Lincolnshire

Multi-Agency Public Protection Arrangements

Annual Report 2002-3
Contents
Foreword 5

The National Picture 7

MAPPA Offenders 9

Chair’s Introduction 10

Area Summary 12

Developments 2002/3 15

Roles and Responsibilities 17

Outline of Arrangements Made 21

Strategic Management Arrangements 23

Disclosure 24

Victim Work 25

Procedures and Definitions 26

Statistical Information 28

Key Personnel 30

3
4
Foreword
By Paul Goggins, Parliamentary Under-Secretary for
Community and Custodial provision in the Home
Office

As the recently appointed Minister with responsibility

for the MAPPA, I am pleased to introduce this, the
second, annual MAPPA report. It is clear that in the
last year (2002/3) the multi-agency public protection
arrangements (the MAPPA) continued to play an
important role in what remains one of this
government's highest priorities - the protection of the
public from dangerous offenders.

As someone with many years experience of working

in the field of child protection, I am particularly
impressed by the important contribution the MAPPA
are making to strengthen collaboration between
agencies at a local level where the focus is on the
dangerous offender. These improvements must,
however, impact on the protection of children. As the
tragic death of Victoria Climbie showed, an effective
multi-agency partnership is crucial and the MAPPA
are an important element.

To ensure greater consistency in the MAPPA across

the 42 Areas of England and Wales, and to prepare
for the implementation of measures contained in the
Criminal Justice Bill, we published the MAPPA
Guidance in April. Building on good practice, that
Guidance clarified the structure of the operational
arrangements as well as the importance of formal
review and monitoring - of which this annual report
is a vital part. The Criminal Justice Bill will
strengthen the MAPPA in two ways. First, it will make
the involvement of other agencies part of the
statutory framework. Second, it will introduce the

5
 involvement of lay people - those unconnected with
day-to-day operation of the MAPPA - in reviewing
and monitoring the MAPPA. Annual reports and this
new lay involvement show the Government's
commitment to explaining how the often sensitive
and complex work of public protection is undertaken.

The Government is also strengthening the protection

of the public with other measures in the Criminal
Justice Bill. They include new sentences for
dangerous offenders to prevent their release if they
continue to be dangerous. Additionally, the Sexual
Offences Bill will tighten up sex offender registration,
introduce a new offence of 'grooming', and enable
sex offender orders to be imposed on violent
offenders who pose a risk of causing serious sexual
harm - thereby extending sex offender registration to
them.

I commend this report to you and congratulate all

the agencies and individuals who have contributed
to the achievement of the MAPPA locally in your
local Area.

Paul Goggins

6
The National Picture
This section of the report draws attention to wider
context of the operation and development of the
Multi-Agency Public Protection Arrangements (the
MAPPA).

The most important work undertaken within the

MAPPA is done locally, led by the police and probation
- who act jointly as the 'Responsible Authority' in
your Area - and in each of the 42 Areas of England
and Wales. The experience and good practice upon
which this work is based began in the 1990s - most
significantly as a result of the closer working relationship
required by the Sex Offender Act (1997). The Criminal
Justice and Courts Services Act (2000) formalised
that relationship and built on the existing experience
by requiring the police and probation services to
establish arrangements (the MAPPA) for assessing
and managing the risks posed by sexual and violent
offenders. The Act also required the Responsible
Authority to publish an annual report on the operation
of those arrangements. This report, covering April
2002 to March 2003, is the second annual report.

The importance of partnership

Key to the development of the MAPPA in the past

year has been the closer involvement of other
agencies, such as housing, health and social services,
working alongside police and probation. The truly
multi-agency nature of the MAPPA and the
collaboration which underpins it is to be strengthened
further by the Criminal Justice Bill. The Bill will place
a 'duty to co-operate' on a wide range of organisations
including local health authorities and trusts; housing
authorities and registered social landlords; social
services departments; Jobcentres; Youth Offending
Teams; and local education authorities. In addition,
the Prison Service will join the police and probation
services and become part of the MAPPA
'Responsible Authority'.

7
 Supporting and co-ordinating the development of the
MAPPA throughout the 42 Areas of England and
Wales, is the National Probation Directorate's Public
Protection Unit (PPU). This Unit acts as a central
point for advice and, increasingly, involvement in the
management of difficult cases. These include, for
example, UK citizens who have committed serious
offences abroad and return to this country without
anywhere to live. The Unit is also able to provide
financial support when the risk management plans
make exceptional demands upon local resources.

Involving the public

MAPPA developments in the next 18 months will also

include the appointment by the Home Secretary of
two 'lay advisers' to each Area. The eight Areas of
England and Wales which have been piloting these
arrangements since January (Cumbria, Greater
Manchester, Durham, South Wales, Dorset, Hampshire,
Surrey and West Midlands) report that they add real
value. Lay advisers will contribute to the review and
monitoring of the MAPPA which is undertaken by
each Area's Strategic Management Board - the work
of which you can read more in this report.

The purpose of appointing 'lay advisers' is to ensure

that communities understand more of what is done
to protect them and that those involved professionally
with the MAPPA are aware of the views of the
community. The lay advisers will not 'represent' the
community in the way, for example, that local
councillors do, nor will they be involved in operational
decision-making. And, given the sensitivity of much
of what the MAPPA does, especially with the few
offenders who pose a very high risk of serious harm
to the public, it is not practicable for the general
public to be involved. Lay advisers will, however,
ensure an appropriate and a practical level of
community involvement.

8
MAPPA Offenders

This year the annual report provides a more detailed

breakdown of the number of sexual and violent
offenders who are covered by the MAPPA in your
Area. As last year, the figures include the number of
registered sex offenders. Because sex offender
registration is for a minimum of 5 years (and
generally for much longer) the figures are
cumulative. This is why they have increased - by 16
per cent in England and Wales. Only a very small
proportion (about six per cent throughout England
and Wales) are considered to pose such a high risk
or management difficulty that they are referred to the
highest level of the MAPPA - the Multi-Agency Public
Protection Panels (the MAPPP).

Figures alone do not, of course, tell the whole story.

The anonymised case studies illustrate the practical
work of the MAPPA, and demonstrate the preventive
action which can be taken. Prior to the MAPPA, action
of this kind was mainly taken by one agency alone,
with the effect that on occasion offenders' behaviour
which might have triggered preventative action went
unnoticed. The multi-agency approach of the MAPPA
helps ensure that if an offender does breach the
condition of the licence under which they were
released from prison or a court order prohibiting
certain activities, then action to enforce the condition
or order and protect the public can be taken more
swiftly.

If you are interested in reading the reports of other

Areas, they will be published on the National Probation
Service's website www.probation.homeoffice.gov.uk
(under the public protection section) with all of them
being available once the last Area has published its
annual report in September.

9
 Chair's Introduction
I am pleased to invite you to read the Second
Annual Report about arrangements in Lincolnshire
to assess and manage the risk presented by certain
violent and sexual offenders.

This work is carried out by organisations (sometimes

called agencies) either acting alone in low to
medium risk cases or in partnership with higher risk
cases. Although this is only our Second Annual
Report in this form, this work has built on many
years of successful collaborative work.

The Partnership involved in this work includes

Police, Probation, Social Services, Health,
Education, Housing, the Youth Offending Team, and
the Prison Service. Staff from these organisations
are now working together more closely, more
frequently and at all levels.

We work together because research and experience

shows that this is the most effective way to assess,
manage and reduce the risk presented by a small
number of people. Fortunately Lincolnshire remains
a very safe place to live. Crime levels are low, and
all the organisations and their staff referred to in this
Report are proud of their contribution to public
protection in Lincolnshire.

The Report provides specific details on the structure

of Public Protection arrangements and information
about the numbers of cases. In addition, we are
providing for the first time descriptions of selected
cases because we believe this can be one of the
best ways of ensuring public confidence in this work.
Towards the end of the Report are flow charts which
explain diagrammatically how individual cases are

10
dealt with, and what happens if a member of staff
identifies an individual who poses a risk of serious
harm.

This Report includes contact details of senior staff

responsible for Public Protection arrangements in
Lincolnshire and although I hope this Report is self-
explanatory I know they would be happy to answer
any queries you may have.

Sally Lewis
Chair - Strategic Board

11
 1. Area Summary
Official organisations, sometimes called statutory
agencies, have, within Lincolnshire, a strong
history of collaborative working arrangements
which have focussed upon the protection of the
public from potentially dangerous offenders.
In January 1997 formal arrangements were
made operational between Lincolnshire Police
and the Probation Service in Lincolnshire to
hold structured meetings in relation to
dangerous individuals. Both agencies work
within three co-terminous operational divisions:
South, East and West. These meetings were
held divisionally and their purpose was defined
in the following statement of intent:
"Lincolnshire Probation Service and Lincolnshire
Police will work together to establish local
panels with the aim of managing the risk
offenders pose of serious harm to the public.
They will seek to involve other agencies who
may have a contribution to make in reducing
the risk of further offences being committed."
Multi-Agency Work High Risk
Mr A was coming to the end of
a prison sentence for affray -
little was known about his
previous behaviour or the risks
he might present. The
Probation Service investigated
his background and found that
he had assaulted many women
with whom he had lived. They
assessed that he was a high
risk to women and children.
Working with Social Services
departments, Women’s Aid and
Lincolnshire’s Domestic
Violence Manager, the
Probation Service ensured that
he would be accommodated on
release where he could be
monitored under a curfew and
would undertake a programme
designed to tackle his offending.
This was the first time he had
ever dealt with the cause of his
offending. Later his behaviour
deteriorated but the Probation
Service used their powers and
he was recalled to prison
without anyone being harmed.

Local meetings made a significant impact upon

the abilities of the Police and Probation Service
to assess individuals and manage risks posed
by them. The meetings were successful in
involving representation from other agencies
where this was appropriate. There was a
strong commitment from the Police and
Probation Service in Lincolnshire to build upon
the success achieved by the local panels.

In March 1999 the Lincolnshire Multi-Agency

Public Protection Panel (MAPPP) was
established. This project is a formal partnership
between the following agencies in Lincolnshire:

12
❏ Police
❏ Probation
❏ Health
❏ Social Services
❏ Education
❏ Housing Authorities or Providers

The establishment of the Multi-Agency Public

Protection Panel acknowledged that risk of
harm to the public is not restricted to offenders
who are subject to supervision by the Probation
Service or involvement of the Police. The
recognition and management of that risk is a
multi-agency responsibility. On that basis it
was decided that the agencies listed above
would work together to identify people, including
children and young people, who are considered
to be dangerous in accordance with criteria
which were defined. The establishment of a
Multi-Agency Public Protection Panel aimed to
manage the risk of serious harm those
individuals represented to the public in general
and to children and vulnerable adults in
particular. It was the stated intention of the
approach to concentrate on those individuals
who pose a major risk to public safety. Panel
Members are senior officers from the partner
organisations. They are members because of
their experience, expertise, and because their
seniority can ensure that required actions are
carried out and resources provided.

"The establishment of the Multi-Agency Public

Protection Panel and the identification and
management of those individuals presenting
the highest risk to public safety has locally
produced some excellent results."
Louise Tomlinson
Forensic Services Manager

13
 Lincolnshire has the benefit of a tiered approach to Mr B has a long history of
the assessment and management of dangerous driving offences.
Offences:
offenders. Routine information is shared about Most Recent - Motoring
- Driving whilst disqualified
prisoners released from custody. Locally operated - No insurance
- No MOT
Divisional Risk meetings are held in respect of the Offending History:
majority of offenders assessed as posing a risk to 22 motoring offences in the last
17 years, including 2 Drink
the community. For the critical few cases that pose Driving.
the most serious risk of causing harm the Area Sentenced to a Community
Multi-Agency Public Protection Panel takes Rehabilitation Order (formerly
called a Probation Order).
responsibility for the assessment and management
Mr B was required to work
of risk. through a programme designed
to change his behaviour
managed by a Probation
All involved in Lincolnshire's Public Protection work Services Officer. He had done
this work including homework in
have received specialist advice in relation to the order to understand the risk he
is creating for the public and
Data Protection Acts and Human Rights Act. himself and to date has not re-
Issues of confidentiality are paramount and offended.

information is only shared and disclosed in order to Probation Services Officer

protect the public from disproportionate risk.

As you will read in the individual case reports our

public protection has two constant themes: -

a) The provision of assistance to help the offender

change their potentially dangerous behaviour
particularly by the use of accredited and
proven behavioural change programmes, and
b) External controls effectively monitored and
supervised normally by the Police and
Probation Services.

N.B. The Police and Probation Services have the

powers to take action with the support of the
Courts and the Home Office, including
imprisonment when an order's requirements
are not kept even though no further crime has
been committed.

14
Further developments in 2002/3

During this last year in addition to the work on many

individual cases, the second tier of risk assessment
and management, Divisional Risk Meetings, have
been fully established and are working well.

The Core Panel, which deals with the highest risk

cases has been strengthened with the addition of a
Prison Governor and, when relevant, senior staff
from the Youth Offending Service.

Of particular concern are offenders with mental

health needs and Lincolnshire's public protection
work has greatly benefited by the appointment of a
Forensic Services Manager, who also sits on the
Core Panel. However, it is important to note that
the majority of mentally disordered individuals do not
commit offences.

Protection of victims is a core feature of

Lincolnshire's Public Protection work. In all cases
specialist Victim Contact Officers employed by the
Probation Service attempt to contact victims and
assess their concerns and need for information.
These officers routinely attend Multi-Agency Public
Protection meetings or provide information to assist
in the short and longer term protection of victims.

Joint training for staff from partner organisations is

regularly provided. This not only ensures that staff's
knowledge is up to date but also that working
together between organisations is the norm.

Specialist staff from the Probation Service who

routinely work with offenders assessed as
presenting a likelihood of serious harm meet
regularly to ensure that they are up to date on all
developments related to their public protection role.

15
 High Risk Offenders whose risk of re-offending is
made worse because of their addiction to drink and
drugs now have the benefit of a "fast tracking"
approach to specialist treatment services.

Regular meetings have begun between the Manager

of the Multi-Agency Public Protection Panel and
Lincolnshire's seven Crime and Disorder
partnerships. These meetings are designed to
ensure that there is a common understanding and a
seamless development of Public Protection
throughout the county.

16
2. Roles and Responsibilties
Lincolnshire Police
The protection of life and property is
a fundamental aim and purpose of
the Police Service. Lincolnshire
Police are committed to improving
the quality of life in the county and
making the community safer by
targeting and reducing crime,
disorder and anti-social behaviour in
partnership with local authorities and
other agencies. This includes
identifying dangerous and high risk
offenders, sharing information with
other agencies and taking joint
decisions as to any subsequent
actions.
The Sex Offender Act 1997 places a
responsibility on the Police Service
to work with other agencies in
carrying out risk assessments in
relation to offenders required to
comply with the Act and manage
that risk on a multi-agency basis.
Police Officers participate in all
Divisional Risk Meetings in relation
to dangerous offenders. Staff with
involvement with the most serious
dangerous offenders attend relevant
area Multi- Agency Public Protection
Panels. Detective Chief Inspector
Ginty acts as a core panel member
at all meetings of the area Multi-
Agency Public Protection Panel, and
has a deputy Core Panel member
Detective Inspector Martin Reeve,
head of Child Protection.
Lincolnshire Social Services
The Social Services Directorate has
a wide range of duties and
responsibilities to provide services
for individuals and families. The
services the Directorate provides
encompass people of all ages,
abilities and social groupings. They
include services to some of the most
vulnerable groups in society,
including children in need and their
families, older people, disabled
people and their carers and the
mentally disordered, both in their
homes and communities and by the
provision of day care and care away
from home. It is the range of
responsibilities for vulnerable people
which is at the heart of the
Directorate's role in public protection.
The staff of the Social Services
Directorate participate in relevant
Divisional Risk Meetings in relation
to dangerous offenders. Staff with
involvement with the most serious
dangerous offenders attend relevant
area Multi-Agency Public Protection
Panels. Tim Barker, Child
Protection Co-ordinator, acts as a
core panel member at all meetings
of the area Multi-Agency Public
Protection Panel as well as advisor
to Lincolnshire Area Child Protection
Committee.
Lincolnshire Education and
Cultural Services
Education and Cultural Services
form an integral part of the child
protection network alongside other
agencies which make up the Area
Child Protection Committee. It
plays a significant role through
schools, Youth Services and the
Education Welfare Service in not
only child protection but also crime
prevention and education for
citizenship and against substance
misuse.
Staff who may have direct
involvement with the most serious
dangerous offenders attend relevant
Multi-Agency Public Protection
Panels. Sheridan Dodsworth, Child
Protection Officer, acts as a Core
Panel member at all meetings of the
area Multi-Agency Public Protection
Panel, and also represents
Education on the Area Child
Protection Committee.
Lincolnshire Health
Lincolnshire Health Services are
committed to providing effective
support and services within the
community where appropriate.
Assessment and risk management
procedures will continue to be
developed in conjunction with other
relevant agencies in order to provide
a co-ordinated approach to this
issue.
Health staff participate in relevant
Divisional Risk Meetings in relation
to dangerous offenders. Staff with
involvement with the most serious
dangerous offenders attend relevant
area Multi-Agency Public Protection
Panels. Louise Tomlinson, Forensic
Services Manager, acts as a core
panel member at all meetings of the
area Multi-Agency Public Protection
Panel.
Lincolnshire Housing Authorities
or Providers
The Housing Act 1996 changed the
legal framework for the allocation of
social housing in England and
Wales. Allocations from the waiting
list or housing register are covered
in Part VI of the Act and the
responsibilities of local authorities or
providers towards homeless people
are contained in Part VII.
Lincolnshire Housing Authorities or
Providers are committed to ensuring
offenders rehousing needs are
assessed with other agencies
including the Police, Probation and
Social Services to identify the risk
particular groups of
people pose to the community. This
can only be done in partnership with
other agencies and includes the
sharing of information and making
joint decisions on proposed action in
relation to dangerous and high risk
offenders.
The staff of Housing Authorities or
Providers participate in relevant
17
 Divisional Risk Meetings in relation
to dangerous offenders. The
following managers act as core
panel members at meetings of the
area Multi-Agency Public Protection
Panel which relate to cases from
their geographical area:
John Cooch (Boston Borough
Council)
David Cressey (East Lindsey
District Council)
Neil Gray (ACIS Group,
Gainsborough)
David Ward (City of Lincoln Council)
Kim Warren (South Holland District
Council)
Stuart Sheardown (South Kesteven
District Council)
John Tudberry (North Kesteven
District Council)
Each represents the area from
which the case originates.
18
In dealing with a high risk sex offender
I had close support, advice and
guidance on the most suitable
housing location relevant to the type
of risk he posed. The Multi-Agency
Public Protection Panel put in place a
comprehensive risk management plan
which ensured that the individual
would continue to be monitored and
thus allowed any potential problems to
be identified and dealt with immediately.
David Ward
Lincoln City Housing Manager
National Probation Service
Lincolnshire
Lincolnshire Probation Service
became a part of the newly formed
National Probation Service on 1
April 2001. The National Probation
Service (NPS) is a law enforcement
agency delivering community
punishments, supervising and
working with offenders within the
terms set out by the Court or Parole
Board in ways that help offenders to
reduce their re-offending and better
protects the public. The National
Probation Service Lincolnshire
works in a highly collaborative way
with Police and Prison colleagues,
as well as the Crown Prosecution
Service, Courts, Local Authorities,
Health, Education, Housing and a
wide range of independent and
voluntary sector partners.
The NPS Lincolnshire has statutory
responsibilities towards the victims
of the most serious violent, crimes
including sexually violent crimes.
The staff of NPS Lincolnshire are
responsible for convening and
participating in all Divisional Risk
Meetings in relation to dangerous
offenders. Staff with responsibility
for the supervision of the most
serious dangerous offenders attend
relevant area Multi-Agency Public
Protection Panels. Sally Lewis,
Assistant Chief Probation Officer,
acts as a core panel member at all
meetings of the Area Multi-Agency
Public Protection Panel as well as
chairing the Strategic Management
Group for Multi-Agency Public
Protection Arrangements, and
representing Probation on the Area
Child Protection Committee.
Public Protection Arrangements
Who are we dealing with?

1. Registered Sex Offenders

Any offender convicted or cautioned for a sex
offence since September 1997, or serving a
sentence of imprisonment at that time.
2. Violent and Other Sex Offenders
Normally sentenced to at least 12 months custody
or detained under relevant mental health
legislation.
3. Other Offenders
who pose a risk of serious harm to the public.

N.B. Full information about relevant offenders is

available in Sections 67 and 68 of the Criminal
Justice and Court Services Act (2000)

19
 Risk Assessment

A number of statistically reliable tools for the

assessment of risk of re-offending have been
developed in recent years including MATRIX 2000
(for sexual and violent offenders), ASSET for young
offenders and OASys for all adult offenders. All
these are used as required in Lincolnshire. As well
as using these well tested methods staff involved
are required to collect and evaluate thoroughly all
information, record and carry out decisions, follow
policies and procedures and to take all reasonable
steps in order to achieve high quality risk
assessment and management.

20
3. Outline of Arrangements Made
Certain routine information is shared
in relation to those individuals who
are likely to pose a risk to the
community. For example: -
➣ Channels of communication
exist in relation to all offenders
released from custody who are
categorised within Schedule
One of the Children and Young
Persons Act 1933 as posing a
potential risk to children and
young people.
➣ The National Probation Service
Lincolnshire notifies Lincolnshire
Police of all offenders released
into Lincolnshire from prisons
or Young Offender Institutions
subject to statutory supervision
on licence.
➣ The National Probation Service
Lincolnshire shares information
about Higher Risk offenders
with Local Housing Authorities
where a tenancy or application
for tenancy exists.
➣ Lincolnshire Police Divisional
Intelligence Units and Probation
case managers routinely
exchange information about risk.
Offenders assessed as high risk of
causing harm who are managed by
the National Probation Service are
assigned to Probation Officer Case
Managers resourced to provide a
higher level of intervention than with
other offenders. The assessment
of risk establishes the level of harm
the offender is assessed as
capable of causing and the
likelihood of that harm being
perpetrated. A dangerous offender
is at real likelihood of causing
serious harm. All offenders
released from Prison into the
supervision of the National
Probation Service Lincolnshire must
keep to strictly enforced conditions
designed to protect the public.
Since 1997 sex offenders, or those
released from prison, including
those who offend against adults
and within their own family, must
register their address with the police
and are similarly assessed in
relation to their likelihood of causing
harm. Sex Offenders and
Dangerous Offenders Liaison
Officers (specialist police officers)
are responsible for managing the
registration of sex offenders and
prioritise their interventions towards
those offenders assessed as higher
risk; that is, presenting a real
likelihood of causing serious harm.
Officers within the Lincolnshire
Police Service and National
Probation Service Lincolnshire have
received specialist training in the
assessment of risk and utilise
nationally accredited risk
assessment tools which provide an
important component of the risk
assessment process. All Probation
staff have also been trained to use
the nationally accredited Offender
Assessment System (OASys) which
provides a comprehensive
assessment system which will be
used by all Probation services and
Prisons.
The majority of offenders are safely
managed by one organisation and
only a small proportion, who present
a higher risk, require a multi-agency
intervention. High risk offenders
are subject to review at Divisional
Risk Meetings which occur every
month. These meetings involve
Police and Probation staff as well as
staff from other agencies who may
have involvement with the offender.
A very small number of offenders
are assessed as posing an
exceptionally high risk of causing
the most serious harm. In these
cases a referral is made to the
Multi-Agency Public Protection
panel (MAPPP). The Panel is a
jointly funded enterprise which has
area responsibility for offenders
living throughout Lincolnshire. The
Panel is governed by a written
protocol which includes a strict
code of confidentiality. The
MAPPP meets at least monthly and
comprises:-
➣ MAPPP Manager who is a
seconded Senior Probation
Officer
➣ MAPPP Administrator
➣ Senior Manager from
Lincolnshire Police
➣ Senior Manager from
Lincolnshire Social Services
Directorate
➣ Senior Manager from the
National Probation Service
Lincolnshire
➣ Senior Manager from the
Housing Authority or Provider
➣ Senior Manager from
Lincolnshire Education and
Cultural Services
➣ Senior Manager from
Lincolnshire Health Services
➣ Senior Manager from HMP
Lincoln
➣ Senior Manager from
Lincolnshire Youth Offending
Team (if a young person is
being discussed)
21
 The MAPPP is based at Police
Headquarters but can meet at
venues throughout Lincolnshire.
In the event that an individual is
considered exceptionally high risk a
referral is made to any Senior
Manager / Panel Member involved
in the MAPPP. If that Senior
Manager deems there is sufficient
concern about the case then a
meeting is convened by the MAPPP
Manager and any staff from agencies
with involvement in the case are
invited to attend the meeting (in
addition to the Senior Manager /
Core Panel members). Information
about the individual is shared within
a strict code of confidentiality and a
decision made by the Core Panel
Members as to whether the case
should be registered for the
continued oversight of the MAPPP.
Where a decision is made for the
MAPPP to maintain oversight of the
case the subject of the meeting will
normally receive a written notification
of this decision. In exceptional
circumstances where such notification
is judged likely to exacerbate the
risk of harm posed or interfere with
investigations, notification will not
occur. Thereafter the case will be
reviewed on a regular basis,
normally at least three monthly.
A detailed written record is made of
all meetings and distributed within
the code of confidentiality by which
the meetings are governed.
MAPPP meetings will determine
actions to be taken by agencies
working together to reduce and / or
manage the risk(s) posed by the
subject of the meeting. All action
points are monitored to ensure they
are carried out. In addition to
interventions focussing upon the
subject of the meeting, attention is
paid to the protections which can
be afforded potential victims.
22
Wherever possible and appropriate,
action will be taken to engage the
offender and / or the potential
Mr C was to be released from prison
at the end of his sentence. He has a
long history of offending including
drugs related and violent behaviour.
Risk has been assessed as very high
to the public, his partner and her
children. He was required, as a
condition of his release, to live in
accommodation outside of
Lincolnshire and take part in a
programme of behavioural change,
including violence prevention, and
carry out work with his partner on
resolving the risk he presented. These
conditions were imposed as a result of
recommendations by the Probation
Service. The latter work was to be
done under close supervision.
Additionally, a contingency plan was
created to protect potential victims if
Mr C failed to abide by the conditions.
When he broke the conditions the
contingncy plan was promptly followed
by Lincolnshire Police and Probation
Services and he was re-arrested
before anybody was harmed. This
work involved Police, Probation,
Education and Domestic Violence
specialists in Lincoln and the
neighbouring county in which he was
accommodated.
Multi-Agency Public Protection Panel
Manager
victim(s) in determining and
participating in these plans and
actions.
The MAPPP is rigorous in
relinquishing oversight of a case
where the likelihood of dangerous
behaviour is assessed as being
reduced or adequately managed.
Actions taken to reduce the risks of
re-offending and harm to the public
can be summarised as internal
and external to the offender.
Internal refers to methods used to
teach the offender to change his /
her behaviour, and external refers
to the systems and sanctions used
by organisations such as the Police
and Probation Service to control
and prevent offending by the
individual in question.
Probation, Prison and Youth
Offending Teams operate a number
of behavioural change programmes
which have a proven record of
success, these include the control
of violence and sex offending as
well as dealing with shortcomings
in the offender's cognitive (thinking)
abilities. Furthermore, in co-
operation with Health and Addiction
Treatment Specialists, offenders
who abuse drink and drugs can be
offered treatment to beat their
addiction when its existence
increases the risk they present.
When dealing with the risk
presented by higher risk offenders,
it is rarely sufficient to rely on
personal change and this must be
backed up by credible external
controls. In Lincolnshire the
Probation Service in co-operation
with the Prison Service placed
clear and enforceable controls on
relevant prisoners when they are
released: these can include living
only in appropriate premises, being
subject to curfews, restrictions on
where they may work or who they
may contact, or requirements to
participate in risk reduction
programmes. These conditions are
enforceable and are applied
robustly including recall to prison.
Work to monitor these conditions is
frequently carried out jointly
between specialist Police and
Probation Officers.
The Police Service plays a major
part in the prevention of re-
offending by persons assessed as
high risk through these procedures.
In recent years they have appointed
officers who deal, specifically with
sex offenders and perpetrators of
domestic violence. These officers,
in particular, play a key role in
Divisional Risk Meetings and the
meetings (MAPPPs) which deal
with the exceptionally high risk
offenders.

Mr D was referred by the Probation
service because of his record and
current concerns of harm to his ex-
partner and to Social Services staff.
Conditions were attached to his
release licence to prohibit contact with
his ex-partner and child. They were
provided with rapid response alarms
by the Police.
The multi-agency involvement also
enabled a staff protection plan to be
put into place thereby considerably
reducing the risk to Social Services
staff and enabling them to work more
effectively with the case.
To date there have been no incidents
against Mr D’s partner, child or Social
Services staff.
Tim Barker
Child Protection Manager
Social Services Directorate
4. Strategic Management Arrangements
The operation of the Multi-Agency
Public Protection Panel and the
development of provisions within the
Criminal Justice and Court Services
Act Section 67 and Section 68 are
managed by the MAPPP Strategic
Management Group (formerly the
MAPPP Steering Group). The
Strategic Management Group has
met bi-annually since the inception
of the area MAPPP and is chaired
by the Assistant Chief Officer
(Probation). Other members of the
Strategic Management Group are
the Assistant Chief Constable
(Police); Head of Strategic
Modernisation, Children and Family
Services (Social Services), Director ,
Pupil & Schools Services Group,
Education and Cultural Services;
Divisional Manager, Countywide
Adult Mental Health (Lincolnshire
➣ A particularly valuable tool in
public protection is the Sex
Offender Order which Police
can obtain through Magistrates
Courts. These Orders which if
broken can result in
imprisonment, place
prohibitions on sex offenders
and can include conditions not
to enter parks, schools or
swimming baths, or not to go to
other areas or take actions
which are considered likely to
lead to future offending.
➣ Disclosure of the risk presented
by a specific offender has been
Partnership NHS Trust), and the
Director of Housing and
Environmental Health (City of
Lincoln Council).
The MAPPP Steering Group was
established by Lincolnshire in
Partnership: a strategic forum for
Chief Executives of statutory
agencies in Lincolnshire. The
MAPPP commenced as a three year
pilot in March 1999 and the MAPPP
Steering Group was established to
report to Lincolnshire in Partnership
about the project. The MAPPP
Steering Group has received six-
monthly written reports which
include statistical information about
the work of the project.
In 2002 a decision was made by the
Chief Executives at Lincolnshire in
used to target public protection.
This method of public protection
must be used cautiously so as
not to drive offenders
underground or risk serious
public disorder. In Lincolnshire
all requests for disclosure must
be approved by an officer of
Chief Constable rank, and have
the mandate of the Public
Protection panel. Examples of
successful disclosure have
included disclosure to schools
and workers in particular
industries or situations.
Partnership to resource the Multi-
Agency Public Protection Panel on a
permanent basis and the MAPPP
Steering Group was re-named the
MAPPP Strategic Management
Group accordingly.
Members of the Strategic
Management Group are:
Sally Lewis, Assistant Chief Officer,
National Probation Services
Lincolnshire
Peter Davies, Assistant Chief
Constable, Lincolnshire Police
Susan Twemlow, Head of Strategic
Modernisation, Children and Family
Services, Social Services
Directorate
23
 Dick Pike, Pupil & Schools Services Neil Greenfield, Divisional Manager, John Bibby, Director of Housing
Group, Education and Cultural Countywide Adult Mental Health, and Community Services (City of
Services Lincolnshire Partnership NHS Trust Lincoln Council).

5. Disclosure
In a small number of cases it is
important to inform members of
the public of information about
offenders. National and local
guidance has existed for a number
of years about those who present
a risk of sex offending or a risk to
children.
In exceptional circumstances a
recommendation can be made by
the MAPPP to disclose information
about a dangerous individual to a
third party. Such disclosure would
only be considered as an element
of an overall plan of risk
management. The final decision
about such disclosure of
information rests with the Assistant
Chief Constable. Before making
any disclosure the police will
always be fully prepared to give
advice and guidance on what
action is required to be taken by
the person(s) receiving the
information and a contact person
will be identified to provide further
guidance and advice as required.

Mr G has a history of indecent assaults in another part of the

Mr F has sexually abused children. His behaviour is regularly
UK. He now lives in Lincolnshire and through regular
monitored by the MAPPP Panel and a Police Specialist Officer
monitoring and assessment a specialist Police Officer became
who assesses and manages the risk presented by ex-
aware that he had joined a choir. The Officer was given
offenders to ensure maximum public protection. Staff who
permission to approach the Vicar and Choirmaster of the
work in and patrol places such as parks have been made
Church to ensure that they could protect any children in their
aware of his description and will inform police if they see any
choir and inform the Police if worrying behaviour began. this
inappropriate approaches to children.
will ensure action can be taken before a child is harmed.

6. Victim Work
Section 69 of the Criminal Justice
and Court Services Act 2000
places a statutory duty upon the
National Probation Service,
Lincolnshire to contact victims and
ask if they wish to be consulted
about the release arrangements for
violent and sexual offenders
sentenced to twelve months
custody or more.
Victims views are sought in respect
of any continued risk to them on
release of an offender. This
information assists in ensuring
appropriate risk management to
supervise offenders in the
community.
Specialist staff (Victim Contact
Officers) are based in each of the
three divisions dealing with the
victims of crime for whom the
organisation has statutory
Mr H has convictions of a violent and
sexual nature and made threats to his
victim, after his trial. She is being
contacted by a Probation Service
Victim Contact Officer. She will be
offered alarms and other protections
and Mr H will have to obey release
licence conditions which help to
minimise the risk he presents. This
work will require close cooperation
between Police and Probation
Services.

24
responsibility. Extensive efforts are
made to locate victims and an
approach is made in a manner which
respects the wishes of the victim to
be involved in the conduct of the
case. Where a victim chooses to
be consulted about the case the
Victim Contact Officer will normally
meet with the victim(s) at a time
and place convenient to them. The
majority of victims are visited within
their own home.
Victims are entitled to be kept
informed of the offender's release
arrangement, the month and
general location, and details of any
licence conditions that restrict the
offender's movements in ways
which would impact on them. In
addition help is offered by Victim
Support.
Victim Support is the national
charity for people affected by crime.
It is an independent organisation,
offering a free and confidential
service, whether or not a crime has
been reported. Trained staff and
support to victims, witnesses their
families and friends.
Victim Support provides the
Witness Service, based in every
criminal court in England and
Wales, to offer assistance before,
during and after a trial. Individuals
can also call the Victim Support line
- 0845 30 30 900 - for information
and support and details of local
services and other relevant
organisations.

Mr J was sent to prison as a

result of substantial violence to his
partner over many years. She
believed he would attempt to
contact her on his release and
harm her and her two young
children. The Victim Contact
Offocer was able to provide
information about release dates
and set up a protection plan prior
to Mr J’s release. This plan
involved Probation, Police and
Victim Support. It provided police
contact alarms, and strict release
conditions. In addition, the Victim
Contact Officer has provided
advice which should assist the
victim in claiming criminal injury
compensation and receiving
professional counselling. Mr J has
been released and is required to
live at an address outside
Lincolnshire which has provided
massive relief for his victim and
her family.

25
 Figure 1.

Lincolnshire Multi-Agency Public Protection Procedures

Individual Organisations assess risk of harm

If low or medium risk -

manage within own
organisation

If high risk - manage

through Divisional Risk
Meeting

If very high risk - refer to

Multi-Agency Public
Protection Panel via a
Core Panel Member

Risk assessment can change due to new information or improvements or decline in offender behaviour, and
procedures and practice are flexible to allow for changed risk assessment.

Risk Definitions
Low Risk Medium Risk High Risk Very High Risk
No significant There are There are There is imminent
current indicators of identifiable identifiable risk of serious harm.
risk indicators of risk of indicators of risk of The potential event
harm. The offender serious harm. The is more likely than
has the potential to potential event is not not to happen
cause harm, but is imminent but could imminently and the
unlikely to do so happen at any time impact could be
unless there is a and the impact serious.
change of could be serious.
circumstance.

26
Figure 2.

Lincolnshire Multi-Agency Public Protection Procedures

Review Meeting Process

Divisional Risk Meeting and Multi-Agency Public Protection Panel

Review meeting Process
(at least quarterly)

Review progress against risk management strategy and share any

current concerns. Re-assess Risk Level.

Possible Outcomes

Consider to be Considered High Considered to be

Medium/Low Risk Risk Very High Risk

● Remove from ● Continue ● Continue

register and registration as
recommend single potentially
agency action to dangerous offender.
manage risk
● Formulate updated
protection plan.
● Set review date.
registration as
dangerous offender.
● Formulate updated
protection plan.
● Refer to / continue
with Multi-Agency
Public Protection
Panel (MAPPP)

● Set review date.

27
 7. Statistical Information No. of Offenders

i. The number of registered sex offenders on 31 March 2003 250

ii. The number of sex offenders having a registration requirement 9

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

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

(a) The total number of Sex Offenders Orders applied for 4

(b) The total number granted 4

(c) The total number not granted 0

iv. The number of Restraining Orders issued by the courts between 1

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

v. The number of violent and other sexual offenders considered under 389
MAPPA during the year 1 April 2002 and 31 March 2003
(as defined by section 68 [3], [4] and [5])

vi. The number of "other offenders" dealt with under MAPPA during 80
the year 1 April 2002 and 31 March 2003 as being assessed by the
Responsible Authority as posing a risk of serious harm to the public
(but who did not fall within either of the other two categories, as
defined by s.67 [2b])

vii. For each of the three categories of offenders covered by the

MAPPA ("registered sex offenders", "violent and other sex
offenders" and "other offenders"), identify the number of offenders
that are or have been dealt with by:

a) MAPPP - registered sex offenders 12

b) MAPPP - violent and other sex offenders 3

c) MAPPP - other offenders 16

28
vii. Of the cases managed by the MAPPP during the reporting year
what was the number of offenders:

a) who were returned to custody for breach of licence 3

b) who were returned to custody for breach of a Restraining Order 1

or Sex Offender Order

c) charged with a serious sexual or violent offence 0

29
 Multi-Agency Public Protection Panel Members
Chair
Tony Eyres
MAPPP
Manager
MAPPPs
Manager since
2001. After a
career in
industry qualified as a Probation
Officer in 1986. Qualifications
include BA (Hons), CQSW and Dip.
Management Studies. A Senior
Probation Officer since 1991. Work
has included team management
and training in Risk Assessment
and Management Systems and
Tools. Formerly Chair of the
Professional Committee of the
National Association of Probation
Officers. A member of the User
Development Group for the National
Violent and Sexual Offender
Registration System (VISOR).
Karen Head
Head of
Regimes
HMP Lincoln
Joined HMP
Service in
1988 and
seved in a
number of establishments included
female and high security prisons.
Transferred to HMP Lincoln in
November 2002 as Head of
Regimes with responsibility for the
provision of constructive activities
such as work, education and
training. Currently Head of
Regimes and Resettlement with the
added responsibility for the
provision of Induction and Pre-
Release courses and the delivery of
Offending Behaviour Programmes
which contribute to crime reduction,
public protection and which meet
the needs of offenders, enabling
them to successfully re-integrate
into the community.
30
Sally Lewis
Assistant
Chief Officer
National
Probation
Service
Lincolnshire
Qualified
Probation Officer since 1983.
Previous responsibilities include
National Training Manager, Bail
Information Scheme, Groupwork
Training and Approved Premises
Manager. Current responsibilities
include Public Protection and
chairing the Multi-Agency Public
Protection Managment Group.
Sheridan
Dodsworth
Child
Protection
Officer
Education
and Cultural
Services
Has worked for the Education &
Cultural Services which is
responsible for support services to
schools and the Youth Service, for
the last 7 years and was appointed
lead officer for child protection in
2002. Holds a BSc in Psychology
and has worked in residential care
homes, as an Educational Welfare
Officer, and part of a Criminal
Defence Team. She represents the
Directorate on LACPC, Case
Monitoring Group and other forums.
She coordinates training for and
providing support to Directorate and
school colleagues in all aspects of
child protection.
Det Chief
Inspector
John Ginty
Crime
Support Unit
Lincolnshire
Police
A Police
Officer since 1975. Trained at
Toronto Police College before
moving to England and has worked
in Surrey and Lincolnshire. Further
training has included Leadership
Skills at Police National Training
College, Bramshill. Wide
experience of Public Protection
Issues.
Tim Barker
Child
Protection
Manager
Social
Services
Directorate
Social Worker
and Manager since 1976,
specialising in child care/child
protection. Tim worked for 2 years
as chair of child protection
conferences, then worked for the
NSPCC where he managed a
project specialising in assessments
of families in child protection, and
therapeutic work with abused
children. Tim has been Child
Protection Manager since 1996 and
advises the Area Child Protection
Committee.
 David
Cressey
Housing
Manager
Enabling
David has
been working
in the Housing
field since 1994. In 1999 he moved
to East Lindsey District Council
where he now manages the
housing transfer function and is
responsible for the Council’s
Housing Development Programme;
the Housing Strategy which was
rated equal top in the region for
2002/3, and the Housing Advice
and Homelessness function which
were shortlisted for Beacon status
this year.
Neil Gray
ACIS Group,
Gainsborough
Neil is
currently
Senior
Housing
Officer (Needs)
and is responsible for a team of four
officers who manage the Housing
register, allocate accommodation
and provide a homelessness
service. He has been in post since
mid May 2003 and prior to this
worked for Westminster City council
where he managaed their
Temporary Accommodation Team.
He has worked in Housing for 13
years.
Kim Warren
Housing
Operational
Manager
Kim has
worked in
Housing since
1993 as
Housing Officer, Senior Housing for
Rutland County Council and now as
Housing Operational Manager at
South Holland District Council.
Holds an Hons Degree in Housing
Studies and is a member of the
Chartered Institute of Housing.
Also holds a diploma in policing
Domestic Violence. Is the Chair of
the Domestic Violence Forum for
SHC and a member of the Crime
and Disorder Partnership.
Stuart
Sheardown
South
Kesteven DC
Stuart is a
member of the
Institute of
Housing and
holds an MSc Housing from
Leicester de Montfort University.
He has been working in Housing for
9 years and is currently Housing
Services Coordinator for South
Kesteven District Council. His
responsibilities are allocations and
homelessness and giving housing
advice on the prevention of
homelessness. Stuart’s work
includes multi agency partnership
work.
David Ward
Tenancy
Enforcement
Manager
City of
LIncoln
Council
David has 14
years Housing Management
experience. Duties include Officer
responsibility for Anti-Social
Behaviours and Crime and Disorder
Issues and High Risk cases housed
by Local Authorities. Represents
Lincoln City at Public Protection
meetings for High and Very High
Risk cases.
Karen
Ashworth
West Area
Manager
Youth
Offending
Service
Karen is a qualified social worker with
a CQSW, and BA in Applied Social
Studies. In 1986 she worked for the
Nottingham Youth Justice Services,
in the Bail Support and Court
Teams. She taught DipSw at the
University of Nottingham, and
socialcare studies to adult returning
to education. She joined Social
Services as Manager of the Youth
Justice Team in 1996. In 2000 she
became Youth Offending Team
Manager for the West Area where
her work includes implementation of
the West Lindsey Crime and
Disorder strategy and the wider
government agenda in preventing
offending. She has extensive
experience of dealing with young
people in trouble with the law at all
levels of the criminal justice system.
31
 John Cooch
Boston
Borough
Council
Has been
employed by
Boston
Borough
Council in the Housing Department
for 25 years, and is currently
Principal Support and Court
Housing Officer with direct
responsibility for the Housing
Register, Housing Aid & Advice,
Homelessness, the Homelessness
Hostel, and management of the
Housing Needs Team. He works
closely with the Council’s
Registered Social Landlord
Partners in provision of housing,
development of housing policies
and the rehousing of applicants.
He is a member of the Chartered
Institute of Housing, the Boston &
East Lindsey Domestic Violence
and County Domestic Violence
Committees, Boston Homelessness
Forum, SAYL, and NACRO Project
Management Committee. He is
Chairman of Lincolnshire Housing
Aid & Advice Benchmarking Group
and Vice Chairman Lincolnshire
Housing Training Group.
32
Louise John Tudberry
Tomlinson North
Forensic Kesteven DC
Services
Manager
Lincolnshire
Partnership
NHS Trust
Qualified as a first level registered No information avaiable at time of
mental health nurse in 1989 and going to press.
worked in acute psychiatric in-
patients units, including managment
of a low secure intensive psychiatric
unit in Birmingham. In 1992 at
HMP Winson Green was one of the
first nurses to directly provide
mental health care to prisoners. In
1995 moved into psychiatric nursing
providing court diversion and
diversion at point of arrest services;
which led to joint initiatives to
address needs of mentally
disordered offenders. Developed a
mental health awareness training
programme for police and set up
joint protocols with Probation to
ensure information sharing to
reduce risk. Has managed a
Regional Forensic Secure Unit for
Learning Disabilities specialising in
treatment programmes for offenders
and project managed the
implemention of the 2000 National
Service Framework for Mental
Health. Appointed Forensic Service
Manager in 2002 including
management of Francis Willis Unit
and inreach services at HMP
Lincoln. Has developmental lead
for community forensic services and
strategies to meet the needs of
people with personality disorder.
Responsible Authority Contacts
Lincolnshire Probation Area Address Phone

Sally Lewis National Probation Service 01522 520776

Assistant Chief Officer Lincolnshire
sally.lewis@lincolnshire.probation.gsx.gov.uk 7 Lindum Terrace
Lincoln LN2 5RP

Tony Eyres P O Box 999 01522 558668

MAPPP Manager Nettleham
tony.eyres@lincolnshire.probation.gsx.gov.uk Lincoln
LN5 7PH

Lincolnshire Police Address Phone

Assistant Chief Constable Peter Davies P O Box 999 01522 532222

Nettleham
Lincoln
LN5 7PH

Det Chief Insp. John Ginty P O Box 999 01522 532222

Nettleham
Lincoln
LN5 7PH

Det Chief Insp Dave Lynch P O Box 999 01522 532222

Nettleham
Lincoln
LN5 7PH

33
34