
violence. His last victim suffered Staffordshire.
severe head injuries and was left Disclosure
paralysed. Richard’s inability to
cope with the every day challenges Part of the management process is Victim work
of living in the community often lead the disclosure of information to
him to resort to alcohol abuse and other agencies, vulnerable people Part of the arrangements for
violence. He eventually began to and the general public according to protecting the public set out in the
resort to desperate behaviour the level of assessed risk. Criminal Justice and Court Services
during prison sentences, because Disclosure has taken place on 34 Act 2000 is the requirement for the
he was frightened about release. occasions during the year. probation service to take account of
victims’ views in cases of serious
The MAPPP met a number of times The issue of disclosure of sexual and violent offences where
to plan for his release. A specialist information about sex offenders, the offender has been sentenced to
hostel was found for his release. particularly their whereabouts is a 12 months or more. This is
controversial one. The public particularly important when
The multi agency meeting protection arrangements in offenders are being considered for
continued to monitor him although Staffordshire keep under constant release from custody.
he was not subject to statutory review the need to protect potential
supervision. Since release from the victims. Disclosure of the risks Officers from the victims unit make
sentence over 18 months ago there presented by an individual can be a contact with victims of serious
has been no repeat of his previous valuable risk management tool sexual and violent offences within
alcohol-fuelled violence. He used appropriately. eight weeks of sentence offering
continues to be seen as a high risk contact.
and is monitored by the MAPPP. Disclosure is not used
indiscriminately. This is an option During 2002/03, the Staffordshire
always considered where it would Victims Unit has achieved contact
Case example four assist in the protection of within this time in 89% of cases
identifiable potential victims. The compared to the national target set
Gerald, an older man with a history disclosure must be a balance for all probation areas of 85%.
of serious offences against children between:
and adults was placed carefully in The contact with the victim can
the community after a period of q the risks presented by the provide them with information about
intense monitoring following release individual, their offender’s sentence. These
from prison. The unit identified that q the protection which might liaison officers also offer the victim
he constantly sought opportunities be possible by making the an opportunity to receive
to target children or vulnerable disclosure, information about significant events
adults. Following the multi agency q duty of care to possible during the offender’s sentence.
meetings, disclosure about his risk victims, These might include moving the
has been made to families where he q the human rights of the offender to an open prison, or to
has sought contact. As the result of offender release on parole. The victim will be
this action, no further contact has q the potential for the offender provided with the opportunity to
taken place between Gerald and going “underground” with a express any concerns they may
these families. loss of contact. have about their safety should such
moves take place and to have these
These cases demonstrate the level The case examples in this report concerns reported to the parole
of supervision which is undertaken show how some disclosures have board and the prison governor.
by police and probation staff been used, there are many others.
working together. Not all sex offenders offend against

8
4 The Operation of Multi Agency Public Protection Arrangements
(continued)

If the offender is to be released agency meetings. The meeting will Many victims face the prospect of
under supervision the conditions consider what actions must be the release of offenders in
under which release takes place taken to protect as far as possible tremendous fear. The victims unit
could include specific restrictions on the victim from fear and the and the MAPPA are now in a
the offender to protect the victim. prospect of re-victimisation. The position to take steps, which go
An offender will usually be multi agency meeting might request some way to help victims meet the
prohibited from making contact with restrictions in the offender’s release fearful moment of release into the
the victim and sometimes they are licence and can direct an offender community, and the ongoing threat
banned from areas around the to live in supervised they feel. Many victims of serious
victim’s home, or school in the case accommodation with a strict curfew crime have been helped by the
of child victims. until their risk to the victim can be intervention of the victims unit and
assessed after a spell in the the public protection arrangements.
The protection of victims is always a community.
primary consideration whenever an
offender is being considered at a As well as having concerns
multi agency risk management presented to the multi agency
meeting. Close liaison takes place meeting, victims will receive
between staff from the PPU and information about the steps, which
staff from the Victims Unit; the latter are being taken by agencies to
are able to directly communicate protect them.
the victim’s concerns to the multi

5 Services for Victims


Local agencies offering services Adult Survivors of Chilhood Victims of Sexual Abuse
to victims include: Sexual Abuse
Ø Womens Rape and Sexual
National Probation Service Ø Emerge (Cannock) Violence Service
Tel. No. 01543 576174 Tel. No. 01782 221000
Ø Staffordshire Probation Ø Emerge (Stafford)
Area Victim Liaison Unit Tel. No. 01785 683133 Ø SARAC (Burton) Helpline
Tel. No. 01782 719045 Tel. No. 01283 517185
Victim Support Ø S.A.I.V.E
Domestic Violence
Ø South East Staffordshire Victim Tel. No. 01782 683133
Ø Domestic Violence Helpline Support (Lichfield, Tamworth
(24 hours) and Burton) Racial Equality Council
Tel. No. 01543 676800 Tel. No. 01543 30100
Ø Stafford District
Ø North Staffs Domestic Violence Ø Mid Staffordshire Victim Tel. No. 01785 246471
Helpline Support
Tel. No. 01782 83700 Tel. No. 01902 847387 Ø East Staffordshire
Tel. No. 01283 510456
Ø North Staffordshire Victim
Support Ø North Staffordshire
Tel. No. 01782 717184 Tel. No. 01782 214061

9
6 Strategic Management of Multi Agency Public Protection Arrangements
The multi agency strategic managing case reviews to An action plan 2003/2004 has been
management group has developed ensure time and resources prepared. This builds on
its work during the past year. This are allocated according to achievements in public protection
has mainly focussed on enhancing assessment level of offender work, both nationally and locally.
and sustaining the multi agency risk. This is in accordance This will be reviewed during the
representation to oversee the local with the new three level year to ensure compliance with the
MAPPA.To this end, the board is system. national requirements.
jointly chaired by senior managers
from police and probation. q information protocol has
been agreed which impacts
The review of the strategic action on all statutory agencies.
plan 2002/2003 identifies specific
progress in the following: q intensive supervision
programme linked to fixed
q the sex offender accommodation has been
management review introduced (previously
identified a change in referred to).

7 Statistical Information No. of Offenders

i. Number of registered sex offenders on 31 March 2003 363

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


were either cautioned or convicted for breaches of the requirement, 18
between 1 April 2002 and 31 March 2003

iii. The number of Sex Offenders Orders applied for and gained between
1 April 2002 and 31 March 2003

(a) The total number of Sex Offenders Orders applied for 3

(b) The total number granted 3

(c) The total number not granted 0

iv. The number of Restraining Orders issued by the courts between


1 April 2002 and 31 March 2003 for offenders currently managed 0
within MAPPA

v. The number of violent and other sexual offenders considered under


MAPPA during the year 1 April 2002 and 31 March 2003 (as defined 616
by section 68 [3], [4] and [5])

10
7 Statistical Information (continued) No. of Offenders

vi. The number of "other offenders" dealt with under MAPPA during the 15
year 1 April 2002 and 31 March 2003 as being assessed by the
Responsible Authority as posing a risk of serious harm to the public
(but who did not fall within either of the other two categories, as
defined by s.67 [2b])

vii. For each of the three categories of offenders covered by the MAPPA
("registered sex offenders", "violent and other sex offenders" and
"other offenders"), identify the number of offenders that are or have
been dealt with by:

(a) MAPPP - registered sex offenders 19

(b) MAPPP - violent and other sex offenders 25

(c) MAPPP - violent and other sex offenders 4

viii. Of the cases managed by the MAPPP during the reporting year what
was the number of offenders:

9
(a) who were returned to custody for breach of licence

2
(b) who were returned to custody for breach of a Restraining Order or
Sex Offender Order

2
(c) charged with a serious sexual or violent offence

11

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