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Improve quality standards of work undertaken on MAPPA cases building on evidence of ‘What
MAPPA SMB planned Works’ and best practice.

activity 2007-2010 Review operational structure and organisation of Joint Public Protection Unit.
Review resourcing of MAPPA.
The North Yorkshire MAPPA
Review relevant national, regional and local agency inspections and reports for best practice and
Strategic Management Board recommendations.
(SMB) has produced a rolling Implement revised MAPPA guidance when published.
Provide performance information in relation to operational MAPPA.
three year business plan.
Implement learning from Serious Further Offence reviews, Serious Case reviews and from any
This plan will guide the SMB other relevant agency reviews which involve MAPPA offenders.
with a clear focus upon further Prepare and publish Annual Report in line with national timetable.

developing MAPPA arrangements, Improve public confidence and knowledge of MAPPA.


North Yorkshire and City of York
monitoring and evaluation,
Increase awareness and raise profile of MAPPA within Responsible Authority and duty to
co-operate agencies.
MAPPA Multi-Agency Public Protection Arrangements
community engagement and Improve information sharing with duty to co-operate agencies. Annual Report 2006-07
communication, and training. Improve staff and core group members’ knowledge about MAPPA risk assessment and
management.

Keeping communities safe

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‘‘
Editorial note Welcome to this, the sixth annual report of the North joint Probation and Police Public Protection Unit at police
This year’s annual report is designed and presented very differently from reports produced in previous years. We have chosen a less
Yorkshire and City of York Multi Agency Public headquarters in Newby Wiske. This has greatly improved
formal newsletter style for a number of reasons. The results of a nation-wide survey of MAPPA annual reports undertaken by

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Protection Arrangements (MAPPA). communication exchange and the day to day management
Greater Manchester Probation Area showed that the more traditional report format used in past years did not meet the needs of of violent and sex offenders subject to MAPPA in North
local areas as successfully as the newsletter format. The newsletter format attracted more interest for readers whilst not detracting Sexual and violent offences are dreadful crimes that deeply Yorkshire.
from the level of information imparted. Consultation with our own MAPPA agencies and feedback from our own staff confirmed affect the lives of victims and their families and inspire fear

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this view. We hope you like the changes, and positively welcome any suggestions that you may have for future improvements. in local communities. Their impact can be profound and During the past year, a number of new police and probation
Please contact in the first instance, the MAPPA administrator (see contact details below). long lasting, leaving victims feeling unsafe even in their own appointments have been made to the expanding unit, to be
homes. joined by a new post of MAPPA co-ordinator funded by

C
Contacts police and probation. This is a strategic post to support the
Mappa Administrator
MAPPA procedures, when operating well, can be effective in work of the Strategic Management Board (SMB), and is vital
reducing the likelihood of serious further offences being to ensure that our ambitious business development plans for

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North Yorkshire Police and Probation Public Protection Unit
committed by those subject to MAPPA. In North Yorkshire, the coming year are achieved.
Force Headquarters Newby Wiske Hall Northallerton DL7 9HA the MAPPA agencies have continued to undertake regular
Telephone: 0845 60 60 299

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quality audits of samples of their MAPPA cases, and the In conclusion, this report demonstrates how the MAPPA
findings of these audits is that in the great majority of cases, process of identification, assessment and management of
Useful websites MAPPA procedures are shown to have significantly increased ‘‘
sexual and violent offenders is achieved by applying a

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the degree of protection afforded to the public. structured approach, from prison release through to
www.nyprobation.org.uk supervision and monitoring in the community.
North Yorkshire Probation Area This report, like those in previous years, demonstrates the
positive working relationships that exist between all agencies We hope that you find it both informative and reassuring.
www.northyorkshire.police.uk that together make up the MAPPA structure. Communities
in North Yorkshire and the City of York should feel confident
North Yorkshire Police
and reassured that through our strong partnerships
approach and stringent management of offenders, we are
www.stopitnow.org.uk reducing crime and making our communities safer.
Aims to stop child sexual abuse by encouraging abusers and potential abusers to seek help. They provide adults with the
information they need to recognise worrying behaviour in themselves or others, and with the confidence to take responsible action Realistically, it must be borne in mind that whilst the level of
when they suspect that something is wrong. risk in individual cases may be reduced, it can never be
entirely removed. Locking people up and throwing away the
www.saferchildrenyork.org.uk key, is not a practical solution for all but the highly
A statutory inter-agency forum for agreeing how different services co-operate to protect children in York. It seeks to ensure that the dangerous few. The vast majority of violent and dangerous
children of York are protected from all forms of abuse and neglect by ensuring that everybody working with children works offenders will, at some stage, be released into the
community, and it is the responsibility of the probation Pete Brown Grahame Maxwell Norman Griffin
effectively together.
service, in conjunction with the other MAPPA agencies, to Chief Officer Chief Constable Governor
work with these offenders to help reduce the likelihood of North Yorkshire North Yorkshire HM YOI
www.safeguardingchildren.co.uk them committing serious further offences.
A multi-agency group of senior managers from agencies, organisations and professional groups responsible for safeguarding and Probation Area Police Northallerton
promoting the welfare of children in North Yorkshire. The MAPPA agencies are crucially important in this vital
work, as by working together in a co-ordinated way, it is
www.victimsupport.org.uk possible to share information about an offender and prepare
Victim Support is the independent charity which helps people cope with the effects of crime. joint risk management plans that should reduce the chances
It provides free and confidential support and information to help individuals cope with their experiences. of serious further offences being committed.

www.homeoffice.gov.uk In North Yorkshire the three MAPPA Responsible Authorities,


Police, Probation and Prison Service, have been developing
The Home Office is the government department responsible for leading the national effort to protect the public from terrorism,
closer ways of working. Since February 2006, the Probation
crime and anti-social behaviour. Public Protection Manager has been co-located within the

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Managing Registered Sex Offenders person any changes of address or travel arrangements. Failure to
report will lead to their arrest and prosecution.
By Detective Sergeant Jackie Smart Back in police headquarters, the past year has seen a number of What is MAPPA?

‘‘ The joint Police and Probation Public Protection Unit (PPU) is


based at police headquarters at Newby Wiske, although a
number of staff are located in dispersed locations throughout the
area. The Unit provides specialist advice and support to our
MAPPA partner agencies.

The Unit comprises a small team of police and probation staff


who co-ordinate the registration and monitoring of registered sex
newly created posts in the PPU including a Detective Inspector
who is responsible for the day to day management of the Unit.
A new SOPO officer is responsible for providing support and
guidance to staff from the MAPPA agencies who are involved in
investigating and dealing with MAPPA offenders and potential
MAPPA offenders and on the appropriate use of Sexual Offences
Prevention Orders (SOPOs). In addition, a researcher and an
analyst are now able to prepare detailed reports and analyses to
The North Yorkshire & City of York Multi-Agency Public Protection Arrangements, or
MAPPA, are the means by which local agencies work together to best protect our
community from the serious harm that some offenders may still present after being
offenders and violent offenders. The Unit includes a number of
public protection officers who have direct responsibility for the
assist in the effective management of sex offenders in the
community.
convicted for offences of a sexual or violent nature.
management of registered sex offenders. These officers are
based at local police stations and their responsibilities include
home visits and liaison with other agencies to share information
and assess the risk offenders pose to the public.
‘‘
The current high profile interest in the management of violent
and sex offenders has prompted a lot of debate in the media
about public safety. By working closely with partner agencies and
sharing information appropriately the Public Protection Unit plays
The four key stages of MAPPA
STAGE 1 STAGE 2 STAGE 3 STAGE 4
Persons required to register as ‘sex offenders’ have to report to a vital role in monitoring and managing violent and sex offenders
the police providing certain personal information, as well as their in the community. Identification Information Risk Risk
fingerprints and a photograph. They also have to notify in Sharing Assessment Management

The Local Authority view… risk to specific individuals, particular groups, staff members, or the
wider community. The focus of MAPPA action plans therefore has to Stage 1 – The identification of MAPPA offenders offenders imprisoned for 12 months plus. The full definition is

Identification
STAGE 1
“Having joined the MAPPA core group as the City of York Children be much wider and the breadth of membership of the MAPPA Early identification of those offenders who should be considered more complex and includes those detained under hospital or
and Families representative in Spring 2006, I was instantly struck by panels is essential to ensure key agencies are present to provide under the MAPPA is vital. Three categories of ‘MAPPA offender’ guardianship orders. They usually exit MAPPA when statutory
the parallels between MAPPA processes and those employed with advice, and where necessary, resources, to provide the robustness have been defined to focus risk management. supervision ceases.
respect to child protection concerns in my own agency; where needed to minimise the risks presented by some of the most high Category 3
children considered at risk of significant harm are subject to a multi risk perpetrators as they return to the community.” Other offenders: have been convicted of an offence which
Category 1
agency protection plan which is regularly reviewed and revised Registered Sex Offenders: for the period of their registration. indicates that he/she is capable of causing serious harm to the
according to agreed national standards. John Roughton public and the Responsible Authority reasonably considers that the
Category 2
Acting Group Manager Children’s Services
Whilst child protection processes focus on a named child however, Violent & Other Sex Offenders: often summarised as violent offender may cause serious harm to the public.
City of York Council
MAPPA panels focus on a known perpetrator, who may present a

Stage 2 - Information sharing • have lawful authority;

Information
STAGE 2
The exchange of information is an essential element of effective • be necessary;

Sharing
Lay Advisor view… Within our own area I have attended all MAPPA SMB meetings.
I have also attended level 3 meetings and visited a prison and a
public protection. The North Yorkshire & City of York MAPPA
protocol covers this area in detail but information sharing must:
• be proportionate and undertaken in ways which ensure the
safety and security of the information; and
“2006 has been an interesting year for MAPPA Lay Advisors probation office. I have been struck by the care taken to handle • be accountable.
nationwide. It has been three years since the first Lay Advisors were MAPPA cases to ensure public protection. The complexity and
appointed and a major review into the working of Public Protection sensitivity of the issues involved in MAPPA cases requires a highly
arrangements has been under way. The publication of the new professional response by all agencies involved and the efforts made
guidance for Lay Advisors is expected in the summer of 2007 and it by individual practitioners is a credit to the individuals concerned Stage 3 – Assessing risk Medium: there are identifiable indicators of risk of serious harm.

Assessment
STAGE 3
is hoped that they will improve the role of Lay Advisors and clarify and their Responsible Authorities. Whilst agencies use various methods to assess risk it is important The offender has the potential to cause serious harm but is

Risk
the degree of access to the process that can be expected. For the that we have a common understanding of the terms used to unlikely to do so unless there is a change in circumstances, for
role requires the trust and There is a vacancy for a second Lay Advisor in our area and I would describe risk. The MAPPA use definitions taken from the example, failure to take medicine, loss of accommodation,
co-operation of all agencies. encourage anyone who is interested in serving the community to Probation Service risk assessment tool called OASys. relationship breakdown, and drug or alcohol misuse.
consider applying for the post. It is an interesting and informative
The highlight of my year was the national conference for Lay role and with the publication of the new guidelines, the role of Lay ‘Serious Harm’ is a risk which is life threatening and/or traumatic High: there are identifiable indicators of risk of serious harm. The
Advisors held in Leeds in February 2007. It brought together Lay Advisors will be clarified and the scope of involvement laid down and from which recovery, whether physical or psychological, can potential event could happen at any time and the impact would
Advisors from across England and Wales and established a valuable thus enabling the role to be resourced fully. be expected to be difficult or impossible. be serious.
datum for the appointment and use of Lay Advisors in the future. A I support the planned appointment of the MAPPA co-
wide variety of practice was revealed and the evidence gathered will ordinator for our area, this is a vital post and will Levels of risk Very High: there is an imminent risk of serious harm.
be used in completing the national guidelines. In particular I valued complete the staffing levels agreed for our area.” Low: no significant, current indicators of risk of serious harm. The potential event is more likely than not to happen imminently
the contribution and presentations made by the Public Protection and the impact would be serious.
Unit in the Home Office, the work of the Prison Service, the Crown Venerable Simon Golding
Prosecution Service and the responsibilities of the Parole Board. Lay Advisor
Stage 4 – Risk management Level 3: MAPPP – Multi-Agency Public Protection Panel

Management
STAGE 4
This structure of risk management has been designed to enable Used for the management of the ‘critical few’. Where the

Risk
resources to be used in the most effective and efficient manner. offender is assessed under OASys as being a high or very high risk
of causing serious harm, and presents risks that can only be
Keeping victims at the heart of MAPPA Under the provisions of the ‘Criminal Justice and Court Services Act
2000’, the VLO has statutory responsibility for victim work in cases • The principle is that cases should be managed at the lowest managed by a plan that requires close co-operation at a senior
At the heart of public protection work is the need to protect victims. of serious sexual and violent crime where the offender receives a level consistent with providing a defensible risk management level due to the complexity of the case and/or because of the
The Criminal Justice System has devoted increased attention to prison sentence of 12 months or more. This was further extended plan. unusual resource commitments it requires; OR although not
victim issues over recent years with additional support being under sections 36-44 of the Domestic Violence, Crime and Victims • When deciding about the level of risk, the nature of the risk assessed as a high or very high risk, the case is exceptional
provided through the arrest and pre-court stage by Victim Support Act 2004 to include victims or victims’ families of serious sexual and and how it can be managed should be considered. because of the likelihood of media scrutiny and/or public interest
and Victim Witness Care through what can be a lengthy and difficult violent offences, where offenders have been made the subject of • The levels of risk management do not necessarily equate directly in the management of the case.
time. hospital orders with restriction. to levels of risk but generally the higher the assessed level of
risk, the higher the level of management required. Remember defensible decisions are those taken where:-
After conviction, a victim liaison officer (VLO) from the probation During the coming year, in an
• all reasonable steps have been taken;
service will write to identified victims to offer the facility of contact exciting new development, the
and information. If willing, victims receive basic information three VLOs are being seconded Level 1: Ordinary risk management • reliable assessment methods have been used;
covering the offender’s progress whilst in custody and can have their from probation to Victim Support Used in cases where the risk posed by the offender can be • information has been collected and thoroughly evaluated;
views taken into account by authorities which consider release on to join a new Victim Care Unit managed by one agency without actively or significantly involving • decisions are recorded and subsequently carried out;
any form of licence. This can lead to additional licence conditions (VCU) which has been set up as other agencies. • policies and procedures have been followed; and
that may restrict direct contact or exclude offenders from certain part of the Public Value • everyone adopts an investigative approach and is proactive.
clearly defined geographical areas. Partnerships. The VCU will see all Level 2: Local inter-agency risk management
victims’ services combined into one Used where the active involvement of more than one agency is
Victim staff may continue to be involved in the MAPPA process after unit which will provide a better and more integrated service to required but where either the level of risk or complexity of
the prisoner has been released and serve to ensure that victim needs victims throughout North Yorkshire and the City of York. The new
managing the risk, is not so great as to require referral to level 3.
are taken into account when considering how best to manage VCU will continue to operate closely with the other MAPPA agencies.
individuals within the community.

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‘The critical few’ - MAPPA level 3 protection panel Public protection and approved premises
The aim of approved premises is to protect the public from offenders who pose a
significant risk of harm to others. Everything possible is done to ensure that the public is
Health Representatives Assistant Chief Probation Officer Probation Public Protection Manager
There will be normally two decision-makers With strategic responsibility Chair of the meeting protected from offenders where a risk is posed.
for resources/decisions relating to mental
health, disability, general health etc. Senior Police Officer Management of serious sexual and violent offenders is a joint
With strategic lead on public protection
responsibility of the Police and National Probation Service, working
Prison Representative
If a custody case Police Legal Advisor closely within Home Office guidelines. Locally such cases are subject
Only attends if legal issues are identified
Senior Police Officer
to the Multi-Agency Public Protection Arrangements (MAPPA). The
From local police area with responsibility Victim Liaison Officer (VLO) MAPPA system includes all local agencies meeting regularly to discuss
for intelligence (probation-led). Only attends if there is an
identified victim and the panel needs cases in detail.
more information
Police Public Protection Officer
If a violent or sex offender in Approved premises in North Yorkshire
the community Approved Premises’ Manager There is one approved premises in North Yorkshire, Southview. It provides accommodation for
(probation) those who are on bail, subject to probation supervision or to licence on release from prison.
Social Care This person has strategic responsibility for It is not a permanent home for offenders; it is used to rehabilitate offenders to enable them to
A senior manager representing one of the decisions relating to Approved Premises
following areas: child protection, play a positive role in society.
(previously known as probation hostels)
vulnerable adults, families, Southview offers a high level of supervision in order to protect the public from those who pose
learning disabilities
Senior Probation Officer
the most serious harm. All residents are subject to thorough risk assessments. They have an
In charge of day-to-day management of individual supervision or sentence plan that addresses the causes of their offending. This may
Education Representative the local area’s MAPPA cases and line include receiving drug or alcohol treatment, attending programmes, improving basic skills and
Strategic level, to arrange co-ordinated manager of the Probation Officer working towards employment or longer term accommodation.
links with schools/childcare providers,
if necessary Southview also imposes a night-time curfew and some residents have other specific curfew requirements. There is CCTV
Local Housing Manager surveillance and staff are on duty 24 hours a day, seven days a week. Hostel rules are strictly enforced and there is close
Probation Officer Senior manager who can make allocation liaison between the police, supervising probation staff, courts, prisons, social care and other partner agencies.
If the offender is under probation decisions for accommodation on release Illegal drugs, solvents or alcohol are banned at Southview. Residents are only allowed to bring in prescribed drugs, and
supervision and/or licence, then this person from prison or after a period of residency
in an Approved Premises
these are handed to staff who administer them according to the doctor’s instructions. Residents who break these rules
is the day-to-day ’offender manager’ may be returned to court or prison.

Managing the ‘critical few’ Your questions answered


“I have been chairing the level 3 MAPPA meetings* since My role as chair is to manage What sort of offenders live at Southview Approved I live near Southview Approved Premises – is it safe?
taking up this post in November 2005. Without doubt it the process of this meeting. Premises – is it just sex offenders?
has been one of the most challenging and interesting There is a core group of Approved premises are the safest option for many offenders as
roles that I have undertaken in my 20 years to date in the individuals from each of the Southview Approved Premises accommodates offenders who it allows their risk to be managed. They are required to

THE ROLE OF THE MAPPA CHAIR IN


National Probation Service. agencies who attend most have committed a very wide range of crimes. It is not a comply with all the conditions of their order or licence,
meetings, and in working specialist accommodation or treatment centre for sex including the curfew and any additional restrictions imposed
A diagram above shows who may be sitting at the MAPPA together on such difficult offenders; it holds a range of offenders on bail or licence in the on their movements.
table and I don’t intend to repeat that here. What I want to issues over a long period of community for whom no other types of accommodation
do is explain what it feels like to be at that table. time they have built up a high would be suitable. Facilities such as Southview are a vital part of the public
Let’s look at the case of ‘X’ as an example, who in this case
level of mutual trust and understanding. They have got past
THE CASE OF ‘X’ Why is this type of accommodation needed in North
protection process. They enable successful resettlement of
offenders back in to the community, while contributing to the
the generalised and stereotypical views that can often get in
is a male sex offender. The meeting on X lasts about an hour
the way of effective inter-agency working and are able to Yorkshire? reduction of re-offending.
and follows a set agenda. It starts with a reminder of the
challenge and question each other in a wholly constructive
statutory authority and purpose of the meeting, and a Facilities like these are a vital part of the public protection Residents living at Southview are also required to comply with
way. In working together with a priority on public protection
statement on confidentiality. We then look at the reason for process. Southview enables the successful resettlement of house rules which set out the standards of behaviour expected
they are able, where necessary, to enhance the provision of
X being referred to MAPPA and each agency in turn shares offenders back into the community, while contributing to the of them. There are rules forbidding them to act in such a way
resources.
the relevant information that they have about X. There reduction of re-offending. as to cause disruption to neighbours and the immediate
follows a crucial discussion which seeks to draw out from the And what of X? Well he has been told that he is subject to community, or to bring the premises into disrepute.
information shared a clear understanding of the nature and MAPPA and given information about most aspects of the risk What would happen if Southview Approved Premises
severity of the risks that X presents in the community. management plan. He has been released on licence and is wasn’t available? Any breach of the conditions of residence or the house rules
Particular attention is paid to the risks presented to identified abiding by the conditions of his licence, with its additional renders an offender liable to clear sanctions; either eviction;
past victims and possible future victims if X re-offends. requirements and restrictions. Although he is co-operating If some high risk offenders were not able to go to an approved a return to court or their immediate recall to prison. The policy
well with the agencies working with him, he continues to be premises on release, or as a condition of bail or a community is stringently enforced and there are examples of offenders
The meeting then agrees a risk management plan which is order, then they would be placed in other, less secure forms of being recalled to prison as a preventative measure to avoid the
regarded as posing a potential risk and MAPPA members
intended to manage and minimise each of the identified accommodation, such as local authority housing, voluntary risk of further offences being committed.
continue to meet regularly to review his case and update his
risks. This plan will cover the contributions to be made by all sector hostels, privately rented flats or bed and breakfast
risk management plan.”
the involved agencies, and will also include any disclosures to establishments. It is much more difficult to manage offenders Southview Approved Premises adds to public
third parties that may need to be made. The meeting John Bourton safely and effectively in these settings. This would significantly safety, not diminishes it.
concludes by drawing up an action plan of who is to do Probation Public Protection Manager reduce the protection afforded to the public, since offenders
what, by when, and setting a date for the next meeting would be less tightly monitored and lapses of behaviour would
which will review the actions, update the information and *See previous page for full explanation of the MAPPA management levels be less likely to be detected.
then update the plan.

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MAPPA Statistics for 2006/07 MAPPA statistical commentary


National perspective - Ministerial foreword (2006-07) For the reporting period 1 April 2006 – 31 March 2007
i) Registered Sex Offenders (RSOs): The number of MAPPA Category 1 RSOs in
North Yorkshire continues to show a small year-on-year increase (below 10%),

“These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the
1. Category 1 MAPPA offenders: which is in line with the national trend. The main reason for the steady increase
Registered Sex Offenders (RSO) is the length of time offenders are required to remain on the register which may
Government’s continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new be registration for periods up to 10 years or for life.
i) The number of RSOs living in North Yorkshire on 31 March 2006 – Area
Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home
total, and broken down to named Police Operational Command Unit level:
Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. ii) Breaches of the registration requirement: There has been a slight increase in
Total 359 the number of RSOs who were cautioned or convicted for breaches of the
registration requirement (from 10 in 05/06 to 12 in 06/07) but given the rise in
On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions BCU RSO overall numbers of RSOs this is in effect little change from last year. This
which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk Central 157 illustrates the preparedness of Criminal Justice staff including Police, CPS and
management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the Eastern 113 court service to enforce registration requirements. It demonstrates the continuing
way the MAPPA work. I want to highlight two of them here. effectiveness of a robust approach to the management of registered offenders,
Western 89
the vast majority of whom (97% in North Yorkshire) remain fully compliant with
the requirements of the Sexual Offences Act 2003.
Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think a) The number of RSOs in North Yorkshire per 100,000 head of population:
this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents 48 (an increase of 6.25%) iii) Sexual Offences Prevention Orders (SOPO’s): The number of SOPO
will be able to register a child-protection interest in a named individual with whom they have a personal relationship and who has regular applications has continued to rise (from 7 in 05/06 to 15 in 06/07) and this has in
unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption ii) The number of sex offenders having a registration requirement who turn led to a significant increase (from 5 to 11) in the number of full SOPO’s
that the offences will be disclosed to the parent. were either cautioned or convicted for breaches of the requirement, made by the courts. This reflects an increased confidence in and use of this new
order (introduced in May 2005) by both the police and the courts.
between 1 April 2006 and 31 March 2007:
Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and Total 12 iv) Notification Orders: This is a relatively new civil order available under the
approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that Sexual Offences Act 2003 for sex offenders with no relevant convictions within
robust performance management is in place. To achieve this, we intend to introduce new national standards, which will ensure a iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied England but relevant and related convictions abroad and North Yorkshire has now
consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the standards. for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in had its first Notification Order applied for and granted.
North Yorkshire between 1 April 2006 and 31 March 2007:
v) Foreign Travel Orders: A further civil order from the SOA 2003 seeking to
We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always (a)15 (b)0 (c)11
prevent RSOs travelling abroad to target potential victims overseas.
room for improvement. I commend this annual report to you as an indication of the commitment, skills and achievements of the
professionals, and lay advisers, in managing and monitoring this essential, often difficult area of business.” iv) The number of (a) Notification Orders applied for (b) interim Notification vi) Violent and other sexual offenders: This total is to record those offenders
Orders granted and (c) full Notification Orders imposed by the courts in convicted to 12 months or more incarceration for specified violent or non-
Maria Eagle MP North Yorkshire between 1 April 2006 and 31 March 2007: registerable sex offences, who are now subject to community supervision by
(a)1 (b)0 (c)1 Probation, Youth Offending Teams and Mental Health services. The overall
Parliamentary Under Secretary of State
number of Category 2 living in North Yorkshire & City of York is relatively constant
and is now the same as in 2004/5 following a slight downward fluctuation last
v) The number of Foreign Travel Orders (a) applied for and (b) imposed by
year.
the courts in North Yorkshire between 1 April 2006 and 31 March 2007:
(a)0 (b)0 vii) Other offenders: This category is made up of those offenders who do not fit
either Category 1 or 2, but who have a past relevant MAPPA conviction for
Key achievements MAPPA 2. Category 2 MAPPA offenders:
violence or sexual offending and are seen to pose significant risk of serious harm,
yet are not subject to current sex offender registration or licence supervision. This

2006-07 Agencies Violent offenders and Other Sexual offenders (V&OS)


vi) The number of violent and other sexual offenders (as defined by Section
figure has shown a large increase over last year which is due to a range of factors
including: an increasing number of referrals to MAPPA received from the mental
health services; the transfer of offenders to Category 3 from Categories 1 & 2 on
The following organisations have a legal duty

TOGETHER
327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in North completion of their registration/supervision requirements in order to continue
(set out in the Criminal Justice Act 2003) to work
• Effective and regular MAPPA level 2 and 3 Yorkshire between 1 April 2006 and 31 March 2007: managing the risks; changes over the past year to the way data is gathered. The
meetings continue throughout North together to protect the public. Total 165 introduction of central screening of all MAPPA referrals in the coming year is likely
to lead to more robust and consistent interpretation of the definition for Category
Yorkshire. 3 which is expected to lead to an overall reduction of offenders in this category.
• Police 3. Category 3 MAPPA offenders:
• Joint risk training and briefing events viii) Offenders managed through MAPPA meetings at levels 2 and 3: The
Other Offenders (OthO)
involving MAPPA agencies and the Public • Probation vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of
number of offenders managed at level 3, (the highest level of management for
the “critical few”), has remained fairly static over the past year, showing only a
Protection Unit. • Prisons the Criminal Justice Act (2003)) between 1 April 2006 and 31 March 2007: small increase (from 17 to 21). However, there has been a very considerable
Total 81 increase in the number of offenders managed at level 2 (from 81 to 179). In
• Expanded joint Police/Probation Public
Protection Unit. • Youth Offending Teams part, this is due to changes in the way that data is gathered, but it does largely
WORKING

viii) Offenders managed though level 3 (MAPPP) & level 2 reflect the increase in Category 3 (Other) offenders noted in (vii) above. Increased

• Agreement to create and fund a new • Jobcentre Plus (local inter-agency management)
use of Level 2 (multi- agency) risk management is a cause for concern since it
represents a significant increase in the demands made upon limited resources.
This identifies how many MAPPA offenders in each of the three Categories An ongoing review of MAPPA procedures has concluded that a central screening
strategic post of MAPPA co-ordinator. • Local Education Authorities (i.e. (1)- RSOs, (2)- V&OS and (3)- OthO (see above) have been managed process is required for all MAPPA referrals which is being introduced in the
• Completion of quality audits on level 2 and • Local Housing Authorities through the MAPPP (level 3) and through local inter-agency risk coming year. It is anticipated that more rigorous and consistent interpretation of
level 3 cases. management (level 2) between 1 April 2006 and 31 March 2007: MAPPA referral criteria will in time reduce the number of cases currently requiring
management at level 2.
• Registered Social Landlords
• Increased co-operation between MAPPA and Cat.1 (RSO) Cat.2 (Violent) Cat.3(Other)
ix) Breaches and further offending: (a) The number of cases managed at levels 2
the newly established Safeguarding Children • Social Care Level 2 60 60 72
and 3 where the offenders were returned to custody for breach of licence has
Boards, including joint training. Level 3 7 5 9 increased by 45% (24 in 05/06 and 35 in 06/07). In part this is accounted for by
• Strategic Health Authorities, Primary Level 1 292 100 0 the overall increase in numbers of MAPPA offenders but is also clearly suggests
• Exploratory work on the feasibility of Care Trusts and NHS Trusts
that vigilance and effective offender management is successfully tackling breaches
introducing‘Circles of Support and (ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1 April 2006 in agreed licence conditions.
and 31 March 2007, how many, whilst managed at that level:
Accountability’ for improving the safe • Electronic Monitoring Providers (b) The small number of offenders returned to custody for breaching civil Sexual
(a) Were returned to custody for a breach of licence?
management of sex offenders in the community. (b) Were returned to custody for a breach of a sexual offences prevention
Offences Prevention Orders suggests that most offenders are now familiar with
MAPPA requirements and are generally compliant.
order?
(c) Were charged with a further serious sexual or violent offence? (c) The number of offenders convicted for serious further offences is one more
(a) (b) (c) than last year (from 1 to 2). Whilst any serious further offending is a regrettable
Level 2 28 1 1 tragedy, this year’s figures continue to indicate that the MAPPA is successful in
Level 3 4 0 1 managing those offenders who pose the greatest threat to the wider community.

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MAPPA Statistics for 2006/07 MAPPA statistical commentary


National perspective - Ministerial foreword (2006-07) For the reporting period 1 April 2006 – 31 March 2007
i) Registered Sex Offenders (RSOs): The number of MAPPA Category 1 RSOs in
North Yorkshire continues to show a small year-on-year increase (below 10%),

“These are the sixth MAPPA annual reports, and the first with a foreword by the Ministry of Justice. I want, first of all, to underline the
1. Category 1 MAPPA offenders: which is in line with the national trend. The main reason for the steady increase
Registered Sex Offenders (RSO) is the length of time offenders are required to remain on the register which may
Government’s continued commitment to these arrangements. Protecting the public from dangerous offenders is a core aim for the new be registration for periods up to 10 years or for life.
i) The number of RSOs living in North Yorkshire on 31 March 2006 – Area
Department. Just as the effectiveness of MAPPA locally depends on the quality of working relationships, we will work with the Home
total, and broken down to named Police Operational Command Unit level:
Office, the Police, and others, to develop the best possible framework within which the MAPPA can operate. ii) Breaches of the registration requirement: There has been a slight increase in
Total 359 the number of RSOs who were cautioned or convicted for breaches of the
registration requirement (from 10 in 05/06 to 12 in 06/07) but given the rise in
On 13 June, the Government published a Review of the Protection of Children from Sex Offenders. This sets out a programme of actions BCU RSO overall numbers of RSOs this is in effect little change from last year. This
which include developing the use of drug treatment for sex offenders and piloting the use of compulsory polygraph testing as a risk Central 157 illustrates the preparedness of Criminal Justice staff including Police, CPS and
management tool, enhancements to the regime operating at Approved Premises, and also a range of actions impacting directly upon the Eastern 113 court service to enforce registration requirements. It demonstrates the continuing
way the MAPPA work. I want to highlight two of them here. effectiveness of a robust approach to the management of registered offenders,
Western 89
the vast majority of whom (97% in North Yorkshire) remain fully compliant with
the requirements of the Sexual Offences Act 2003.
Firstly, research tells us that the arrangements are already used successfully to disclose information about dangerous offenders but we think a) The number of RSOs in North Yorkshire per 100,000 head of population:
this can be improved upon. MAPPA agencies will be required to consider disclosure in every case. We will pilot a scheme where parents 48 (an increase of 6.25%) iii) Sexual Offences Prevention Orders (SOPO’s): The number of SOPO
will be able to register a child-protection interest in a named individual with whom they have a personal relationship and who has regular applications has continued to rise (from 7 in 05/06 to 15 in 06/07) and this has in
unsupervised access to their child. If that person has convictions for child sex offences and the child is at risk, there will be a presumption ii) The number of sex offenders having a registration requirement who turn led to a significant increase (from 5 to 11) in the number of full SOPO’s
that the offences will be disclosed to the parent. were either cautioned or convicted for breaches of the requirement, made by the courts. This reflects an increased confidence in and use of this new
order (introduced in May 2005) by both the police and the courts.
between 1 April 2006 and 31 March 2007:
Secondly, as MAPPA has developed over the past 6 years, best practice models have been identified which show that specific roles and Total 12 iv) Notification Orders: This is a relatively new civil order available under the
approaches are required to ensure it is managed effectively. We are committed to strengthening MAPPA arrangements and ensuring that Sexual Offences Act 2003 for sex offenders with no relevant convictions within
robust performance management is in place. To achieve this, we intend to introduce new national standards, which will ensure a iii) The number of (a) Sexual Offences Prevention Orders (SOPOs) applied England but relevant and related convictions abroad and North Yorkshire has now
consistent approach across Areas and we will be making available £1.2million to support Areas in implementing the standards. for (b) interim SOPOs granted and (c) full SOPOs imposed by the courts in had its first Notification Order applied for and granted.
North Yorkshire between 1 April 2006 and 31 March 2007:
v) Foreign Travel Orders: A further civil order from the SOA 2003 seeking to
We aim to do everything that can reasonably be done to protect people from known, dangerous offenders. We know that there is always (a)15 (b)0 (c)11
prevent RSOs travelling abroad to target potential victims overseas.
room for improvement. I commend this annual report to you as an indication of the commitment, skills and achievements of the
professionals, and lay advisers, in managing and monitoring this essential, often difficult area of business.” iv) The number of (a) Notification Orders applied for (b) interim Notification vi) Violent and other sexual offenders: This total is to record those offenders
Orders granted and (c) full Notification Orders imposed by the courts in convicted to 12 months or more incarceration for specified violent or non-
Maria Eagle MP North Yorkshire between 1 April 2006 and 31 March 2007: registerable sex offences, who are now subject to community supervision by
(a)1 (b)0 (c)1 Probation, Youth Offending Teams and Mental Health services. The overall
Parliamentary Under Secretary of State
number of Category 2 living in North Yorkshire & City of York is relatively constant
and is now the same as in 2004/5 following a slight downward fluctuation last
v) The number of Foreign Travel Orders (a) applied for and (b) imposed by
year.
the courts in North Yorkshire between 1 April 2006 and 31 March 2007:
(a)0 (b)0 vii) Other offenders: This category is made up of those offenders who do not fit
either Category 1 or 2, but who have a past relevant MAPPA conviction for
Key achievements MAPPA 2. Category 2 MAPPA offenders:
violence or sexual offending and are seen to pose significant risk of serious harm,
yet are not subject to current sex offender registration or licence supervision. This

2006-07 Agencies Violent offenders and Other Sexual offenders (V&OS)


vi) The number of violent and other sexual offenders (as defined by Section
figure has shown a large increase over last year which is due to a range of factors
including: an increasing number of referrals to MAPPA received from the mental
health services; the transfer of offenders to Category 3 from Categories 1 & 2 on
The following organisations have a legal duty

TOGETHER
327 (3), (4) and (5) of the Criminal Justice Act (2003)) living in North completion of their registration/supervision requirements in order to continue
(set out in the Criminal Justice Act 2003) to work
• Effective and regular MAPPA level 2 and 3 Yorkshire between 1 April 2006 and 31 March 2007: managing the risks; changes over the past year to the way data is gathered. The
meetings continue throughout North together to protect the public. Total 165 introduction of central screening of all MAPPA referrals in the coming year is likely
to lead to more robust and consistent interpretation of the definition for Category
Yorkshire. 3 which is expected to lead to an overall reduction of offenders in this category.
• Police 3. Category 3 MAPPA offenders:
• Joint risk training and briefing events viii) Offenders managed through MAPPA meetings at levels 2 and 3: The
Other Offenders (OthO)
involving MAPPA agencies and the Public • Probation vii) The number of ‘other offenders’ (as defined by Section 325 (2)(b) of
number of offenders managed at level 3, (the highest level of management for
the “critical few”), has remained fairly static over the past year, showing only a
Protection Unit. • Prisons the Criminal Justice Act (2003)) between 1 April 2006 and 31 March 2007: small increase (from 17 to 21). However, there has been a very considerable
Total 81 increase in the number of offenders managed at level 2 (from 81 to 179). In
• Expanded joint Police/Probation Public
Protection Unit. • Youth Offending Teams part, this is due to changes in the way that data is gathered, but it does largely
WORKING

viii) Offenders managed though level 3 (MAPPP) & level 2 reflect the increase in Category 3 (Other) offenders noted in (vii) above. Increased

• Agreement to create and fund a new • Jobcentre Plus (local inter-agency management)
use of Level 2 (multi- agency) risk management is a cause for concern since it
represents a significant increase in the demands made upon limited resources.
This identifies how many MAPPA offenders in each of the three Categories An ongoing review of MAPPA procedures has concluded that a central screening
strategic post of MAPPA co-ordinator. • Local Education Authorities (i.e. (1)- RSOs, (2)- V&OS and (3)- OthO (see above) have been managed process is required for all MAPPA referrals which is being introduced in the
• Completion of quality audits on level 2 and • Local Housing Authorities through the MAPPP (level 3) and through local inter-agency risk coming year. It is anticipated that more rigorous and consistent interpretation of
level 3 cases. management (level 2) between 1 April 2006 and 31 March 2007: MAPPA referral criteria will in time reduce the number of cases currently requiring
management at level 2.
• Registered Social Landlords
• Increased co-operation between MAPPA and Cat.1 (RSO) Cat.2 (Violent) Cat.3(Other)
ix) Breaches and further offending: (a) The number of cases managed at levels 2
the newly established Safeguarding Children • Social Care Level 2 60 60 72
and 3 where the offenders were returned to custody for breach of licence has
Boards, including joint training. Level 3 7 5 9 increased by 45% (24 in 05/06 and 35 in 06/07). In part this is accounted for by
• Strategic Health Authorities, Primary Level 1 292 100 0 the overall increase in numbers of MAPPA offenders but is also clearly suggests
• Exploratory work on the feasibility of Care Trusts and NHS Trusts
that vigilance and effective offender management is successfully tackling breaches
introducing‘Circles of Support and (ix) Of the cases managed at levels 3 or 2 (i.e. (viii)) between 1 April 2006 in agreed licence conditions.
and 31 March 2007, how many, whilst managed at that level:
Accountability’ for improving the safe • Electronic Monitoring Providers (b) The small number of offenders returned to custody for breaching civil Sexual
(a) Were returned to custody for a breach of licence?
management of sex offenders in the community. (b) Were returned to custody for a breach of a sexual offences prevention
Offences Prevention Orders suggests that most offenders are now familiar with
MAPPA requirements and are generally compliant.
order?
(c) Were charged with a further serious sexual or violent offence? (c) The number of offenders convicted for serious further offences is one more
(a) (b) (c) than last year (from 1 to 2). Whilst any serious further offending is a regrettable
Level 2 28 1 1 tragedy, this year’s figures continue to indicate that the MAPPA is successful in
Level 3 4 0 1 managing those offenders who pose the greatest threat to the wider community.

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‘The critical few’ - MAPPA level 3 protection panel Public protection and approved premises
The aim of approved premises is to protect the public from offenders who pose a
significant risk of harm to others. Everything possible is done to ensure that the public is
Health Representatives Assistant Chief Probation Officer Probation Public Protection Manager
There will be normally two decision-makers With strategic responsibility Chair of the meeting protected from offenders where a risk is posed.
for resources/decisions relating to mental
health, disability, general health etc. Senior Police Officer Management of serious sexual and violent offenders is a joint
With strategic lead on public protection
responsibility of the Police and National Probation Service, working
Prison Representative
If a custody case Police Legal Advisor closely within Home Office guidelines. Locally such cases are subject
Only attends if legal issues are identified
Senior Police Officer
to the Multi-Agency Public Protection Arrangements (MAPPA). The
From local police area with responsibility Victim Liaison Officer (VLO) MAPPA system includes all local agencies meeting regularly to discuss
for intelligence (probation-led). Only attends if there is an
identified victim and the panel needs cases in detail.
more information
Police Public Protection Officer
If a violent or sex offender in Approved premises in North Yorkshire
the community Approved Premises’ Manager There is one approved premises in North Yorkshire, Southview. It provides accommodation for
(probation) those who are on bail, subject to probation supervision or to licence on release from prison.
Social Care This person has strategic responsibility for It is not a permanent home for offenders; it is used to rehabilitate offenders to enable them to
A senior manager representing one of the decisions relating to Approved Premises
following areas: child protection, play a positive role in society.
(previously known as probation hostels)
vulnerable adults, families, Southview offers a high level of supervision in order to protect the public from those who pose
learning disabilities
Senior Probation Officer
the most serious harm. All residents are subject to thorough risk assessments. They have an
In charge of day-to-day management of individual supervision or sentence plan that addresses the causes of their offending. This may
Education Representative the local area’s MAPPA cases and line include receiving drug or alcohol treatment, attending programmes, improving basic skills and
Strategic level, to arrange co-ordinated manager of the Probation Officer working towards employment or longer term accommodation.
links with schools/childcare providers,
if necessary Southview also imposes a night-time curfew and some residents have other specific curfew requirements. There is CCTV
Local Housing Manager surveillance and staff are on duty 24 hours a day, seven days a week. Hostel rules are strictly enforced and there is close
Probation Officer Senior manager who can make allocation liaison between the police, supervising probation staff, courts, prisons, social care and other partner agencies.
If the offender is under probation decisions for accommodation on release Illegal drugs, solvents or alcohol are banned at Southview. Residents are only allowed to bring in prescribed drugs, and
supervision and/or licence, then this person from prison or after a period of residency
in an Approved Premises
these are handed to staff who administer them according to the doctor’s instructions. Residents who break these rules
is the day-to-day ’offender manager’ may be returned to court or prison.

Managing the ‘critical few’ Your questions answered


“I have been chairing the level 3 MAPPA meetings* since My role as chair is to manage What sort of offenders live at Southview Approved I live near Southview Approved Premises – is it safe?
taking up this post in November 2005. Without doubt it the process of this meeting. Premises – is it just sex offenders?
has been one of the most challenging and interesting There is a core group of Approved premises are the safest option for many offenders as
roles that I have undertaken in my 20 years to date in the individuals from each of the Southview Approved Premises accommodates offenders who it allows their risk to be managed. They are required to

THE ROLE OF THE MAPPA CHAIR IN


National Probation Service. agencies who attend most have committed a very wide range of crimes. It is not a comply with all the conditions of their order or licence,
meetings, and in working specialist accommodation or treatment centre for sex including the curfew and any additional restrictions imposed
A diagram above shows who may be sitting at the MAPPA together on such difficult offenders; it holds a range of offenders on bail or licence in the on their movements.
table and I don’t intend to repeat that here. What I want to issues over a long period of community for whom no other types of accommodation
do is explain what it feels like to be at that table. time they have built up a high would be suitable. Facilities such as Southview are a vital part of the public
Let’s look at the case of ‘X’ as an example, who in this case
level of mutual trust and understanding. They have got past
THE CASE OF ‘X’ Why is this type of accommodation needed in North
protection process. They enable successful resettlement of
offenders back in to the community, while contributing to the
the generalised and stereotypical views that can often get in
is a male sex offender. The meeting on X lasts about an hour
the way of effective inter-agency working and are able to Yorkshire? reduction of re-offending.
and follows a set agenda. It starts with a reminder of the
challenge and question each other in a wholly constructive
statutory authority and purpose of the meeting, and a Facilities like these are a vital part of the public protection Residents living at Southview are also required to comply with
way. In working together with a priority on public protection
statement on confidentiality. We then look at the reason for process. Southview enables the successful resettlement of house rules which set out the standards of behaviour expected
they are able, where necessary, to enhance the provision of
X being referred to MAPPA and each agency in turn shares offenders back into the community, while contributing to the of them. There are rules forbidding them to act in such a way
resources.
the relevant information that they have about X. There reduction of re-offending. as to cause disruption to neighbours and the immediate
follows a crucial discussion which seeks to draw out from the And what of X? Well he has been told that he is subject to community, or to bring the premises into disrepute.
information shared a clear understanding of the nature and MAPPA and given information about most aspects of the risk What would happen if Southview Approved Premises
severity of the risks that X presents in the community. management plan. He has been released on licence and is wasn’t available? Any breach of the conditions of residence or the house rules
Particular attention is paid to the risks presented to identified abiding by the conditions of his licence, with its additional renders an offender liable to clear sanctions; either eviction;
past victims and possible future victims if X re-offends. requirements and restrictions. Although he is co-operating If some high risk offenders were not able to go to an approved a return to court or their immediate recall to prison. The policy
well with the agencies working with him, he continues to be premises on release, or as a condition of bail or a community is stringently enforced and there are examples of offenders
The meeting then agrees a risk management plan which is order, then they would be placed in other, less secure forms of being recalled to prison as a preventative measure to avoid the
regarded as posing a potential risk and MAPPA members
intended to manage and minimise each of the identified accommodation, such as local authority housing, voluntary risk of further offences being committed.
continue to meet regularly to review his case and update his
risks. This plan will cover the contributions to be made by all sector hostels, privately rented flats or bed and breakfast
risk management plan.”
the involved agencies, and will also include any disclosures to establishments. It is much more difficult to manage offenders Southview Approved Premises adds to public
third parties that may need to be made. The meeting John Bourton safely and effectively in these settings. This would significantly safety, not diminishes it.
concludes by drawing up an action plan of who is to do Probation Public Protection Manager reduce the protection afforded to the public, since offenders
what, by when, and setting a date for the next meeting would be less tightly monitored and lapses of behaviour would
which will review the actions, update the information and *See previous page for full explanation of the MAPPA management levels be less likely to be detected.
then update the plan.

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Managing Registered Sex Offenders person any changes of address or travel arrangements. Failure to
report will lead to their arrest and prosecution.
By Detective Sergeant Jackie Smart Back in police headquarters, the past year has seen a number of What is MAPPA?

‘‘ The joint Police and Probation Public Protection Unit (PPU) is


based at police headquarters at Newby Wiske, although a
number of staff are located in dispersed locations throughout the
area. The Unit provides specialist advice and support to our
MAPPA partner agencies.

The Unit comprises a small team of police and probation staff


who co-ordinate the registration and monitoring of registered sex
newly created posts in the PPU including a Detective Inspector
who is responsible for the day to day management of the Unit.
A new SOPO officer is responsible for providing support and
guidance to staff from the MAPPA agencies who are involved in
investigating and dealing with MAPPA offenders and potential
MAPPA offenders and on the appropriate use of Sexual Offences
Prevention Orders (SOPOs). In addition, a researcher and an
analyst are now able to prepare detailed reports and analyses to
The North Yorkshire & City of York Multi-Agency Public Protection Arrangements, or
MAPPA, are the means by which local agencies work together to best protect our
community from the serious harm that some offenders may still present after being
offenders and violent offenders. The Unit includes a number of
public protection officers who have direct responsibility for the
assist in the effective management of sex offenders in the
community.
convicted for offences of a sexual or violent nature.
management of registered sex offenders. These officers are
based at local police stations and their responsibilities include
home visits and liaison with other agencies to share information
and assess the risk offenders pose to the public.
‘‘
The current high profile interest in the management of violent
and sex offenders has prompted a lot of debate in the media
about public safety. By working closely with partner agencies and
sharing information appropriately the Public Protection Unit plays
The four key stages of MAPPA
STAGE 1 STAGE 2 STAGE 3 STAGE 4
Persons required to register as ‘sex offenders’ have to report to a vital role in monitoring and managing violent and sex offenders
the police providing certain personal information, as well as their in the community. Identification Information Risk Risk
fingerprints and a photograph. They also have to notify in Sharing Assessment Management

The Local Authority view… risk to specific individuals, particular groups, staff members, or the
wider community. The focus of MAPPA action plans therefore has to Stage 1 – The identification of MAPPA offenders offenders imprisoned for 12 months plus. The full definition is

Identification
STAGE 1
“Having joined the MAPPA core group as the City of York Children be much wider and the breadth of membership of the MAPPA Early identification of those offenders who should be considered more complex and includes those detained under hospital or
and Families representative in Spring 2006, I was instantly struck by panels is essential to ensure key agencies are present to provide under the MAPPA is vital. Three categories of ‘MAPPA offender’ guardianship orders. They usually exit MAPPA when statutory
the parallels between MAPPA processes and those employed with advice, and where necessary, resources, to provide the robustness have been defined to focus risk management. supervision ceases.
respect to child protection concerns in my own agency; where needed to minimise the risks presented by some of the most high Category 3
children considered at risk of significant harm are subject to a multi risk perpetrators as they return to the community.” Other offenders: have been convicted of an offence which
Category 1
agency protection plan which is regularly reviewed and revised Registered Sex Offenders: for the period of their registration. indicates that he/she is capable of causing serious harm to the
according to agreed national standards. John Roughton public and the Responsible Authority reasonably considers that the
Category 2
Acting Group Manager Children’s Services
Whilst child protection processes focus on a named child however, Violent & Other Sex Offenders: often summarised as violent offender may cause serious harm to the public.
City of York Council
MAPPA panels focus on a known perpetrator, who may present a

Stage 2 - Information sharing • have lawful authority;

Information
STAGE 2
The exchange of information is an essential element of effective • be necessary;

Sharing
Lay Advisor view… Within our own area I have attended all MAPPA SMB meetings.
I have also attended level 3 meetings and visited a prison and a
public protection. The North Yorkshire & City of York MAPPA
protocol covers this area in detail but information sharing must:
• be proportionate and undertaken in ways which ensure the
safety and security of the information; and
“2006 has been an interesting year for MAPPA Lay Advisors probation office. I have been struck by the care taken to handle • be accountable.
nationwide. It has been three years since the first Lay Advisors were MAPPA cases to ensure public protection. The complexity and
appointed and a major review into the working of Public Protection sensitivity of the issues involved in MAPPA cases requires a highly
arrangements has been under way. The publication of the new professional response by all agencies involved and the efforts made
guidance for Lay Advisors is expected in the summer of 2007 and it by individual practitioners is a credit to the individuals concerned Stage 3 – Assessing risk Medium: there are identifiable indicators of risk of serious harm.

Assessment
STAGE 3
is hoped that they will improve the role of Lay Advisors and clarify and their Responsible Authorities. Whilst agencies use various methods to assess risk it is important The offender has the potential to cause serious harm but is

Risk
the degree of access to the process that can be expected. For the that we have a common understanding of the terms used to unlikely to do so unless there is a change in circumstances, for
role requires the trust and There is a vacancy for a second Lay Advisor in our area and I would describe risk. The MAPPA use definitions taken from the example, failure to take medicine, loss of accommodation,
co-operation of all agencies. encourage anyone who is interested in serving the community to Probation Service risk assessment tool called OASys. relationship breakdown, and drug or alcohol misuse.
consider applying for the post. It is an interesting and informative
The highlight of my year was the national conference for Lay role and with the publication of the new guidelines, the role of Lay ‘Serious Harm’ is a risk which is life threatening and/or traumatic High: there are identifiable indicators of risk of serious harm. The
Advisors held in Leeds in February 2007. It brought together Lay Advisors will be clarified and the scope of involvement laid down and from which recovery, whether physical or psychological, can potential event could happen at any time and the impact would
Advisors from across England and Wales and established a valuable thus enabling the role to be resourced fully. be expected to be difficult or impossible. be serious.
datum for the appointment and use of Lay Advisors in the future. A I support the planned appointment of the MAPPA co-
wide variety of practice was revealed and the evidence gathered will ordinator for our area, this is a vital post and will Levels of risk Very High: there is an imminent risk of serious harm.
be used in completing the national guidelines. In particular I valued complete the staffing levels agreed for our area.” Low: no significant, current indicators of risk of serious harm. The potential event is more likely than not to happen imminently
the contribution and presentations made by the Public Protection and the impact would be serious.
Unit in the Home Office, the work of the Prison Service, the Crown Venerable Simon Golding
Prosecution Service and the responsibilities of the Parole Board. Lay Advisor
Stage 4 – Risk management Level 3: MAPPP – Multi-Agency Public Protection Panel

Management
STAGE 4
This structure of risk management has been designed to enable Used for the management of the ‘critical few’. Where the

Risk
resources to be used in the most effective and efficient manner. offender is assessed under OASys as being a high or very high risk
of causing serious harm, and presents risks that can only be
Keeping victims at the heart of MAPPA Under the provisions of the ‘Criminal Justice and Court Services Act
2000’, the VLO has statutory responsibility for victim work in cases • The principle is that cases should be managed at the lowest managed by a plan that requires close co-operation at a senior
At the heart of public protection work is the need to protect victims. of serious sexual and violent crime where the offender receives a level consistent with providing a defensible risk management level due to the complexity of the case and/or because of the
The Criminal Justice System has devoted increased attention to prison sentence of 12 months or more. This was further extended plan. unusual resource commitments it requires; OR although not
victim issues over recent years with additional support being under sections 36-44 of the Domestic Violence, Crime and Victims • When deciding about the level of risk, the nature of the risk assessed as a high or very high risk, the case is exceptional
provided through the arrest and pre-court stage by Victim Support Act 2004 to include victims or victims’ families of serious sexual and and how it can be managed should be considered. because of the likelihood of media scrutiny and/or public interest
and Victim Witness Care through what can be a lengthy and difficult violent offences, where offenders have been made the subject of • The levels of risk management do not necessarily equate directly in the management of the case.
time. hospital orders with restriction. to levels of risk but generally the higher the assessed level of
risk, the higher the level of management required. Remember defensible decisions are those taken where:-
After conviction, a victim liaison officer (VLO) from the probation During the coming year, in an
• all reasonable steps have been taken;
service will write to identified victims to offer the facility of contact exciting new development, the
and information. If willing, victims receive basic information three VLOs are being seconded Level 1: Ordinary risk management • reliable assessment methods have been used;
covering the offender’s progress whilst in custody and can have their from probation to Victim Support Used in cases where the risk posed by the offender can be • information has been collected and thoroughly evaluated;
views taken into account by authorities which consider release on to join a new Victim Care Unit managed by one agency without actively or significantly involving • decisions are recorded and subsequently carried out;
any form of licence. This can lead to additional licence conditions (VCU) which has been set up as other agencies. • policies and procedures have been followed; and
that may restrict direct contact or exclude offenders from certain part of the Public Value • everyone adopts an investigative approach and is proactive.
clearly defined geographical areas. Partnerships. The VCU will see all Level 2: Local inter-agency risk management
victims’ services combined into one Used where the active involvement of more than one agency is
Victim staff may continue to be involved in the MAPPA process after unit which will provide a better and more integrated service to required but where either the level of risk or complexity of
the prisoner has been released and serve to ensure that victim needs victims throughout North Yorkshire and the City of York. The new
managing the risk, is not so great as to require referral to level 3.
are taken into account when considering how best to manage VCU will continue to operate closely with the other MAPPA agencies.
individuals within the community.

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Improve quality standards of work undertaken on MAPPA cases building on evidence of ‘What
MAPPA SMB planned Works’ and best practice.

activity 2007-2010 Review operational structure and organisation of Joint Public Protection Unit.
Review resourcing of MAPPA.
The North Yorkshire MAPPA
Review relevant national, regional and local agency inspections and reports for best practice and
Strategic Management Board recommendations.
(SMB) has produced a rolling Implement revised MAPPA guidance when published.
Provide performance information in relation to operational MAPPA.
three year business plan.
Implement learning from Serious Further Offence reviews, Serious Case reviews and from any
This plan will guide the SMB other relevant agency reviews which involve MAPPA offenders.
with a clear focus upon further Prepare and publish Annual Report in line with national timetable.

developing MAPPA arrangements, Improve public confidence and knowledge of MAPPA.


North Yorkshire and City of York
monitoring and evaluation,
Increase awareness and raise profile of MAPPA within Responsible Authority and duty to
co-operate agencies.
MAPPA Multi-Agency Public Protection Arrangements
community engagement and Improve information sharing with duty to co-operate agencies. Annual Report 2006-07
communication, and training. Improve staff and core group members’ knowledge about MAPPA risk assessment and
management.

Keeping communities safe

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‘‘
Editorial note Welcome to this, the sixth annual report of the North joint Probation and Police Public Protection Unit at police
This year’s annual report is designed and presented very differently from reports produced in previous years. We have chosen a less
Yorkshire and City of York Multi Agency Public headquarters in Newby Wiske. This has greatly improved
formal newsletter style for a number of reasons. The results of a nation-wide survey of MAPPA annual reports undertaken by

M
Protection Arrangements (MAPPA). communication exchange and the day to day management
Greater Manchester Probation Area showed that the more traditional report format used in past years did not meet the needs of of violent and sex offenders subject to MAPPA in North
local areas as successfully as the newsletter format. The newsletter format attracted more interest for readers whilst not detracting Sexual and violent offences are dreadful crimes that deeply Yorkshire.
from the level of information imparted. Consultation with our own MAPPA agencies and feedback from our own staff confirmed affect the lives of victims and their families and inspire fear

O
this view. We hope you like the changes, and positively welcome any suggestions that you may have for future improvements. in local communities. Their impact can be profound and During the past year, a number of new police and probation
Please contact in the first instance, the MAPPA administrator (see contact details below). long lasting, leaving victims feeling unsafe even in their own appointments have been made to the expanding unit, to be
homes. joined by a new post of MAPPA co-ordinator funded by

C
Contacts police and probation. This is a strategic post to support the
Mappa Administrator
MAPPA procedures, when operating well, can be effective in work of the Strategic Management Board (SMB), and is vital
reducing the likelihood of serious further offences being to ensure that our ambitious business development plans for

L
North Yorkshire Police and Probation Public Protection Unit
committed by those subject to MAPPA. In North Yorkshire, the coming year are achieved.
Force Headquarters Newby Wiske Hall Northallerton DL7 9HA the MAPPA agencies have continued to undertake regular
Telephone: 0845 60 60 299

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quality audits of samples of their MAPPA cases, and the In conclusion, this report demonstrates how the MAPPA
findings of these audits is that in the great majority of cases, process of identification, assessment and management of
Useful websites MAPPA procedures are shown to have significantly increased ‘‘
sexual and violent offenders is achieved by applying a

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the degree of protection afforded to the public. structured approach, from prison release through to
www.nyprobation.org.uk supervision and monitoring in the community.
North Yorkshire Probation Area This report, like those in previous years, demonstrates the
positive working relationships that exist between all agencies We hope that you find it both informative and reassuring.
www.northyorkshire.police.uk that together make up the MAPPA structure. Communities
in North Yorkshire and the City of York should feel confident
North Yorkshire Police
and reassured that through our strong partnerships
approach and stringent management of offenders, we are
www.stopitnow.org.uk reducing crime and making our communities safer.
Aims to stop child sexual abuse by encouraging abusers and potential abusers to seek help. They provide adults with the
information they need to recognise worrying behaviour in themselves or others, and with the confidence to take responsible action Realistically, it must be borne in mind that whilst the level of
when they suspect that something is wrong. risk in individual cases may be reduced, it can never be
entirely removed. Locking people up and throwing away the
www.saferchildrenyork.org.uk key, is not a practical solution for all but the highly
A statutory inter-agency forum for agreeing how different services co-operate to protect children in York. It seeks to ensure that the dangerous few. The vast majority of violent and dangerous
children of York are protected from all forms of abuse and neglect by ensuring that everybody working with children works offenders will, at some stage, be released into the
community, and it is the responsibility of the probation Pete Brown Grahame Maxwell Norman Griffin
effectively together.
service, in conjunction with the other MAPPA agencies, to Chief Officer Chief Constable Governor
work with these offenders to help reduce the likelihood of North Yorkshire North Yorkshire HM YOI
www.safeguardingchildren.co.uk them committing serious further offences.
A multi-agency group of senior managers from agencies, organisations and professional groups responsible for safeguarding and Probation Area Police Northallerton
promoting the welfare of children in North Yorkshire. The MAPPA agencies are crucially important in this vital
work, as by working together in a co-ordinated way, it is
www.victimsupport.org.uk possible to share information about an offender and prepare
Victim Support is the independent charity which helps people cope with the effects of crime. joint risk management plans that should reduce the chances
It provides free and confidential support and information to help individuals cope with their experiences. of serious further offences being committed.

www.homeoffice.gov.uk In North Yorkshire the three MAPPA Responsible Authorities,


Police, Probation and Prison Service, have been developing
The Home Office is the government department responsible for leading the national effort to protect the public from terrorism,
closer ways of working. Since February 2006, the Probation
crime and anti-social behaviour. Public Protection Manager has been co-located within the

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