Scottish Government

4. ROLES AND RESPONSIBILITIES

MAPPA within the Glasgow CJA is primarily composed of the four Responsible Authorities, Strathclyde Police, Glasgow City Council, Greater Glasgow NHS and Scottish Prison Service. The Responsible Authorities are supplemented by a number of Duty to Co-operate Agencies as and when required.

Strathclyde Police

Strathclyde Police is responsible for the enforcement of the sex offender legislation and for the associated policing activities including the prevention and investigation of further offending. These activities range from ensuring an accurate record is kept of all offenders within the Force area to managing offenders whose behaviour is of concern.

Strathclyde Police is the lead Responsible Authority for Registered Sex Offenders who live within the community but who are not subject to any other form of statutory supervision. MAPPA implementation has positively supported policing activities, as a result of the increased cooperation between the agencies involved.

In Glasgow, the three policing divisions, which cover the CJA, are Glasgow City Centre (A Division), Glasgow North East (B Division) and Glasgow South (G Division). Each division has dedicated Offender Management Unit and is supported by the Force Public Protection Unit ( PPU), based at Force Headquarters. The PPU provides strategic and operational guidance to divisions and Detective Chief Inspectors from the PPU also act as liaison officers for each CJA.

The Force has created this new structure to, align its resources with the divisions, train staff and raise public awareness in respect of the management of offenders within the community.

Glasgow City Council

As one of the MAPPA Responsible Authorities Glasgow City Council plays a major role in both the strategic and operational fields of MAPPA. The main participants are Criminal Justice Social Work ( CJSW), Children and Families (C&F) Social Work and the Homelessness Partnership.

Criminal Justice Social Work have the lead responsibility within Glasgow City Council and make a wide ranging contribution. Responsibilities include reports to court and parole board, supervision of parol, non-parole licences and other licences. Staff are trained in assessing the risks that offenders present and are committed to reducing re-offending and to protection of victims and potential victims

CJSW has one of the longest established sex offender criminal justice services in Scotland, Clyde Quay Project ( CQP). CQP manage all throughcare sex offender cases in the City; provide reports to Courts and to the parole Board and run the Community Sex Offender Groupwork Programme ( CSOGP). In addition CQP staff attend the Scottish Prison Service Integrated Case Management ( ICM) meetings on all sex offenders who will be released back to Glasgow.

Social Workers from the Criminal Justice teams in each of the 5 Community Health & Care Partnerships covering Glasgow are responsible for managing those sex offenders who are on community based orders such as Probation and Community Service.

C&F teams throughout the city have a primary responsibility for the protection of children. Personnel from C&F attend MAPPA meetings as requiredand also share information with other agencies where there are concerns about young people who may be considered to be actual or potential victims, either directly or indirectly. The information is shared for the purpose of appropriate and robust risk management plans.

Prison Casework Team ( PCT) based at HMP Barlinnie carry out Homelessness Assessments and will provide support, advice and assistance to homeless/potentially homeless offenders.

NHS Greater Glasgow & Clyde ( NHSGG&C)

Glasgow CJA is serviced by a single Health Board; NHS Greater Glasgow & Clyde ( NHSGG&C) has a significant part to play within MAPPA in dealing with offenders who have health issues, including mental health problems.

For individuals who are mentally disordered restricted patients, NHSGG&C assumes a Responsible Authority role, this provision was implemented on the 30 ^th April 2008. The Care Programme Approach ( CPA) has been adopted as the mechanism for regular review of the management of such patients. For all other cases NHSGG&C assumes a Duty to Co-operate status. NHSGG&C is represented at MAPPA Implementation Group meetings.

NHSGG&C do not have a single representative that attends all MAPPA meetings. However, requests for information and/or clinicians attendance at meetings are actioned via a single point of contact and the MAPPA co-ordinator on a case by case basis.

Health's involvement to date includes:

• General information sharing responsibilities between Health and MAPPA process.
• Access to, or clarification from information contained within historical records or reports to assist with risk assessment/risk management.
• Attendance at MAPPA meetings - GP's, Health Visitors, Psychiatrists, Clinical/Forensic Psychologists, Addiction Workers, Community Psychiatric Nurses, and Health Board reps.
• Notifications of safety alerts.

The State Hospital

Risk assessment and management at the State hospital is an integral part of the care and treatment planning process for all restricted patients. Structured clinical judgement tools for violence risk assessment and management have been introduced, and must be used for all patients. The policy is that:

• All clinical teams are required to adhere to a standard risk assessment and management protocol.
• Structured professional judgement tools must be used for violence and sexual violence assessment. HCR-20 is the tool of choice for risk of violence assessments, and Risk Sexual Violence Protocol ( RSVP) for risk of sexual violence.
• Risk assessments and management plans should be updated and reviewed at the intermediate and annual review
• Risk assessments must never be completed in isolation and must be embedded into the patient's care and treatment plan.

The Risk Management Authority has accredited the Hospital's manner of risk assessment and management for a three year period from September 09. Following the publication of CEL 13 (2007); a 'traffic light' contingency plan may be provided to aid the risk management process for patients transferring to less secure environments.

At the State Hospital, risk reduction programmes associated with MAPPA offenders are agreed as part of the care and treatment planning process, Care Programme Approach ( CPA). Risk management is coordinated through the Intermediate and Annual CPA reviews at Level One.

Pharmacological and Cognitive Behavioural Therapy treatments form the backbone of treatment programmes for patients suffering from mental illnesses. This is complemented by participation in the following programmes Sex Offending; Drug and Alcohol; Anger Management; Fire raising; Coping with Mental Illness and other group work programmes.

Scottish Prison Service

INTRODUCTION

The Scottish Prison Service ( SPS), a Responsible Authority as described in sections 10 & 11 of the Management of Offenders etc (Scotland) Act 2005 (the Act), is fully committed to working with partners across the Scottish Criminal Justice system to improve levels of public protection and reduce the risks associated with offending behaviour.

SPS complies with the requirements of MAPPA as laid out in the Act, sharing relevant information - including risk assessments and action plans - with Police Forces, Criminal Justice Social Work Services and Health Services, contributing to the creation of robust management plans for sex offenders being released into the community following a custodial sentence.

SPS is legally required to keep in safe and secure custody those offenders sentenced by the court to a period of imprisonment. During 2008/09, the average daily population in Scotland's prisons was 7,991, an increase of 8% when compared to 2007/08 and 11% when compared to 2006/07. In addition to maintaining safe and secure custody and order, SPS also plays a vital part in preparing offenders for release.

OFFENDER MANAGEMENT

Throughout their period in custody, all offenders are subject to the Integrated Case Management ( ICM) process. Offenders subject to post-release supervision (including all sex offenders serving six months or more in prison) are managed via an enhanced version of the ICM process, where prison and social work staff (both prison-based and community-based) work together to assess the risks associated with individual offenders and develop an action plan aimed at addressing risk and need through a series of appropriately sequenced interventions (such as prisoner programmes and approved activities).

These risk assessments are reviewed on an annual basis (as a minimum) and prior to release. They are used to inform decisions on progression through the prison estate and discussed openly with the offender and a range of key staff (including social and healthcare professionals). The forum for this discussion is the ICM Case Conference, a meeting between the offender and key staff that takes place each year during custody. Where an offender is considered to present a high risk, prior to release (or transfer to less secure conditions), other key staff involved in criminal justice (such as the police) are invited to attend the (pre-release) Case Conference, allowing for a level of information-sharing between criminal justice agencies not seen prior to the implementation of MAPPA (and ICM).

The risk assessments and pre-release case conference help inform decisions on how the offender should be managed on release (ultimately informing the decision on which MAPPA level is appropriate). This is the point at which all relevant information is collated and provided to MAPPA co-ordinators across the eight Criminal Justice Authorities ( CJAs).

MONITORING AND ASSURANCE

Following the implementation of MAPPA in 2007, several audits were carried out in several prisons to establish the level of compliance with stated procedures. All but one prison received a positive level of assurance. An action plan was put in place to address some minor procedural issues found in that particular site and assurance was subsequently provided that these issues had been addressed.

SPS subsequently developed internal MAPPA standards (based on the procedural guidance) which provide local managers with a mechanism for delivering ongoing assurance in terms of compliance with MAPPA procedures. A further (internal) audit of SPS's compliance with MAPPA is scheduled for later this year.

The recent joint inspection by HMIP⁵, HMICS⁶ and SWIA⁷ on the management of high risk offenders considered levels of compliance with MAPPA; SPS has responded to the findings and is currently developing plans for improving the application of offender management processes. Additionally, SPS is working with police colleagues to consider ways of improving the sharing of information with regard to progression of high risk offenders through the prison estate.

WIDER ' MAPPA COMMUNITY'

SPS continues to support both local and national MAPPA groups through senior managers' attendance at MAPPP meetings (for all offenders managed at MAPPA level 3). Partnership arrangements with the CJAs and MAPPA co-ordinators continue to develop through the efforts of SPS's dedicated CJA Liaison Managers.

Formal Reporting

In line with formal reporting requirements, this SPS submission for the year ending 31st March 2009 includes:

• Details of programme completion for registered sex offenders ( RSOs) (by establishment and CJA);
• The number of risk assessments carried out on RSOs (by establishment and CJA); and
• Training statistics relating to staff working with sex offenders in Scottish prisons.

PROGRAMME COMPLETION

SPS continues to provide nationally accredited programmes and other interventions that aim to drive improvements in the attitudes and behaviours that have led to offending, encouraging those in prison to accept responsibility for their actions, learn to manage their behaviour and consider the impact their actions have on family members, friends and the wider community.

The Sex Offender Treatment Programme suite ( SOTP) is the primary vehicle for addressing the above issues with those prisoners convicted of sexual offences (or offences that contain some sexual element). There are currently four specific programmes that offenders undertake depending upon the level of risk they present and their own individual level of need:

• Core SOTP is aimed at those sex offenders presenting a medium, high or very high risk of sexual re-offending
• Extended SOTP is primarily aimed at those prisoners who have completed the Core programme, but the level of risk they continue to present requires further intervention;
• Adapted SOTP aims to achieve the same goal but takes account of particular issues with prisoners who have some limitation in terms of their social functioning; and
• Rolling SOTP is aimed at sex offenders presenting a low risk of sexual re-offending.

These programmes are delivered in HMPs Barlinnie, Edinburgh and Peterhead and HMYOI Polmont. Other prisoners will send offenders to one of the above, should they be considered suitable for the SOTP and express a willingness to participate.

In addition to the SOTP programmes, SPS also delivers a range of interventions (termed Approved Activities) including Anger Management, Violence Prevention, Alcohol Awareness and Substance Misuse that are made available to sex offenders via assessment of risk and need.

During 2008/09 (the period covered by this submission), almost 200 programmes were delivered to sex offenders across the prison estate. The activity and scope of these programmes can be extensive; some involving more than 100 hours of group work and targeted intervention. A detailed breakdown is contained in Annexe 1.

RISK ASSESSMENT

In SPS, the primary tools used in assessing the risks posed by sex offenders are Risk Matrix 2000 ( RM2000) and Stable and Acute 2007 ( SA07). These risk assessment tools are supported by others (such as LSI-R) which look at wider aspects of offending behaviour (not limited to sexual offending) to ensure a wider appreciation of the level and nature of risk is gained by prison and social work staff (and communicated to the wider criminal justice community).

Between 1st April 2008 and 31st March 2009, more than 900 risk assessments were carried out on registered sex offenders (due to the dynamic nature of risk - in that it can change over time - some registered sex offenders undergo several risk assessments over the course of one year). A detailed breakdown is contained below.

STAFF TRAINING

Over the past two years, significant training has been delivered - to both prison-based and social work staff - aimed at increasing the understanding of risk and the methods that can be adopted to improve public protection by reducing an individual's level of risk. During 2008/09, a total of 109 prison and social work staff received training on risk assessment/management tools and programme delivery.

During 2009/10, SPS and partner agencies will be working together to develop a generic (risk-themed) training package that will be made available to all staff working with offenders and others who support them.

SUMMARY

This past year has seen a continuation of SPS's commitment to working with partners in criminal justice to address the needs of registered sex offenders and collaboratively manage the risks they present to the community. Links with CJAs are positive and strengthened by ongoing consultation and attendance at local and national MAPPA groups. SPS tracks the developments set out in the CJA Area Plans to ensure internal decisions support future developments and that SPS considers the implications for partners when making key management decisions.

ANNEXE 1

Duty to Co-operate agencies

A number of other key agencies such as Sacro, Turning Point, Community Lifestyles, Real Life Options and Housing Associations contribute to the MAPPA process in the Glasgow CJA area. These agencies are "Duty to Co-operate" agencies as established by s10 & s11 of the Management of Offenders etc (Scotland) Act 2005 and contribute on a case by case basis and provide invaluable information about known offenders. There been has strong commitment to the process of MAPPA by many agencies, and a great understanding that the duty includes sharing of information which is reciprocal, in that it requires the responsible authorities to co-operate with the duty to co-operate agencies and in turn those agencies to co-operate with the responsible authorities. This illustrates the understanding that the effectiveness of public protection depends on more than just a single agency response, and a commitment by all involved is required to be effective.