Multi-Agency Public Protection Arrangements (MAPPA) in Scotland: national overview report 2023-24

4. Local MAPPA Developments

Alongside the MAPPA national developments that have taken place during the reporting period, local areas have been engaged in a number of activities and initiatives including: MAPPA awareness and training; staff development and training; and implementation of new processes and procedures - demonstrating a commitment to continuous development of staff and services. A synopsis of some of these activities from a sample of regions is provided below.

MAPPA Awareness and Training

From April 2023 to March 2024, local MAPPA regions continued to raise awareness of multi-agency working, both among justice partners and third sector organisations. This included, but was not limited to, the facilitation of workshops and the delivery of training sessions.

In June 2023, Edinburgh, Lothians and Borders facilitated a workshop for representatives from HMP Edinburgh, which included officers from SPS and prison based social work. The workshop focussed on information sharing, multi-agency decision making and the importance of collaboration, as individuals progress from prison to the community.

North Strathclyde MAPPA Unit began a project in 2023 to provide MAPPA awareness training to all housing providers in the six local authority areas covered by North Strathclyde. The intention was to provide all attendees with an understanding of the MAPPA process and emphasise the importance of the housing role within MAPPA. Following several months of the successful provision of this training, the MAPPA Unit were invited to present at the National Sex Offender Liaison Officers (SOLO) forum. The success of this presentation led to several housing agencies throughout the country requesting the provision of awareness training for their staff.

As a result of improved links with housing agencies, North Strathclyde MAPPA Unit were contacted by Blue Triangle - a support agency for homeless and vulnerable people who operate in 16 local authorities across Scotland - seeking MAPPA awareness training. Training sessions were delivered to Blue Triangle staff, providing an opportunity for the MAPPA Unit to learn about the organisation and the potential for them to become an important MAPPA partner - highlighting the importance of continuing to explore new partnerships to expand and enhance the provision of multi-agency public protection.

The increased co-operation with the housing agencies within North Strathclyde has resulted in a number of visible benefits, including, improved housing options for MAPPA individuals, and closer working relationships between housing and other MAPPA partners, evidenced by the case study below.

Case Study 1

North Strathclyde

A housing support officer was visiting an individual being managed under MAPPA and was present when the individual received a delivery of a new mobile phone. The housing support officer was aware of the requirement of the individual to notify the Police of this additional device but didn’t believe that the Police would be informed.

The support officer contacted the Police and informed them about this additional device. Officers from the Sex Offender Policing Unit (SOPU) attended at the individual’s home and asked if he had purchased or obtained any new devices. The individual initially denied he had any other devices before eventually revealing he had a new mobile phone and two new laptops.

The devices were seized and examined by experts who discovered further indecent images of children contained on them. The individual was subsequently charged with these offences.

Staff Training and Development

During the relevant 12 month period, local areas delivered staff training, providing opportunities for learning and development which led to the identification of areas of good practice and also areas for improvement.

For example, during the last quarter of 2023, the Edinburgh, Lothians and Scottish Borders SOG commissioned a series of workshops across their five local authority areas for frontline staff, team leaders, and managers from JSW and Police Scotland SOPU, to discuss their role and responsibilities in terms of undertaking and completing a MAPPA Level 2 Risk Management Plan (RMP). These workshops also discussed the learning and considered the key recurring themes from recent SCRs and local case files audits.

On a quarterly basis, each of the local authority areas in Edinburgh, Lothians and Borders undertook one Level 2 and three Level 1 case file audits to identify learning and improve practice. This resulted in the review of sixteen Level 2 cases, and forty-eight Level 1 cases. In the main, these audits identified several areas of strength around inter-agency working, information sharing, risk assessment and risk management planning. These reviews also identified recurring themes in terms of good practice and areas for improvement which were highlighted to frontline staff and team leaders. On the conclusion of each audit, a report was presented to senior management to consider the actions raised as a result of any identified learning.

Improvements to local processes and procedures

A number of local areas have overseen improvements to ways of working, resulting in improved efficiencies, targeting of resources where needed, and improved risk management processes.

For example, in Lanarkshire In 2022 there were 908 Environmental Risk Assessments (ERAs) carried out. This increase in demand for ERAs was placing a strain on capacity on all agencies involved, risking undermining the quality and effectiveness of ERAs, a crucial component of public protection. The Management Oversight Group (MOG) tasked the Housing Sub Group (HSG) to review current ERA processes across Lanarkshire and recommend areas in which resources could be targeted more effectively. The HSG consisted of representatives from all relevant agencies – Police Scotland, JSW, housing and health.

The HSG review identified that the existing ERA process in Lanarkshire was far in excess of the National Accommodation Strategy for Sex Offenders (NASSO) guidance - in particular the common practice for ERAs to include a wide parameter of addresses for checking. In effect, agencies were being stretched by carrying out more ERAs than necessary, raising concerns that resources were not being targeted at those individuals who posed the greatest risk to public protection and that the quality of the ERAs could potentially be negatively affected.

To address these concerns, the HSG proposed that ERAs should be brought into line with NASSO guidance to include initial ERAs for all cases at first registration and subsequent changes of address; plus annual ERA for those who pose most risk of serious harm (MAPPA Level 2 and 3; MAPPA Level 1 with a high or very high risk of harm; and those subject to Sexual Harm Prevention Orders or Sexual Risk Orders). In addition, new guidance was issued regarding the expectations for the ERA parameters.

The new process has enabled agencies completing ERAs to focus their assessment on risks posed in the immediate vicinity and on ‘depth not breadth’ of assessment, consistent with the research in this area.

During the reporting period, Forth Valley implemented changes to the Initial Level 1 MAPPA meeting process – which previously, for RSOs who received a community sentence, took place within 2-4 weeks of the sentence date. However, it was recognised that this timescale did not allow time to get to know the individual sufficiently to complete a comprehensive risk assessment, to ensure decisions around risk were fully formed. As a result, Forth Valley moved to a model where the Initial MAPPA meeting takes place 10-12 weeks post-sentence. This has resulted in an improved risk management process whereby risk assessments are fully completed and all agencies are fully prepared for the Initial MAPPA meeting.

Another example demonstrating improvement to local processes is Fife’s development of the ‘MAPPA Managed Individuals with Complex Care Needs’ area of work. This is designed to help address the complex nature of the needs/risks, evident within the RSO population. An increased prevalence of these cases in recent years has resulted in an innovative approach now being taken to engage with health and social care colleagues. A working group was established, which included representation from the Parole Board and SPS, to develop clear processes informed by previous situations and associated learning from these, to support a smoother transition for those with additional needs from custody to the community. This process supports enhanced assessment of those who are in a custodial setting including engagement with prison-based health and social care staff to understand presenting issues ahead of release into the community. This pro-active approach supports reintegration and management of risk for easier transition into the community.