Greater

Manchester
Multi-Agency
Public
Protection
Arrangement

ANNUAL
REPORT
2003-04

Managing the risks together

CONTENTS
Page

National overview 2
Forewords 3
Who we are 4
Achievements in 2003/4 5
How MAPPA works 6
Managing MAPPA 8
Helping Victims 9
Sharing Information 10
Helping to Manage Offenders 12
Greater Manchester Police 12
Probation Service 13
Prison Service 14
Housing 14
Education 15
Social Services 15
Youth Offending Teams 16
Health 16
Lay Members 17
Crown Prosecution Service 18
Other Agencies 18
Case Studies 19
Facts and Figures 20
Further Information 21
NATIONAL OVERVIEW
Sexual and violent offences are
dreadful crimes that deeply affect
the lives of victims and their
families and bring fear to local
communities. Their impact can be
profound and long lasting, leaving
victims feeling unsafe even in
their own homes. The Government
regards tackling sexual and
violent crimes as one of its highest
priorities.
The national development of the
MAPPA has concentrated on
preparing to implement the
MAPPA provisions of the Criminal
Justice Act 2003. These provisions
came into force on 5 April 2004
and help strengthen the MAPPA
by:
• Making the Prison Service part
of the ‘responsible authority’
with police and probation
• Formalising the involvement of
other agencies which can
make an important
contribution to helping
offenders not to reoffend
• The Act imposes a Duty to
Cooperate with the
Responsible Authority MAPPA
upon: local authority housing,
education and social services,
health service bodies,
Jobcentres Plus, Youth
Offending Teams, Registered
Social Landlords which
accommodate MAPPA
offenders and electronic
monitoring providers.
The appointment by the Home
Secretary of two members of the
public as ‘lay advisers’ in each
Area is to assist in monitoring the
effectiveness of the MAPPA.
Work on the duty to co-operate
has been taken forward by two
separate and complementary
initiatives. First, in many areas the
duty to co-operate formalises
what has already begun to be
established as good practice. The
statutory basis of the duty will
help ensure a more consistent
engagement of all these agencies
across England and Wales.
Secondly, the relevant Central
Government Departments have
been involved in developing the
Guidance, which the Home
Secretary issued on the duty to co-
operate. The reform of the way in
which child protection is
organised, following the public
inquiry into the tragic death of
Victoria Climbie, will reinforce the
importance of effective joint
working between different
agencies, which the MAPPA has
itself promoted.
Other legislation
In addition to this work to
strengthen the MAPPA, the
Government has also begun to
strengthen other statutory
provisions, the most significant of
which are the Sexual Offences Act
2003 and the measures to
introduce new sentences for
‘dangerous’ offenders which will
keep them in custody until they no
longer pose a serious risk to the
public.
The Sexual Offences Act overhauls
the many antiquated sexual
offences and plugs loopholes in
the law. In updating sexual
offences, it strengthens the law on
rape and on sex offences against
children. It introduces new
offences of ‘sexual grooming’ and
extends the protection from
exploitation in prostitution or
pornography to children up to the
age of 18. For the first time, it will
be an offence to buy sexual
services from a child below this
age, targeting those who abuse
children in this way.
The Sexual Offences Act also
2
strengthens the sex offenders’
register, which has proved a
valuable means by which the
police can monitor convicted sex
offenders within their area, and
introduces new civil orders to help
prevent further offences from
being committed.
Victim focus
The victims of sexual offending
are identified as a priority group
within the National Victims and
Witnesses Strategy. This strategy
which was published in July 2003,
aims to improve support and
protection for victims and
witnesses by:
• Reducing the adverse effects
of crime on victims and
witnesses, and preventing
secondary victimisation
• Encouraging more victims and
witnesses to come forward
• Offering more options to
victims and witnesses,
including alternatives to
attendance at court.
These initiatives will help toward
another key Government target,
that of improving public
confidence in the criminal justice
system.
The Government is underpinning
this work in its Domestic Violence,
Crime and Victims Bill, which is
currently going through
Parliament. It will create a new
independent post of
Commissioner for Victims and
Witnesses to be a champion or
voice for all victims of crime and a
new statutory Victims’ Code of
Practice (to be implemented in
April 2005) which will build on the
existing Victims’ Charter and set
out specific responsibilities that
each criminal justice service
agency and Victim Support must
provide to victims.
Chief Constable’s Foreword
Greater Manchester Police is focused on fighting crime, and protecting
people. The work carried out to manage the risks posed by violent,
sexual and dangerous offenders is key to protecting people in Greater
Manchester. These offenders are a small number but we recognise the
concern about them that exists within communities. It is for this reason
that we put resources into investigating and detecting these crimes.

We cannot do this alone and the partnership working that is at the heart
of MAPPA (Multi Agency Public Protection Arrangements) is now being
seen in all aspects of tackling crime and disorder in the county. Sharing
information about offenders and crime between organisations is vital to
safeguarding communities.

We face challenges ahead as the number of sex offenders we deal with continues to rise over the next few
years. This does not show a rise in the number of people committing offences, but is caused by the fact that
the Sex Offenders Act 1997 did not apply to offenders convicted before it came into effect, unless they were in
custody or under supervision at the time. But people should be reassured that the good work of the Violent
and Sex Offender Registration (ViSOR) unit will continue to manage the risks.

GMP is an open and accountable organisation and fully supported the introduction of lay members into the
MAPPA Strategic Management Board. These dedicated individuals represent the interests of the community
and scrutinise developments on behalf of us all. This report is part of our continued determination to be both
open and accountable for the work in managing violent, sexual and dangerous offenders, and in fact, for all
aspects of how we tackle crime in the county. The information contained in this report should reassure that
we are making a difference to the quality of life in our communities.

Chief Constable

Chief Probation Officer

To be effective, Probation staff must be able to differentiate individual
offenders, their crime and their victims in order to take the steps
necessary for greater public protection and to match offenders with the
programmes most likely to reduce offending.

GM Probation Area shares the responsibility for assessment and

management of high risk and dangerous offenders with GMP and the
Prison Service. Joined up processes and information sharing lie at the
heart of offender management and public protection.

GM Probation Area is committing skills and resources to issues of

concern to this local community. A collaborative approach with other
agencies that have a valuable contribution to make in assessing and
managing offenders with the potential to cause serious harm, is proven to achieve positive results. GM
Probation Area will continue to focus its efforts on the effective work of the MAPPA to sustain the confidence
of the communities we serve.

Chief Probation Officer

3
WHO WE ARE AND WHAT WE DO
In Greater Manchester Multi-
Agency Risk Panels, a partnership
between the police and probation,
were established in 1997. The
panels were set up to provide a
forum for information sharing and
close working to assess and
manage registered sex offenders
and other offenders regarded as
potentially dangerous. It built on
the success of a pilot project in the
Rochdale area in 1995.
The risk panels were later
renamed Multi-Agency Public
Protection Panels (MAPPP), as a
result of the Criminal Justice and
Court Services Act 2000. The Act
required police and probation to
make joint arrangements for the
assessment and management of
the risks posed by sexual, violent
and other offenders who may
cause serious harm to the public.
Since then a wide range of
agencies have been involved in the
panels including housing, social
services, health, Victim Support,
prisons, education, electronic
monitoring providers and Youth
Offending Teams.
The role of MAPPA was drafted in
the Criminal Justice Act 2003
which came into effect on 1 April
2003
Probation police and prison representatives work together in Greater
Manchester
Local arrangements
Greater Manchester is made up of MAPPPs involve representatives
10 local authority areas; Bolton, from other key agencies and they
Bury, Manchester, Oldham, can be called to attend to help
Rochdale, Salford, Stockport, develop the risk management
Tameside, Trafford and Wigan. plan for an offender. The agencies
Each of these has arrangements bring specialist knowledge and
in place to manage high-risk information to the meetings and
cases through Multi Agency Public have a key role in managing the
Protection Panels. The meetings dangerous offenders. (Details on
are chaired by either the page 12)
Probation Service District
Manager or a local senior police
officer. A countywide protocol sets
out how and when Panels meet,
additionally any agency can
request that a MAPPP takes place.
MAPPPs are used to manage the
high-risk offenders that are
referred to as ‘the critical few’
they provide a framework for co-
ordinated risk management by
agencies. The police and
probation services work together
to manage offenders assessed as
low or medium risk. This system
ensures time and resources are
devoted to managing ‘the critical
few’ giving the community greater
protection from dangerous
offenders.
4
KEY ACHIEVEMENTS 2003/4
During the last year we have had some significant achievements,
including:

• Greater involvement of agencies in Strategic Management Board

(SMB) including health, education and electronic monitoring device
providers

• Three seminars (pictured below) arranged by the SMB held to

improve training and awareness among local agencies of their role in
managing risks

• Enhanced role and development of involvement of two lay members,

including links with main agencies and MAPPP meeting attendance

• Numbers of registered sex offenders and violent /dangerous

offenders have risen linked to continued good work to ensure
offenders are well managed through specific action plans

• Action taken for breaches of Sex Offender Orders or registration

requirements increased due to proactive work to manage risks

• Improved working relationships with the prison service and links to

regional co-ordinator

Preparations are underway for introduction of Criminal Justice Act 2003

including named agencies having a duty to cooperate, Local Risk
Management meetings and lay members appointed nationally

5
HOW MAPPA WORKS
There are many aspects to protecting the public and managing the risks from dangerous, violent and sexual
offenders. In Greater Manchester, multi-agency assessment procedures for the assessment and management
of these offenders have been developed. Assessment and management is at three levels:

Level 1: Ordinary risk management;

Level 2: Local Risk Management Meetings. (LRMM’s)

Level 3: Multi-Agency Public Protection Panels. (MAPPP)

This structure of risk management is intended to enable resources to be deployed to manage identified risk in
the most efficient and effective manner. The level at which a case is managed is dependent upon the nature of
the risk and how it can be managed. For example, not all high risk cases will need to be managed by the
MAPPP and other less risky cases might justify MAPPP referral because of their complexity.

Level 1: ordinary risk Level 2: Local Risk Level 3: Multi Agency Public
management Management Meetings Protection Panel

Level 1 risk management is used
in cases where the risks posed by
the offender can be managed by
one agency without actively or
significantly involving other
agencies. Level 1 management
primarily involves probation,
police, youth offending teams or
the Prison Service as the lead
agency. Generally, offenders
managed at Level 1 will be
assessed as presenting a low or
medium risk.
Level 2 risk management is used
where the active involvement of
more than one agency is required
but where either the level of risk
or the complexity of managing the
risk is not so great as to require
referral to the Level 3, the MAPPP.
Risk can and will change, so the
means of managing risk is
regularly reviewed and will be
adjusted to meet the specific
need. The MAPPA provides the
framework within which those
changes can be effectively and
consistently managed.
The MAPPP is responsible for the
management of the ‘critical few’.
The criteria for referring a case to
the MAPPP are defined as:
(i) risk assessed as being a high
or very high risk of causing
serious harm; AND
(ii) presents risks that can only be
managed by a plan which
requires close co-operation at
a senior level due to the
complexity of the case and/or
because of the unusual
resource commitments it
requires; OR

(iii)although not assessed as a

high or very high risk, the case
is exceptional because the
likelihood of media scrutiny
and/or public interest in the
management of the case is
very high and there is a need to
ensure that public confidence
in the criminal justice system
is sustained.

Therefore the ‘critical few’ are not

exclusively those assessed as high
or very high risks, in almost all
cases they will be.

6
ASSESSING THE RISKS
Initial risk assessments on numbers of registered sex Register in 1997, did not apply to
serious violent and sexual offenders will continue to rise offenders convicted before that
offenders are normally every year for the next few years time, unless they were still under
undertaken at the point of because the legislation, which supervision or in custody.
sentence in a Pre-Sentence brought about the Sex Offender
Report. They are prepared by the
Probation Service, or by Youth
Offending Teams for those under
18. The reports help the court
determine a suitable sentence,
and are used by the Probation
Service if the offender is
subsequently given a community
sentence eg Community
Rehabilitation Order. The
Probation staff have extensive
experience in working with
offenders.

Offenders serving community

penalties continue to live and
work in communities. They may
live in their own homes or in
private rented accommodation.
Research shows that having
permanent accommodation and
employment is very important in
reducing the risk of re-offending.

If an offender is sent to prison, a

further assessment will be carried
out if the offender is to be released
subject to a period of supervision
by the probation service. After
release, depending on the length
of the supervision period, the
offender will be reassessed for
risks and appropriate public
protection plans put in place.

In some cases, offenders

considered by a MAPPP are not
the subject of any statutory
supervision in the community.
These are mainly offenders
convicted of serious offences in
the past but who have not re-
offended, but recent behaviour
may be of sufficient concern to
warrant referral to a MAPPP.

Other offenders are required to

register under the Sex Offenders
Act 1997 and these require joint
assessments. Many of the orders
are for 10 years or for life. The
7
MANAGING MAPPA
In Greater Manchester, a Strategic The Strategic Management Board Greater Manchester is a large
Management Board oversees monitors and reviews the county, which covers 10 local
MAPPA. Representatives of all the effectiveness of the local MAPPPs authority districts. It is therefore
agencies involved in MAPPPs sit to ensure consistency of practice not practicable to seek
on the Board, together with lay and procedure, and to promote representatives from all 10
members who were first communication and information boroughs. The aim is to have
appointed in 2002. sharing between the agencies individuals representing services
involved. across Greater Manchester to
The Board is jointly led by a achieve countywide coverage from
Superintendent from Greater The role of the two lay members, amongst the membership. Those
Manchester Police and by an who were recruited in 2002 and appointed to the Board bring a
Assistant Chief Officer from the attended their first meeting in perspective from their particular
National Probation Service January 2003, has been further area of work.
(Greater Manchester). Other enhanced during the last 12
members of the group include a months. They bring a unique Senior managers from police,
Prison Service representative, perspective to the Board. probation and prison services
local authority housing Membership of the Board meet regularly to look at the
representative, Victim Support continues to be reviewed. Lay strategic implications of
representative, Youth Offending members encourage greater development of MAPPA to ensure
Team representative, and openness and transparency in the consistent implementation of
representatives from departments work of MAPPA, make decision national policy and guidance
of social services and education, makers more accountable, bring across the region.
Crown Prosecution Service community views to the
representative and service development of MAPPA, and
director for Manchester Mental scrutinise the process, priorities
Health. and working methods of MAPPPs.

ROCHDALE N

BURY
BOLTON
NORTH
MIDDLETON

BOLTON CHADDERTON OLDHAM

WIGAN SOUTH WHITEFIELD

NORTH
SWINTON MANCHESTER
CRESCENT ASHTON
LEIGH
ECCLES STALYBRIDGE

SOUTH
STRETFORD MANCHESTER

STOCKPORT

ALTRINCHAM
CHEADLE HULME

8
HELPING VICTIMS OF CRIME
Greater Manchester Victim
Support and Witness Service is an
integral part of the MAPPP
process. The charity provides local
support and assistance to victims
of crime and to vulnerable
witnesses. Where Victim Support
involvement is requested at a
MAPPP, a staff member will
attend the meeting and then liaise
with the appropriate victim worker
in the case.
Trained staff and volunteers at
local branches offer information
and support to victims, witnesses,
their families and friends. Where
an offence is violent or sexual, the
needs of the victim are greatly
increased. The impact on a victim
can be substantial particularly
where the offender may be
released back into the community.
At MAPPPs they can pass on the
concerns of victims and ensure
victims are kept fully informed, as
well as assisting other agencies.
As part of the Street Crime
Initiative in Greater Manchester,
witnesses of violent crime have
been contacted and visited so
their concerns can be passed on.
Some have been accompanied to
court to increase confidence in the
criminal justice system. The
service plans to extend to provide
even greater support to victims
and witnesses.
9
Greater Manchester Probation
Area employs Probation Service
Officers to liaise with victims of
serious violent or sexual offences.
Victim Liaison Officers provide
victims with information about the
offender’s sentence, parole
eligibility and any plans for
release. They will ask the victim if
they have any views, which might
affect the offender’s license
conditions on release.
• A network of GMP Family
Support Units exists
throughout the county
supporting child victims and
their families through the
process of reporting,
investigation and prosecution
of a crime. They also provide
assistance to victims of
domestic violence and children
who have been subjected to
violent or sexual assaults.
• The St Mary’s Sexual Offence
Referral Centre is a national
leader in supporting victims of
sexual crimes. Counsellors are
available to talk in confidence.
• In Bolton, a Young Witness
Support Scheme is in place
providing support for young
victims of crime required to
give evidence at court. A
support worker will work with
the young person arranging
familiarisation visits, going to
court and providing support
after the case.
• GMP has considerable
expertise in investigating
crimes where the victims are
unknown or difficult to reach,
for example child victims of
Internet pornography.
For details of local services
and relevant organisations
contact Victim Support line
– 0845 30 30 900
SHARING INFORMATION
Public protection depends upon
the effectiveness of the plans
MAPPA agencies draw up to
manage an offender’s risks. These
plans are in turn dependent upon
the quality of the risk
identification and assessment
processes; and the quality of both
the risk assessment and the risk
management plan are heavily
determined by the effectiveness of
information sharing
arrangements. Unless all relevant
information is available, in good
time, to those making the
assessments and drawing up the
management plans, public
protection could be compromised.

Information sharing must have

lawful authority, be necessary, be
proportionate and done in ways
which, ensure the safety and
security of the information shared,
with representatives of each
agency being accountable.

10
DISCLOSURE OF INFORMATION
There may be some cases where
the management of an offender’s
risk in the community cannot be
carried out without the disclosure
of some information to a third
party outside the MAPPA
agencies. For example, where an
employer, voluntary group
organiser or church leader has a
position of responsibility/control
over the offender and other
persons who may be at serious
risk from the offender, the
disclosure to them of certain
information about the offender is
the only way to manage that risk.
If such a course of action is
required, it must be part of a risk
management plan.
Media interest:
examples of coverage
of incident s involving
sexual and violent
offences
Disclosure rarely means providing
information to the media, and is
usually on a one-to-one basis
handled sensitively by
professionals involved. The media
may be involved to assist public
protection by wide coverage of an
individual case. They can play a
major role in helping to alert the
public. For example, if an offender
fails to comply with supervision
and his whereabouts become
unknown, appeals for information
may be made through the media.
This means the public can help
track down the offender and
protect other people. This has not
been required in Greater
Manchester since the introduction
of MAPPA.
11
In 2002, a media protocol between
the police, probation and the local
and regional media was put in
place. This has helped to ensure
that the media are more informed
about how agencies co-operate to
manage offenders in the
community and how media
coverage can both help and hinder
their supervision. The protocol
also sets out what assistance
police and probation will give to
the media. Almost 40 newspapers
and broadcasters are signed up to
the protocol and it has so far been
very successful in improving
relationships between the media,
police and probation.
HELPING TO MANAGE OFFENDERS
Protecting the public from sexual, violent and dangerous offenders is
best achieved by joint working between statutory and voluntary bodies.
Police and probation services are the lead agencies, but the
contributions made by other agencies are essential.

Greater Manchester Police

As a lead agency in the delivery of MAPPA, Greater Manchester Police
has made a significant commitment towards future work by the creation
of the Violent and Sex Offender Registration (ViSOR) unit. This provides
a central resource and support framework with expertise in this area. It
covers all issues involving the management of sexual violent and
dangerous offenders.

ViSOR is:
• Responsible for
maintaining the
Sex Offender
Register for
Greater
Manchester and
for ensuring the
compliance of
those on the
register.

• Staffed by more
than 20 police
personnel and
dedicated
Probation Service
co-ordinators

• A central point of
contact for liaison
with all agencies
involved in this
work across the
area

12
Probation Service

The National Probation Service Greater Manchester is a law

enforcement agency that takes a lead in the delivery of MAPPA.
Its aims are:

• Protecting the public

• Reducing re-offending
• Proper punishment of offenders in
the community
• Ensuring offenders’ awareness of the
effects of crime on the victims of
crime and the public
• Rehabilitation of offenders.

Probation staff make a wide-ranging contribution to the work of MAPPA

and are highly skilled in assessing the risks offenders present. Risk
assessments are a key area of work and are conducted on all offenders
who come before the courts for violent or sexual offences. The
assessments dictate the nature and level of intervention by the Service
and/or partner agencies who contribute to the multi-agency planning
that is a requirement of the MAPPA arrangements.

Other key areas of work include preparation of reports for the courts;
provision of accommodation in approved premises; supervision and
management of offenders servicing a community sentence; supervision
and management of offenders following their release from custody on
licence – this includes swiftly recalling to custody those offenders who
do not comply with the terms and conditions of their licence.

13
Prison Service
Her Majesty’s Prison Service contributes to the protection of the public
by keeping in custody those offenders committed by the courts and
working to reduce the risk they pose. It does this by:

• Identifying and risk assessing those individuals

who present a risk to the public.
• Designing and implementing sentence plans,
based around the OASys system, which are
designed to reduce the risk individuals pose
before they are released.
• Sharing information with other agencies during
custody and immediately prior to release.

While in custody, offenders are able to access a range of interventions

aimed at addressing offending behaviour including sex offender
treatment programmes, cognitive skills programmes and substance
misuse work as well as a wide range of resettlement activities related to
accommodation, employment and education.

From April 2004, the Prison Service will join the Police and Probation
Services in Greater Manchester as part of the Responsible Authority –
those agencies with a statutory duty for protection of the public. The
Prison Service is already engaged in the MAPPA process as a major part
in Greater Manchester.

Housing
Housing professionals contribute significant expertise
to MAPPP meetings and housing providers including
local authorities, Housing Associations and staff from
both statutory and voluntary hostels have attended
meetings.

Permanent accommodation is extremely important to The contribution includes:

the management of the risks posed by sexual and
violent offenders. Greater Manchester has seven
• Advising on suitable
approved premises (hostels) that offer programmes accommodation taking into
and extra work, which can help reduce offending. account public protection
Approved premises can be a first step back into the
community for offenders released from prison, and issues and the offender’s
allow additional supervision for offenders who would requirements
otherwise have to look for accommodation elsewhere
in the community. • Hostel staff regularly attending
MAPPPs to provide vital
The hostels have strict rules and conditions of
residence including a strictly enforced overnight
information on offenders who
curfew and 24 hour staffing, which allow rigorous are current residents
supervision. • Assisting in organising
In Manchester, Compliance Tenancies are a feature of surveillance and encouraging
the supervision of some offenders. The offender must responsible behaviour from
agree to additional conditions, which may include
accepting regular supervisory visits, before being
offenders under supervision
granted a tenancy.
14
Education
Education staff can provide
valuable assistance to the
MAPPPs by:
STAY ALERT
• Providing
information to
other agencies
about known or
potential child
victims the
management of
the few juvenile
dangerous
offenders who can
disrupt local
communities
• Working with
children and
parents to raise
SHOP SAFE
awareness of how How you can become a crime fighter !
to manage risks
• Provide support to
victims and
families in a safe
environment

Education providers can also help

to offer additional monitoring of
offenders attending school or
college courses. A ‘critical few’
offenders target children and in Social Services
Greater Manchester Stay Alert Social Services departments have a primary responsibility for issues
Shop Safe leaflets raising involving the protection of children and vulnerable adults. The work of
awareness of what businesses can MAPPPs links to that of the Area Child Protection Committees, where
do to reduce risks have been police and probation officers attend relevant cases.
distributed to shop staff.

The contribution includes:

• Sharing vital information about offenders’
behaviour
• Providing valuable information on family
networks of sexual and violent offenders
• Assisting in the creation of a development plan
for juvenile sex offenders

15
Youth Offending Teams
Dangerous offenders are usually adults, however there are a few cases
each year where young offenders, aged under 18, are assessed as being
a danger to the public. Such cases may be under the supervision of
Youth Offending Teams (YOTs).

YOTs can put intensive supervision arrangements in place for juvenile

offenders, which makes their attendance at MAPPPs essential.

Teams consist of police, probation, education and social workers and are
well placed to co-ordinate arrangements to closely manage these
dangerous young offenders. YOTs have links to local Child and
Adolescent Mental Health Services.

Health
Health issues can be a significant factor in managing dangerous
offenders, and the health professionals attend MAPPPs on a case-by-
case basis. Some offenders have mental health problems, which need
assessment and treatment, and a local GP or specialist psychiatric staff
may be represented at MAPPPs.

16
Lay Members
Greater Manchester was among the first areas to have Lay Members
appointed, chosen as one of only eight areas in the country to pilot Lay
Member involvement. April 2004 sees the start of Lay Member involvement
rolled out to 42 areas of England and Wales following an evaluation of Lay
Member involvement undertaken to inform the MAPPA Lay Adviser
provisions of the Criminal Justice Act 2003. Home Office Minister Paul
Goggins said of the lay advisers: “We are committed to giving them not
only an insight into how this work is carried out but, more importantly, an
opportunity to question what is being done and why.”

A Greater Manchester Lay Member writes

“
“The transition from Lay Member to Lay Adviser clearly acknowledges
the importance and value of having members of the community
involved in the discussions and the decision making that takes place in
relation to Public Protection.

The Strategic Management Board is a central part of MAPPA. In

Greater Manchester the commitment to Public Protection is strongly
reflected by the SMB who have increased the frequency of meetings
from quarterly to bi-monthly to sustain and develop further the
effective management of Public Protection Arrangements. The SMB is
further enhanced by the commitment and regular attendance of
representatives from a high number of agencies who actively engage
in this process.

I am also actively encouraged to participate in these meetings,

sharing my views and challenging the views presented to ensure a
voice that maintains and reflects an interest and response to public
concerns.

Having no professional attachments to any of the agencies involved in

MAPPA, I am pleased that agency’s continue to extend visits to view
their work. Whilst it is invaluable to gain an understanding of the
agency’s perspective, I am encouraged by their willingness to engage
with Lay Members and regard it further reflects a firm commitment to
the process of MAPPA.

The effective management of sexual and violent offenders is clearly a

challenging task where the focus of responsibility should remain
embracing victims and the community.

On my appointment to the role of Lay Member I was intrigued to know

where Public Protection sat on the agenda in Greater Manchester.

To date I have learned – It is the agenda”

17
Crown Prosecution Service
Representatives from the CPS
attend the MAPPA SMB as
required and play a key part in
looking at disclosure related to
records where they become
relevant during the course of a
prosecution.

Other Agencies
MAPPPs may be attended by other
community agencies or
individuals where they can add to
the discussion. In Greater
Manchester, this has included
Housing Compliance Officers,
staff from Greater Manchester
Police’s Domestic Violence Unit,
Probation Service victim liaison
officers and offender’s family
members.

The Criminal Justice Act 2003 formalises the involvement of

other agencies, which can make an important contribution to
helping offenders not to reoffend. The Act imposes a ‘Duty to
Co-operate’ with the Responsible Authority MAPPA upon:

• Local authority housing, education and

social services
• Health service bodies
• Jobcentres Plus
• Youth Offending Teams
• Registered Social Landlords which
accommodate MAPPA offenders
• Electronic Monitoring providers

18
CASE STUDIES
Mr A is 33 years old and has a history of sexual offences including Mr B is 40 years old with a
indecent assault and kidnapping young boys. In November 2003, a history of general criminality
Sex Offender Order was successfully obtained. It was ahead of his and serious violence. In the
release back into the community after a 45-month prison sentence past he has served prison
for a sexual offence. sentences for wounding,
assault, conspiracy to rob and
The Order prevented him approaching or communicating, directly causing grievous bodily harm.
or indirectly, with anyone under 16 and loitering around schools, He served seven years in
parks, play areas, bus stations and public toilets. prison for manslaughter and
has a history of drug and
MAPPPS were held both before and after his release with a alcohol problems.
rigorous risk management plan in place detailing how he should be
managed when released on licence. Mr A was required to live as For several years Mr B has
directed and subject to a curfew and reporting regime which were been the subject of MAPPPS
put in place to minimise the opportunities he had for reoffending. usually convened in the
period ahead of his release
Within a fortnight of his release Mr A breached the terms of both from prison back into the
his licence and Sex Offender Order when he approached a boy in a community and at times of
public place. He was immediately recalled to prison for the breach heightened risk. He has a
of his licence and received a further two-year prison sentence for history of domestic violence
breaching the Sex Offender Order. There was no harm or injury to towards a long-term partner
any member of the public caused by his actions. who had been informed of his
previous offences, and the
relationship is unstable and
volatile. Agencies have found
Mr X was convicted in 1990 of indecency with children. In 2003
it essential to communicate
enquiries established that he was allowing children to regularly
and liaise about any concerns
visit his home. Given the potential danger to those children he was
when Mr B is in the
made the subject of a MAPPP, which recommended an application
community but not subject to
for a Sex Offender Order.
any formal supervision.
Once on the Sex Offenders Register he was subject to various
In addition to the police and
restrictions on his movements, particularly if there were any
probation service other
changes in his name or address, he must notify police within 14
agencies in his case have
days. He was also required to have no contact with anyone under
included housing, education,
the age of 16.
social services and health
professionals. Care has been
In October 2003 he moved to a new part of Greater Manchester. His
taken to ensure the MAPPP
change of address and previous behaviour led to suspicions that he
and child protection systems
might be breaching the prohibitions placed on him by the Sex
work effectively with each
Offender Order. Surveillance was put in place and found Mr X was
other.
allowing children to visit his address. Two girls, both under 16
years old, were seen leaving his back yard with him.

Further enquiries found that one of the girls had been reported
missing from her home and Mr X had allowed her to stay at his flat
during that time. Mr X was arrested and when shown evidence
pleaded guilty at court. He spent three months in custody whilst on
remand and was sentenced to a Community Rehabilitation Order.

19
FACTS AND FIGURES
The number of Registered Sex Offenders (RSOs) in the community on 31 March 2004 1388

The number of RSOs per 100,000 population 54

The number of Sex Offenders having a registration requirement who were

either cautioned or convicted for breaches of the requirements between
1 April 2003 and 31 March 2004 102

The number of Sex Offender Orders applied for and gained between
1 April 2003 and 31 March 2004 4
a) applied for 4
b) imposed by the courts 4

The number of Restraining Orders issued by the courts between

1 April 2003 and 31 March 2004 4

The number of violent offenders and other sexual offenders (as defined by
Section 68 (3) (4) & (5) CJ & CS Act 2000) living in the area during the year
1 April 2003 and 31 March 2004 1476

The number of ‘other offenders’ dealt with under MAPPA during the year
1 April 2003 and 31 March 2004 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 S67 (2b) 32

For each of the three categories of offenders covered by MAPPA (registered sex
offenders, violent and sex offenders, and other offenders) The number of offenders
that have been dealt with by

a) MAPPP – registered sex offenders 59

b) MAPPP – violent and other sex offenders 65
c) MAPPP – other offenders 32

Of the cases managed by MAPPP during the reporting year the number of offenders:
who were returned to custody for breach of licence 30
who were returned to custody for breach of a Restraining Order of Sex Offender Order 1
charged with a serious sexual or violent offence 2

Further information on statistics

The numbers of registered sex offenders and violent/dangerous
offenders has risen during the last year which is linked to
continued good work to ensure offenders are well managed through
specific action plans.

20
FURTHER INFORMATION
This report has been produced by Greater Manchester Police and
National Probation Service (Greater Manchester) in conjunction with
members of the Greater Manchester Multi Agency Public Protection
Arrangements Strategic Management Board.

Greater Manchester Police

Detective Superintendent If you have information
Public Protection Section about any crime, phone
Bradford Park
3 Bank Street
Clayton
Manchester
M11 4AA
Your call is free
Tel: 0161 872 5050 You are not asked for your name
Internet: www.gmp.police.uk You may receive a reward

Greater Manchester Probation Area

Assistant Chief Officer (Risk Assessment and Management)
6th Floor
Oakland House
Talbot Road
Old Trafford
Manchester
M16 0PQ

Tel: 0161 872 4802

Internet: www.gm-probation.org.uk

Greater Manchester Victim Support and Witness Service

153-157 Chorley Street
Swinton
Manchester
M27 4AE

Tel: 0161 727 0244

Internet: www.victimsupportmanchester.org.uk Victim Support & Witness Service
Greater Manchester
Victim Support Helpline: 0845 30 30 900

21
This report has been produced by
Greater Manchester Police and
National Probation Service
(Greater Manchester) in
conjunction with members of the
Greater Manchester Multi Agency
Public Protection Arrangements
Strategic Management Board.