west yorkshire annual report 09/10 - justice.gov.uk · 06 how west yorkshire police works with...

westyorkshireannualreport09/10

02 mappa annual report 09/10

03 introduction

04 the mappa framework

05 how mappa operates locally

06 how west yorkshire police works with mappa

07 how west yorkshire probation trust works with mappa

08 how yorkshire and humberside prisons work with mappa

09 a lay adviser’s journey

10 statistical information

1 1 statistical commentary

contents

introduction

Keeping our communities safe is apriority. This report explains howthe various statutory, voluntaryand private agencies worktogether across West Yorkshire toachieve that.

By sharing information, assessingand managing any risks, theMAPPA system seeks to minimisethe likelihood of reoffending andintervene at an early stage whenissues arise.

MAPPA seeks to address theconcerns of victims. Theframework which is in placeensures that victims’ concerns areheard and addressed whendecisions are made aboutindividual offenders. Thosedecisions are then communicatedto the victim. This process, whichhas been in place for many years,ensures that all the available

information is brought togetherand all the relevant agencies arefully briefed. This means thatthose agencies are in the bestposition to coordinate an agreedresponse to best manage the risk.The process begins while anoffender is still in custody,intensifying as they approach arelease date from prison andcontinuing when they return to thecommunity. Through acombination of controls, treatmentand monitoring, the risk can bereduced and managed.

The MAPPA system is headed bythree “responsible authorities” -Police, Probation and Prisons. Butit is further supported by a rangeof agencies as diverse as Health,Education, Children’s Services,Youth Offending Teams, electronicmonitoring providers andaccommodation providers.

mappa annual report 09/10 03

Welcome to the 2009/2010 annual report of the WestYorkshire Strategic Management Board for Multi AgencyPublic Protection Arrangements (MAPPA).

We know from experience thatmanaging risk is complex andrepresentatives of all theorganisations involved in MAPPAmake difficult decisions every day,in order to protect communities.

Whilst no system, however good,can guarantee an offenderassessed as dangerous will nevergo on to reoffend, the systems arerobust and more than 99% ofMAPPA offenders undersupervision will not commit aserious offence. We continue toread of course about theremaining small number of caseswhere things unfortunately do gowrong, but we remain committedto providing the best possibleservice and ensuring WestYorkshire remains a safe place tolive.

We commend this report to you.

Sir Norman BettisonChief ConstableWest Yorkshire Police

Sue HallChief ExecutiveWest Yorkshire Probation Trust

Amy RiceRegional Custodial ManagerYorkshire and Humberside Prisons

the mappa frameworkWhat is MAPPA?MAPPA is a set of arrangements tomanage the risk posed by certainsexual and violent offenders. Theybring together the Police, Probationand Prison Services in WestYorkshire into what is known as theMAPPA Responsible Authority.

A number of other agencies areunder a duty to co-operate withthe Responsible Authority. Theseinclude: Children’s Services, AdultSocial Services, Health Trusts andAuthorities, Youth Offending Teams,local housing authorities and certainregistered social landlords,Jobcentre Plus, and electronicmonitoring providers.

The purposes of MAPPA are:• to ensure more comprehensiverisk assessments are completed,taking advantage of co-ordinatedinformation sharing across theagencies; and• to direct the availableresources to best protect thepublic from serious harm.

How does MAPPA work?Offenders eligible for MAPPAare identified and information isgathered/shared about them acrossrelevant agencies. The nature andlevel of the risk of harm they pose isassessed and a risk managementplan is implemented to protect thepublic.

In most cases, the offender willbe managed under the ordinaryarrangements applied by theagency with supervisoryresponsibility. A number ofoffenders, though, require activemulti-agency management and theirrisk management plans will beformulated and monitored viaMAPPAmeetings attended byvarious agencies.

Who are the MAPPAoffenders?

Three categories of offenders areeligible for MAPPA:

Registered Sexual Offenders(Category 1) - sexual offenders whoare required to notify the police oftheir name, address and otherpersonal details, and of anysubsequent changes;

Violent Offenders (Category 2) -offenders sentenced toimprisonment/detention for 12months or more, or detained undersome hospital orders. This categoryalso includes a small number ofsexual offenders who do not qualifyfor registration and offendersdisqualified from working withchildren; and

Other Dangerous Offenders(Category 3) - offenders who do notqualify under categories 1 or 2 butwho currently pose a risk of seriousharm, there is a link between theoffending and the risk posed, andthey require active multi-agencymanagement.

How are they managed?There are three levels ofmanagement which are based uponthe level of multi-agencyco-operation required to implementthe risk management planeffectively. Offenders will be movedup and down levels as appropriate:

Level 1 - Ordinary ManagementThese offenders are subject to theusual management arrangementsapplied by whichever agency issupervising them. But this does notrule out information sharingbetween agencies, via ViSOR andother routes.

Level 2 - Active Multi-agencyManagementThe risk management plans forthese offenders require the activeinvolvement of several agencies viaregular multi-agency publicprotection (MAPPA) meetings.


Level 3 - Active Multi-agencyManagementAs with level 2 but these casesadditionally require the involvementof senior officers to authorise theuse of special resources, such aspolice surveillance or specialisedaccommodation, and/or to provideongoing senior managementoversight.

What is the role of theStrategic ManagementBoard?Senior representatives of each ofthe agencies involved in MAPPAform a strategic management board(SMB) which meets at leastquarterly to monitor thearrangements and direct anynecessary improvements.

What do the Lay Advisersdo?The responsible authority isrequired to appoint two lay advisersto sit on the SMB. The lay advisersact as independent yet informedobservers; able to pose questionswhich the professionals closelyinvolved in the work might not thinkof asking. They also bring to theSMB their understanding andperspective of the local community -where they must reside or havestrong links.

ViSOR(Violent and Sex Offender Register),ViSOR is a database holding detailsof sexual and violent offenders, andother dangerous persons. The threeMAPPA Responsible Authorityagencies - Police, Prisonand Probation - are able to work onthe same IT system enabling thesharing of risk assessments andrisk management information onindividual violent and sex offendersin a timely way to reducereoffending.

how mappa operates locallyThe Strategic Management Board(SMB) in West Yorkshire ischaired by a Director fromProbation. Membership of theSMB comprises of seniorrepresentatives from a range ofagencies, and these includePolice, Prisons, health, housing,local authorities, and VictimSupport. Two lay advisors also siton the Board, and their role is tobring a citizen’s perspective to thework of MAPPA.

The Board receives reports ona range of issues, such as theability of health trusts to identifyand monitor certain offender /patients, community involvementin monitoring and supporting sexoffenders, and the quality of workwith high risk offenders. This, plusthe statistical data it receives,enables the Board to carry out itsprime function of monitoring anddeveloping the effectiveness ofMAPPA throughout WestYorkshire.

During 2009/10 the Board hadrepresentation from the followingagencies:

• Probation• Police• Prisons• Youth Offending Teams• Health trusts• Group 4 Securicor• Accommodation providers• Social Services departments• Victim Support• Langley House Trust• Education• Jobcentre Plus

These agencies representhundreds of individuals who workwith dangerous offenders on aday to day basis, and whose aimis to protect the public of WestYorkshire. The StrategicManagement Boardacknowledges the commitment,skill, and dedication of thoseindividuals.

The SMB recognises the need toprotect children and to promotetheir welfare, and for that reasonit has a representative on all 5 ofthe local Safeguarding ChildrenBoards in West Yorkshire. Allmultiagency work is overseen bythe West Yorkshire CriminalJustice Board, which containshigh level representation from anumber of agencies.


In July 2009, information about a registered sexoffender from the Cheshire area was circulatedafter he failed to register his details with thepolice. The offender had been placed on theregister following convictions for PossessingIndecent Images and Voyeurism after he wascaught making recordings of his youngstep-daughter naked. Intelligence at the timewas indicating the offender was using a canalboat to travel across four force areas. MAPPAplayed a key role in facilitating the timelydissemination of intelligence between forces.West Yorkshire officers were then able toconduct a timely operation that led to locatingand arresting the offender on the Rochdalecanal. He was subsequently convicted of failingto register and sentenced to five months inprison.

case study

how west yorkshire policeworks with mappa

West Yorkshire Police iscommitted to ensuring the safetyof the public and MAPPA is animportant way in which police andother agencies can co-ordinatetheir work, in order to contribute tothe effective risk management ofsexual and violent offenders. TheChild and Public Protection Unit(CPPU), part of Crime Division,takes the lead on behalf of theForce in the management ofMAPPA cases.

The four CPPUs also haveestablished links with policecolleagues at a local level. Theyroutinely co-ordinate activities ofother police resources includingNeighbourhood Policing Teams,Divisional Intelligence Units andHomicide and Major EnquiryTeam, in order to address the riskposed by MAPPAmanagedoffenders.

In practice, every MAPPAmeetingis attended by a CPPU Detective

Inspector. As required, otherofficers who know the offenderand their offending history willattend the meeting and contributeto the risk assessment and actionplanning. The CPPU DetectiveInspector is accountable forensuring that actions relating tothe police involvement in themanagement of the offender arecarried out as agreed. Outside theMAPPAmeetings, regular contacttakes place between WestYorkshire Probation OffenderManagers and police staff workingwithin Public Protection Units.

Effective risk management ofMAPPA cases necessitates veryclose cooperation andunderstanding between agencies,not only during MAPPAmeetings,but throughout daily activityaround offender management.West Yorkshire Police, WestYorkshire Probation Trust and thePrison Service have worked hardto develop clear and effective


communication between the threeagencies comprising the“responsible authority” and also tobuild a strong professionalrelationship with other agenciessharing a “duty to cooperate.”

Considerable investment hasbeen made in the use of thenational ViSOR database as ameans of sharing information andmore effectively managing Sexualand Violent Offenders by thePolice, Probation and PrisonServices. This development iscontinuing and ongoing.

It is impossible to eliminate all riskwhen offenders are beingmanaged within the community,but West Yorkshire Police remainscommitted to ensuring that,through a strong and effectiveMAPPA partnership, we reducethose risks as much as possible.

how west yorkshire probationtrust works with mappaMAPPA is a valuable and essentialresource from a probationperspective. While we will haveliaised with agencies prior to themeeting in order to formulate ourrisk assessment (via OASysOffender Assesment System),agency participation within themeeting allows us to gain a broaderperspective of the offender. Themeeting has the authority toharness the resources of partnersand agencies in implementing therisk management plan. Agencieswith an involvement with theoffender benefit from knowing theoverall risk management plan andthe contact details of the OffenderManager and continue to contributeintelligence about the offender’sbehaviour. This third partyinformation is vital in reviewing andevaluating, and in ensuring our workis effective in terms of protecting thepublic.

An example of how this works inpractice is in securing access toimportant services such as health oraccommodation. MAPPA canensure that access is speeded upand importantly allows for planningtime that involves a whole range oflocal services. One agency is notacting alone and in isolation fromother local services.

MAPPA has access to a range ofinterventions, some of which seekto restrict the offenders’ actions andbehaviours, others try to help theoffenders change aspects of theway they behave:

Accredited programmes

IDAP - Domestic ViolenceProgramme, which combines theefforts of agencies includingProbation, Police and women’scharities. It uses feedback fromvictims to manage men convicted ofdomestic violence and ensure thesafety of their partners.

CALM - Anger ManagementProgramme which focuses onlearning new responses tosituations that trigger violence.

Sex Offender TreatmentProgramme - which teachesoffenders new attitudes andbehaviours in order to prevent theoffender from committing moreoffences.

Licence conditionsThese restrictions can includeimposing exclusion zones, noncontact conditions denying theoffender contact with the victim,stopping an offender usingtelephones with internet connection,or associating with other knownoffenders.

Work with victimsThe Probation Service works veryclosely with victims of crime whohave been involved in either aserious violent or sexual offence. InWest Yorkshire we have a VictimServices Unit which carries out thiswork in cases where the offenderhas been sentenced to at least 12

months in custody. We must try toconsult victims at significant stagesin the offender’s sentence, and seektheir views about relevant releaselicence conditions.

We must then inform the victim ofany licence conditions which relateto them or their family, and the dateon which any restrictions will nolonger apply.


how yorkshire and humbersideprisons work with mappa

Over the past twelve months,the Prison Service in Yorkshire& Humberside has increased itscommitment to working withcommunity partners, aimed atincreased protection of the publicfrom dangerous offenders. Thiscommitment is strongest inrelation to preparing offenders forrelease from prison, and ensuringadequate notice and advancebriefings are passed to the Policeand Probation Services in agreedcases.

The Prison Service has beguncontributing to ViSOR. In relationto serious crime, the sharing ofinformation and intelligencebetween the key agencies is nowagreed practice. Additionally, thisjoint approach by the key CriminalJustice Agencies has been


extended to include and jointlymanage extremism andcounter-terrorism. In relation toserious crime, the sharing ofinformation and intelligencebetween the key agencies is nowagreed normal practice.

In meeting these commitmentsover the past year, the PrisonService has supported andprovided key release informationon hundreds of prisoners inadvance of their release back intoYorkshire & Humberside, as partof an agreed and managed jointprocess with the communityagencies. Additionally, prisonmanagers have made significantcontributions to the strategicplanning of MAPPA withinYorkshire and Humberside,contributing to joint training,

business planning, and clearcommunication to increase publicconfidence. Training has beenintroduced and developed toincrease the knowledge and skillsof prison staff across the publicprotection arena, includingawareness on domestic violenceand abuse, extremism, and raisingunderstanding of the jointapproach to protecting the public.Prison staff have made anincreased commitment to externaland joint training, in particularworking alongside our Police andProbation partners. Thesedevelopments are supported bythe revised MAPPA Guidancereleased in April 2009, with thesimultaneous release of anupdated Prisons Public ProtectionManual.

a lay adviser’s journey

Since last year’s comments, myjourney with the ResponsibleAuthorities and certain ‘Duty toCooperate’ agencies is becomingmore established. Attendance atMAPPAmeetings is accompaniedby a welcoming greeting andacknowledgement of my layadviser status, thus engendering afeeling of involvement without theonerous duties ofdecision-making. I’m made to feellike a ‘critical friend’ in a privilegedposition.

It has been several years since Iattended a weekend conferenceand the Lay Adviser Trainingproved interesting andinformative. Candidatesconverged from across Englandand Wales with diversebackgrounds but sharing onecommonality, namely having beenin post for a year or less. Thevaried presentations encouragedgroup discussions and mealtimes

afforded reflections on the day.

The metaphor of having to wait fora bus and then a number arrivingat the same time mirrored theeducational opportunities of thislast year. Two further invitationsallowed me to attend national andregional conferences. The formerhighlighted some national (andinternational) concerns andmanagement strategies. The latterwas grounded in good practiceswithin the Yorkshire andHumberside regions. Furthermorethe regional conference alsoallowed time to discuss with fellowadvisers the ways they contributeto their respective StrategicManagement Boards.

Developing a knowledge andappreciation of how theResponsible Authorities and ‘Dutyto Cooperate’ agencies configurein the public protection arenaremains a key objective. This

process continues to be facilitatedby specific professionals withinProbation, Police and Prison.Visits to a range of establishmentsand services have given me aninsight and informed some of mycontributions at the StrategicManagement Board meetings.

Becoming a ‘critical friend’ is anon-going process and is to someextent influenced by my uniqueinterpretation of the lay adviserrole. Although I am primarily anobserver, my contributions appearto be welcomed and I feel that Iam in a privileged position to beable to offer views on publicprotection.


Different landscapes and learning opportunities


Number of MAPPA eligible offenders at 31stMarch 2010

Location RSO

Leeds North West 210

Leeds North East 191

City & Holbeck 164

Wakefield 220

Kirklees 306

Calderdale 140

Bradford South 176

Airedale & Bradford North 157

statistical information

Enforcement for offenders managed via MAPPmeetings

Returned to custody for breach of licence:

Level 1 Level 2 Level 3 Total

Cat.1 (RSO) 1525 36 3 1564

Cat.2 (Violent) 520 19 0 539

Cat.3 (Other) - 15 2 17

Level 1 0

Level 2 54

Level 3 2

Total 56

Sent to custody for breach of Sexual OffencesPrevention Order (SOPO):

Level 1 0

Level 2 1

Level 3 0

Total 1

Further data on Registered Sexual Offenders

Total number of registered sexual offenders inWest Yorkshire per 100,000 head of population:

Total 80.01

Registered Sexual Offenders cautioned orconvicted for breach of notification requirements:

Sexual Offences Prevention Orders (SOPOs):

Total 51

Applied for - 4

Interim Order issued - 0

Full Order issued - 128

Notification Orders:

Applied for - 0



Foreign Travel Orders:

Applied for - 3




explanation/commentaryThe totals of MAPPA eligible offenders, broken downby category, reflects the picture on 31March 2010, (i.e. a snapshot). The rest of the datacovers the period 1 April 2009 and 31March 2010.

MAPPA eligible offenders – there are a number ofoffenders defined in law as eligible for MAPPAmanagement, because they have committedspecified sexual and violent offences and/or currentlypose a risk of serious harm, although the majority(91% this year) are actually managed underordinary agency (Level 1) arrangements rather thanvia MAPP meetings.

Registered Sexual Offenders (RSOs) – those whoare required to notify the police of their name,address and other personal details and notify anychanges subsequently. Failure to comply with thenotification requirements is a criminal offence whichcarries a maximum penalty of 5 years’ imprisonment.

RSOs per 100,000 population – this figure hasbeen calculated using the 2009 Mid-Year PopulationEstimate published by the Office for NationalStatistics on 24 June 2010, excluding those agedless than ten years of age. It is not directlycomparable to figures published in previous years.

Violent Offenders – this category includes violentoffenders sentenced to imprisonment/detention for 12months or more, or detained under hospital orders.It also includes a small number of sexual offenderswho do not qualify for registration and offendersdisqualified from working with children.

Other Offenders – offenders who do not qualifyunder the other 2 MAPPA eligible categories, butwho currently pose a risk of serious harm whichrequires management via MAPP meetings.

Breach of licence – offenders released into thecommunity following a period of imprisonment of12 months or more will be subject to a licence withconditions (under probation supervision). If theseconditions are not complied with, breach action willbe taken and the offender may be recalled to prison.

Sexual Offences Prevention Order (SOPO) – acourt may make a SOPO at the time of dealingwith certain sexual offenders or when the policemake a special application on account of theoffender’s behaviour in the community. The full orderlasts for a minimum of 5 years, and can lastindefinitely. A SOPO will require the subject toregister as a sexual offender and can includeconditions, for example to prevent the offenderloitering near schools or playgrounds. If the offenderfails to comply with (i.e. breaches) the requirementsof the order, he can be taken back to court andmay be liable to up to 5 years’ imprisonment.

Notification Order – requires sexual offenders whohave been convicted overseas to register with police,in order to protect the public in the UK from the risksthat they pose. Police may apply to the court forthe order in relation to offenders in or intending tocome to the UK.

Foreign Travel Orders – prevent offenders withconvictions for sexual offences against children fromtraveling abroad where it is necessary to do so toprotect children from the risk of sexual harm.

West YorkshireProbation Trust

HM PRISONSERVICE

Public Sector Prisons

Protecting the people of West Yorkshire

West Yorkshire Probation TrustDirector of OperationsWest Yorkshire ProbationCliff Hill HouseSandy WalkWakefieldWest YorkshireWF1 2DJTel: 01924 885300

Communications and PublicRelations Manager(as above)Tel: 01924 885300

West Yorkshire PoliceHead of Child and PublicProtection UnitWest Yorkshire PolicePO Box 9WakefieldWest YorkshireTel: 01924 292388

Media Relations Manager(as above)Tel: 01924 292226

Yorkshire and HumbersidePrison ServiceDeputy Governor HMP WealstunThorp ArchBoston SpaWetherbyLS23 7AZTel: 01937 848500

west yorkshire annual report 09/10 - justice.gov.uk · 06 how west yorkshire police works with...

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