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    Independent review was commissioned by the Home Secretary to undertake of the case of Jon Venables, following his recall to custody and his conviction on serious charges involving indecent images of children. Review starts with the preparations for the supervisionof Jon Venables on licence. 'I have found nothing in the material on the case that casts doubt on that fundamental judgment on which his release into the community was based'

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    Independent review was commissioned by the Home Secretary to undertake of the case of Jon Venables, following his recall to custody and his conviction on serious charges involving indecent images of children. Review starts with the preparations for the supervisionof Jon Venables on licence. 'I have found nothing in the material on the case that casts doubt on that fundamental judgment on which his release into the community was based'

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    240 vizualizări114 pagini

    The Case of Jon Venables PDF

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    zahy07
    Independent review was commissioned by the Home Secretary to undertake of the case of Jon Venables, following his recall to custody and his conviction on serious charges involving indecent images of children. Review starts with the preparations for the supervisionof Jon Venables on licence. 'I have found nothing in the material on the case that casts doubt on that fundamental judgment on which his release into the community was based'

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    din 114

    OMANDREVIEW

    IndependentSeriousFurtherOffenceReview:
    TheCaseofJonVenables
    SirDavidOmandGCB
    London
    01November2010
    OmandReview 1

    OmandReview 2




    OMANDREVIEW
    IndependentSeriousFurtherOffenceReview
    SirDavidOmandGCB
    102PettyFrance
    London
    SW1H9AJ
    T02033344395
    Edileeni.danielselvaratnam
    @justice.gsi.gov.uk
    TheRightHonourableKennethClarkeQCMP
    LordChancellorand
    SecretaryofStateforJustice
    102PettyFrance
    London
    SW1H9AJ
    01November2010
    JonVenables
    IamwritingtoletyouknowtheoutcomeoftheindependentreviewIwas
    commissionedbyyoutoundertakeofthecaseofJonVenables,followinghisrecallto
    custodyandhisconvictiononseriouschargesinvolvingindecentimagesofchildren.
    Introduction
    Mytermsofreferencemeanthatmyreviewstartswiththepreparationsforthe
    supervisionofJonVenablesonlicence.Ihavenotexaminedthedecisiontoreleaseor
    attemptedtoreachajudgmentontheconclusionreachedbytheParoleBoardand
    acceptedbytheHomeSecretaryofthedaythatJonVenablesatthattimepresentedan
    acceptableriskforrelease,giventhenecessarysupportandsubjecttohiswillingnessto
    abidebytherestrictionsimposedinhislicence.IshouldrecordhoweverthatIhave
    foundnothinginthematerialonthecasethatcastsdoubtonthatfundamental
    judgmentonwhichhisreleaseintothecommunitywasbased.
    OmandReview 3




    Ihaveexaminedindetailallthecasefilesandpolicypapersrelatingtothiscasefromits
    outset,includingallthemanypsychiatricassessmentsandassessmentsofriskofharm
    (RoH),andhaveinterviewedallthreeoftheprobationsupervisingofficerswho
    supervisedhimafterhisreleaseaswellasanumberofthosecloselyinvolvedwiththe
    caseespeciallyinthelatterstagesleadinguptohisseriousoffencein2010.
    Duringtheperiodcoveredbythisreviewthetermoffendermanager(OM)hasbeen
    introducedtorefertotheprobationsupervisingofficerinwhosechargealicenseeis
    placed. Ihaveusedthatmoderndescriptionthroughout.
    Background
    Murdersofchildrenbychildrenaremercifullyrare.Theyunderstandablycreate
    feelingsofintensegriefandoutpouringsofpublicsympathyforthebereaved.Forthose
    directlyinvolvedthesearepersonaltragediesthatwillaltertheirlivesforever.Intense
    publicinterestinthesecases,inthemurdersthemselvesandtheirpossiblecausesand
    inensuringtheproperpunishmentoftheoffenderswillremainhighformanyyears.
    Intheeyesofthelawtheoffenderswillneverbefreeandwillalwaysbeunder
    professionalsupervisionandcaretoensuretheprotectionofthepublic.Fora10year
    oldconvictedofmurderthismightendupmeaning70yearsormoreofcontinuous
    intensiveoffendermanagementinsecurecareandtheninthecommunity.Societyhasa
    majorinterestingoingtheextramiletoseekrehabilitationthroughthesuccessfulearly
    supervisionofsuchcases.
    Theconvictionin1993ofRobertThompsonandJonVenablesforthehorrificmurderof
    JamesBulgerisonesuchcase.Theyweretheyoungestchildrentobechargedwith
    murderinthetwentiethcentury.Thecasefromtheoutsetwascontroversial,
    complicatedbylegalargumentintheEuropeanCourtofHumanRightsoverthefairness
    oftrialofsuchyoungoffendersinanadultcourtandintensepoliticalargumentoverthe
    appropriatetermtobeservedbeforereleaseonlifelicence.
    TheLordChiefJustice,LordWoolf,decidedinOctober2000thatthetariffshouldexpire
    immediatelyleadingtotheneedtopreparethetwooffenderstobereleasedonalife
    licenceinconditionsofintensemediascrutiny.Suchwasthedepthofpublicfeeling
    arousedagainsttheoffendersthatthepolicewereinnodoubtthattherewasa
    continuingclearandcrediblethreattotheirlivesfrommobviolenceandvengeful
    attacksiftheirwhereaboutswerediscovered. Iamsatisfiedthatremainsthecase.
    OmandReview 4

    ToprotectthemtheywereprovidedwithnewidentitiesandLadyButlerSlossgranted
    in2001alifelongHighCourtinjunctionplacingrestrictionsonthepublicationofany
    materialthatwouldleadtotheiridentityandwhereaboutsbecomingknown.
    Neverthelessforsectionsofthemediaitwouldhavebeenapparentfromtheoutsetthat
    theircirculationscouldbeboostedbypublishingluridstoriesabouttheoffendersthat
    wouldkeepthecasecontroversiallyinthepubliceyebutintermsthatdidnotbreach
    theinjunction,andindeedpartsofthemediahavecontinuedtomakewildallegations
    aboutthecasethatcannotberebuttedbygovernmentwithinthetermsofthe
    injunction. Mediamotivationsarenotformetojudge,buttheproblemscausedby
    sectionsofthemediahavenotdiminishedovertime. Itisdifficulttooverstatethe
    damagingimpactovertheyearsoftheconstantfearofexposureofhisidentityand
    whereaboutsonJonVenablesstateofmindandontheworkofthosemanaginghis
    case. InthewordsofthepresentencereportprovidedtotheCentralCriminalCourtin
    July:Hehadtoundertakeacompletechangeofidentitytoprotecthimself.Thiswas
    notstraightforwardandalsomeantthatalegacylife,anarrativehadtobecreatedfor
    him. Heessentiallyhadtoliveandholdaliefortherestofhislife.Thereislittledoubt
    thatifhisidentitybecamecompromised,hislifewouldbeatrisk.Hewasthustaughtto
    lieandhadtobecomegoodatit.
    Theseintroductoryremarksareintendedtohighlighttheexceptionalnatureofthiscase
    andtheextremedifficultyofthetaskthatfacedthecriminaljusticesysteminthe
    managementoftheseoffendersontheirrelease.Havingexaminedingreatdetailthe
    localandnationalrecordsofthiscaseandinterviewedthosemostdirectlyinvolvedI
    wanttoemphasisetheevidentdedicationandprofessionalismofallconcerned.Itis
    veryreassuringtoseetheeffortsoveralongperiodthatweremadetoupholdthe
    safetyofthepublicandtheinterestsofjustice.Whatevenintensiveprobation
    supervisioncannotdo,however,istoprovideacompleteassurancethatduplicitous
    behaviourandoffendingbythesubjectcannotoccur.Noregimeinthecommunity,not
    evenacontrolorder,candothat.
    RiskAssessment
    Naturally,theriskassessmentsoftheclinicalpsychiatristsandotherprofessionals
    involvedinthecasebeforeJonVenableswasallowedtolivefullyinthecommunity
    werequalifiedbytheobviousdifficultiesofextrapolatingfromthecircumstancesthat
    appliedasachildwhenthemurdertookplacetowhatmightapplyasanadult.
    Nevertheless,theirsharedjudgmentwasthatherepresentedaverylowrisktothe
    OmandReview 5

    publicwithalowriskofhiscommittingafutureseriousoffence.However,inviewof
    thenotorietyofthecaseandtheshockingnatureoftheindexoffence,theHome
    Secretarycorrectlydecidedattheoutsetthatdespitethelowriskhewasseento
    representthecaseshouldbemanagedasifitwereoneofhigherriski.e.atMAPPALevel
    3,theappropriatelevelforthoseoffenderswhoposethehighestriskofcausingserious
    harmorwhosemanagementissoproblematicthatmultiagencycooperationand
    oversightataseniorlevelisrequiredwiththeauthoritytocommitexceptional
    resources. TheHomeOfficeandthentheMinistryofJusticealsoactedonthebasisthat
    unlikeotherlifersreleasedonlicencetherewouldbefortheforeseeablefutureno
    possibilityofreturntotheParoleBoardafterseveralyearsofgoodbehaviourto
    considerliftingthelicenceconditions.InthecaseofJonVenables,beingonalifelicence
    meantsupervisionforlife.
    Ihaveestablishedthatdespitethecontinuinglowunderlyingriskassessment
    significantresourceswereappliedbytheprobationserviceandHomeOffice(andthen
    bytheMinistryofJusticeafterthemachineryofgovernmentchangesin2007)tothis
    case,allowingcasemanagementtomuchmorethanmeetthenationalstandardslaid
    downforthesupervisionofseriousoffendersattheMAPPA3level.
    Hedidgoontocommitafurtherseriousoffence,butthatdoesnotinitselfmeanthat
    theassessmentsmadethroughoutthecaseofthelowriskheposedtothepublicwere
    wrongheaded. Iconcludethattheywerethecorrectprofessionalassessmentonthe
    evidencethenavailable. Eventsclassedaslowprobabilitydounfortunatelysometimes
    happendespiteeveryonesbesteffortsthatisthedifferencebetweenlowriskandno
    risk.
    Hisbehaviouronreleaseonlicence
    Hisfirstfewyearsinthecommunity,studyingandinwork,wereonesofoptimismand
    acredittothosewhopreparedhimandsupervisedhim.Hisbehaviourduringhisfirst
    fewyearsinthecommunitycanonlybedescribedasbetterthanmightbeexpected
    fromayouthwithhishistoryinsecurecare,educationallevelandsocialbackground.It
    isclearfromprobationserviceandpsychiatricreportsthatJonVenableswasaware
    fromthemomentofreleaseofthepotentiallydisastrousimpactofanyinvolvementin
    crimeasthiswouldalmostcertainlyleadtorecall.Thismessagewasrepeatedly
    drummedintohimbyhisoffendermanagersovertheyears. Hisfearofexposurewas
    veryreal,andfearofrecallwouldinitiallyhavebeenamajordeterrent.
    OmandReview 6

    Havingbeenbroughtupsincehewas10inasecureunit,however,itishardly
    surprisingthathewasreportedasbeingsomeyearsbehindhispeers.Itwasinevitable
    thathewouldbegintocatchupwithnaturaladolescentemotionalandsocial
    development,andthatovertimetherealityofhislifeunderanewidentityasecrethe
    couldnotsharewouldsinkin:theconstantfearofexposurekeptrawbyluridmedia
    stories,alowpaidjobwithfewprospects,continuousfinancialproblems,alifeasa
    virtuallonerintermsoflongtermrelationshipsforfearofthepossibleconsequencesof
    havingtoexposehistrueidentity.
    Thoseresponsibleforhissupervisiondidtheirbesttokeephimontherails,andto
    managethislateadolescence,butbyallaccountsheisnotapersongiventoconfiding.
    JonVenablesdidonseveraloccasionsattempttowithholdinformationfromhislasttwo
    offendermanagersabouthisfinancialpositionandlaterabouthislifestyleincludingthe
    useofrecreationaldrugs. TheimpressionIhaveisthatofficialssawthesebehaviours
    asbumpsinaninevitablystonyroad,butthattheimportantthingforthemwasthathe
    wasstillassessedasposingalowrisktothepublic,holdingdownajobandcapableof
    livingsafelyinthecommunity.OfficialshadinvestedagreatdealinJonVenables.They
    wantedhimtosucceed,theyknewofhisveryrealfearofexposure,andtheymayhave
    thereforeperhapsunconsciouslybeenunwillingattimestoacceptthathecould
    actuallybelettingthemdowninsuchafundamentalwayashedid.
    AsexperiencedprobationofficershisoffendermanagersofcourseknewthatJon
    Venables(likemostoffenders)wouldattimesnotbestraightforwardinhisdealings
    withthem,andtheevidenceisthattheytriedhardandconscientiouslytokeephimto
    hislicenceconditionsandtoreinforcethemessagethatrecalltoprisonwasareal
    option.Ithasonlyemergedinevidencesubsequenttohisrecallthathemayhave
    secretlybrokensomeoftheconditionsofhislicence,animportantpointthatwillhave
    tobeestablishedevidentiallybeforeaParoleBoardhearing.Ifhehad,thisisbehaviour
    thattheresponsibleofficialshaveassuredmehadtheyknownwouldcertainlyhaveled
    tohisimmediaterecallunderthetermsofhislicence.Butnooffendermanagercanbe
    directlymonitoringanoffenderformorethanashorttimeeachweekorso,leaving
    plentyoftimeforoffendingoutofsightofthesupervisor.Hisoffendermanagersshould
    notbecriticisedforfailingtodetectthedeceptionsthathavenowcometolight.
    Signsthathehadbecomestuckinarut,wassubjectstoperiodsofdepressionandwas
    failingtomakeprogresswithhisworklifeorpersonalrelationshipswerereportedby
    hisoffendermanagersatintervalsthroughout2006and2007.Thesewerethesubject
    ofseveraldiscussionsinthelocalMultiAgencyPublicProtectionPanel(MAPPP)and
    National(multiagency)ManagementBoard(NMB)basedintheJusticeMinistrythat
    OmandReview 7

    oversawhiscase,leadingtorenewedeffortsbyhisoffendermanagers,towhichheonly
    partiallyresponded. Overall,Ijudgethattheprocessofsupervisionwentasfarasit
    reasonablycouldininfluencinghisbehaviour.
    Theresponsetohisoffendingbehaviourin2008
    Iassessitasanindicatoroffundamentalchangesinhisstateofmind,andoftheonset
    ofdepressiveandpessimisticfeelingsabouthisfuture,thatoverthelasttwoyears
    beforerecallhebegantoengageinhighlyriskybehaviourinvolvingabusingalcoholand
    takingdrugsforwhichhewasarrestedin2008.Ihaveconsideredcarefullywhetherhis
    twoarrestsin2008firstforaSection4PublicOrderoffenceandlaterforpossessionof
    asmallamountofcocaineshouldhavebeenthetriggerforrecallinghimtocustody.
    TheviewofthelocalMAPPPthatwasmanaginghiscasewasthesebehaviourscertainly
    requiredcorrectionbytighteningtheconditionsofhislicence,butalsothattheywere
    unfortunatelynotuntypicalofasignificantnumberofyoungmenofhispeergroup.The
    NationalManagementBoardconfirmedtheviewthattheseoffenceshadnocausallink
    totheindexoffenceandcertainlywouldnotontheirownjustifyrecallforaliferon
    licence.Aftercarefulconsideration,thethenJusticeSecretaryagreedwiththe
    recommendationthatJonVenableslicenceshouldbetightenedtoimposeacurfew,
    randomdrugtesting,analcoholawarenessprogrammeandotherrestrictions.Iagree
    withthisjudgmentandthatrecallwouldhavebeenadisproportionateresponseonthe
    basisofthefactsasthenknown.
    Hisfurtherseriousoffenceforwhichhewasrecalled
    Arecurringproblemwithreviewsofpasteventsisdistinguishingwhatisnowknown
    withhindsighttohavehappenedandwhatthoseinvolvedmightreasonablyhavebeen
    expectedtoknowandtotakeintoaccountatthetime.Inparticular,intryingtoassess
    whetheraneventmighthavebeenpredicted(andthusbepotentiallypreventable)the
    historicalrecordwillnormallyrevealcluesthatmaybeseenwithhindsighttobe
    pointerstofuturetrouble.Thesignificanceofsuchcluesisunlikelytohavebeen
    evidentatthetimeunlessthoseconcernedalreadyhadintheirmindsthepossibilityof
    theeventthatoccurredandthusasitwerehadtheirsensessharpenedtotheearly
    signsoftrouble.
    OmandReview 8

    AnimportantquestionIhaveaskedthereforeiswhethertherewasanyreasonforthose
    responsibleforthecasetohavehadintheirmindsthepossibilitythatJonVenables
    mightdevelopaninterestinindecentimagesofchildren.Ihavefoundnoevidencein
    theextensivepsychiatricassessmentsdatingbacktohistrialandinallthesupervision
    reportingthatwouldhavepointedinthatdirection.Thoseresponsibleforhis
    supervisionwerealertedfromtheoutsettothelikelihoodthatsomeoneofhis
    backgroundandcarehistorymightendupwithalcoholordrugsrelatedproblems.But
    thenatureofthefurtherseriousoffenceinvolvingindecentimagesofchildrenclearly
    cameasacompleteshocktoallconcerned.
    Intheend,therefore,after9yearsofappropriateandcarefulsupervisionand
    correctioninthecommunity,JonVenablescommittedaseriousfurtheroffenceandhas
    beensentencedtoaperiodofcustody.Theoffencebecameknownbyaccidentonlyas
    anindirectconsequenceofactiontakenbythepolicetoprotecthimfromanentirely
    unrelatedcompromiseofhisidentity. InamitigationpleainCourtitwasstatedthat
    therewasalinkbetweenthegrowingstressunderwhichhewaslivingandthebuildup
    ofdepressivefeelingsandhisdownloadingofindecentimagesofchildren.Itwillbefor
    theParoleBoardinduecoursetoassessthisinthelightoffurtherpsychiatric
    assessmentsinordertodeterminewhenafterhisperiodincustodyhecansafelybe
    releasedagain. JonVenablescarriesthesoleresponsibilityforhisfurtheroffencein
    relationtoindecentimagesofchildrenwhichIconcludeisnotonethatcouldhavebeen
    eitherpredictedonthebasisoftheassessmentsavailabletotheProbationServiceor
    preventedbyanyreasonableoffendermanagementsupervisoryregime,eventougher
    thantheoneimposedtodealwiththedeteriorationinhisgeneralbehaviour. Itis
    possiblethatifinrecentyearshehadbeenin(andimportantlyhadhebeenprepared
    willinglytocooperatein)psychotherapyorcounsellingthatthereasonsforhismisuse
    ofdrugsandalcoholandescalatingrelianceonevermoreextremepornographyis
    somethingthathemighthavesharedandthusbeenbetterabletodealwith,butthat
    canonlybeconjecture.
    Theoveralleffectivenessofsupervision
    JonVenableshadthreeexperiencedoffendermanagersassignedtohiscaseoverthe9
    yearperiodofhisreleaseonlicence.Eachestablishedaprofessionalrelationshipwith
    him,andprovidedconsiderablesupportandwithoutthatIaminnodoubthewouldnot
    havebeenabletosurviveinthecommunityforaslongashedidwithoutgoingoffthe
    railsearlierandendingupdisclosinghisidentity. Ihaveconcludedthathewas
    OmandReview 9

    supervisedatanappropriatelevelwithasuitableriskbasedfrequencyofcontact,
    havingregardtotheparticularcircumstancesandchallengesofhiscaseatdifferent
    periodsandtheconsistentassessmentsoflowriskhewasseentopose.
    Muchworkbyofficialswentintocontingencyplanningagainstabreachinhissecurity,
    andintodetailedanalysisofthelegalandcomplexpublicprotectiondutyofcare
    implicationsofhislivingunderanewidentity.IconcludethatDepartmentalofficials
    providedthenecessarypolicyandlegalsupportforthosemanagingthecase.
    Withhindsighttheremayhavebeensomemissedopportunitiesalongtheroute. It
    wouldwithhindsighthavebeenbetterifhehadbeenofferedalongerperiodof
    mentoringsupportseparatefromoffendermanagementasheadjustedtobeingself
    supportingaftergrowingupinasecureinstitution,andiftherehadbeensome
    continuedinvolvementofthespecialistadviserinprotectedoffendermanagementin
    keepingtheidentityaspectsofthecaseunderreview. Alsowithhindsight,officials
    weretoooptimisticabouthisgrowingmaturityinnotpressinghimtoacceptfurther
    clinicaltherapeuticsupportin2004/2005whenitwasclearthatmakingpersonal
    relationshipsunderanewidentitywouldbeproblematic(andagainin2008afterhe
    wasarrestedforbeingaSection4PublicOrderoffence)buttheywereguidedbythe
    factsofthecaseastheysawthemandbyhisownattitude. Hadhebeenmore
    cooperativeitmighttoohavebeenpossibletotrymoreactivelytosteerhimontoa
    morerewardingemploymenttrackandthatmighthavegivenhimmoresenseof
    purpose,butthatcannotbecertain,andhewasresistanttotheeffortsthatweremade.
    ProbationandDepartmentalofficialswereveryconsciousatthetime(ashasbeenthe
    media)ofthedangerthatJonVenablesmightseehimselfasspecialandnotrequired
    totakeresponsibilityforthecourseofhislife,andtheydidthebesttheycouldbyhim
    withinthatlimitation. Itwouldhavebeenunderstandableifinthemindsofofficials
    wasthethoughtthattherearemanydeservingcasesofyoungpeoplewhohavenot
    committedcrimesandwhocouldbenefitfrompublicfundingoftherapeuticworkand
    ofactiveofficialinterventioninfindingagoodjob.
    Issuesforthefuture
    Computermisuseisparticularlyhardforoffendermanagerstoexerciseanycontrol
    over. Forsomecategoriesofsexoffendersitisnowjudgedproportionatetohavea
    licenceconditiontoallowmonitoringoftheuseofdevicesthataccesstheinternet.The
    conditionsforJonVenableslicenceweresetbeforetheageofbroadbandinternetand
    OmandReview 10

    socialnetworkingsites.Withhislowriskassessmentandnosexoffenderhistorythe
    lateradditionofsuchaconditionwouldhavebeenopentolegalchallenge.Norwould
    suchameasurenecessarilyhavepreventedhisfurtherseriousoffence;forJonVenables,
    asacomputerliterateindividual,therewouldhavebeenseveralwayshecouldwith
    someinconveniencehavemadedirectmonitoringharderhadhebeendeterminedto
    accessunlawfulmaterial. ButImakethegeneralpointthat,suchisthespeedof
    developmentoftechnology,licenceconditionsneedtobereviewedperiodically,for
    exampleinthelightofthedevelopmentoftheinternetandsocialnetworksandinternet
    capabledevices. WherelicenceconditionsforMAPPAlevel3offendersimpose
    geographicalconditions(aswithVenablesexclusionfromMerseyside)thenitmaybe
    possibleinfuture,ifacurrentpilotissuccessful,toconsidertheapplicationofgeo
    location. Itmaybepossibletodeveloptaggingbraceletstoallowanoffendermanager
    tocheckupaftertheeventonwhetherlicenceconditionshavebeenbrokenandthereis
    acaseforrecall.Again,theCourtswouldnodoubtonlybepreparedtoconsidersuch
    infringementofArticle8rightswheretherewasahighriskofharmtothepublictobe
    preventedbutitisapossibilitytheMinistryneedstoexamineforthefuture.
    Ihavebeenstruckthroughoutthisreviewbytheextremedifficultiesforthecriminal
    justicesystemcausedbytheoriginalCourtdecisiontonameJonVenablesandRobert
    Thompsonupontheirconviction.Identitychangeisneverastraightforwardorreliable
    option,andIbelieveitwillbecomeincreasinglyhardinfuturetopreventnewidentities
    beinglinkedbyinvestigationbacktobirthidentitygiventhegrowthinthenumberand
    complexityofelectronicdatabasesholdinginformationaboutindividuals.Thisisa
    trendthattheCourtswillneedtobearinmindinfuturecasesofextremenotorietyin
    seekingtoassesswhethertheapplicationoftheopenjusticeprinciple
    1
    wouldin
    practicefrustrateorrenderimpracticabletheadministrationofjustice. Theendsof
    justicemaybebestservedinsomeexceptionalcases(especiallyyoungoffenders)by
    keepingconfidentialthenameoftheoffender,justifyingadeparturefromtheprinciple
    ofopenjustice.
    Theessenceoftheconclusionsofmyreviewareinthisletter. Thereisofcourse,asin
    anyhumanendeavour,learningthatcanbedrawnfromtheexperienceofthose
    probationofficers,policeofficers,Whitehalladministratorsandotherprofessionals
    whodevotedyearstomanagingthecaseofJonVenables.Ihavedocumentedthecasein
    detailforfutureusebyofficials,anddrawnoutlearningpointsataclassifiedlevelsince
    itisnotpossibletorecountindetailthesupervisioninthiscasewithoutconsideration
    ofthecomplicationsarisingfromtheneedtoprotecttheidentityofJonVenablesthat
    1
    AttorneyGeneralvLevellerMagazineLtd[1979]
    OmandReview 11

    wereintegraltothearrangementsmade.Forlegalandsecurityreasonsitwillbe
    necessarytoredactthisinformationbeforepublication.
    IammostgratefultoDileeniDanielSelvaratnamforherworkastheSecretaryofthis
    Review,toMelanieSmithforherprofessionalsupportonbehalfoftheProbation
    Service,andtoNahidAktarforsecretariatsupport. Thisreviewwouldnothavebeen
    possiblewithouttheircontribution.
    SirDavidOmandGCB
    London
    01November2010
    OmandReview 12




    TermsofReference
    toreviewthesupervisionofthesubject,fromhisreleaseonlifelicenceuntil
    his recall to custody, in order to establish whether he was effectively
    supervised, having regard to national standards and guidance and to the
    particularcircumstances/challengesofhiscase;
    in doing so, to consider the actions of his offender managers, their
    supervisors, the local police, the local MAPPA meetings and the roleof the
    NationalManagementBoard;and
    toestablishwhethereverythingwasdonewhichmightreasonablyhavebeen
    expected of all agencies involvedin supervising the subject to monitor his
    compliancewithhislicenceconditionsandtoassessandmanageanyriskof
    harmwhichhepresented.
    OmandReview 13

    OmandReview 14

    Section1Introduction
    1. Thebarefactsoftheindexoffencearewellknown
    2
    :
    JonVenableswasbornon13August1982inBootle.Heisnowaged28.Heandco
    defendantRobertThompsonwereconvictedon24November1993atPreston
    CrownCourtoftheabductionandmurderof2yearoldJamesBulger.Atthetimeof
    themurderJonVenableswas10yearsold.
    UnderSection53(1)oftheChildrenandYoungPersonsAct,applyingtothoseunder
    18whenconvicted,JonVenableswassentencedtoamandatorytermofdetentionat
    HerMajestysPleasure. ThecustodialpartofhissentencewascarriedoutatRed
    BankCommunityHome,asecurelocalauthorityunit,wherehewasgivenintensive
    psychiatricandsocialcare.Hedidwelleducationally,achievingsixGCSEsandwas
    saidtohaveshownmaturityoverandabovethelevelofhispeers.
    2. The8yeartariffsetbythetrialjudgewaslaterincreasedto10yearsbytheLord
    ChiefJustice,LordTaylor,andincreasedagainto15yearsbytheHomeSecretary,
    MichaelHoward,butthiswassubjecttosuccessfullegalchallenge.In2000,thethen
    LordChiefJustice,LordWoolf,reinstitutedtheoriginaltariff. Afterprolonged
    argumentsastowhetherheshouldonreachingtheageof18transfertoanadult
    secureinstitution,theLordChiefJusticeannouncedon26October2000thatthe
    tariffshouldexpireimmediately.Afterover8yearsinsecurelocalauthoritycare
    fromtheageof10,therefore,theParoleBoardreleasedhimonalifelicence
    effectivefrom22June2001. Indecidingtoreleasehim,theParoleBoardtook
    accountoftheabsenceofviolentorpsychopathicbehaviourduringhis8yearsin
    RedBankandtheabsenceofsuchbehaviourinthepastpriortothemurder.Hewas
    releasedunderanewidentityprotectedbyaHighCourtinjunctionobtainedin2001
    topreventthepublicationofinformationlikelytoleadtotheidentificationofthe
    defendantashavingbeenformerlyknownasJonVenables.
    LicenceConditions
    3. Inadditiontostandardconditionsaspartofhisinitiallicence,theParoleBoard
    imposedspecificconditions,tailoredtohiscircumstances:
    2
    Theinquiryhascompiledafullclassifiedchronologyandarchiverelatingtothecase,
    retainedintheMinistryofJustice(PPMH)
    OmandReview 15


    1.Heshallplacehimselfunderthesupervisionofwhicheversupervisingofficeris
    nominatedforthispurposefromtimetotime
    2.Heshallonreleasereporttothesupervisingofficersonominated,andshallkeep
    intouchwiththatofficerinaccordancewiththatofficersinstructions
    3.Heshall,ifhissupervisingofficersorequires,receivevisitsfromthatofficer
    wherethelicenceholderisliving.
    4.Heshallresideinitiallyat underwhateverconditionsare
    laiddownbytheGeneralManager,andthereafterasdirectedbyhissupervising
    officer.
    5. Heshallundertakework,includingvoluntarywork,onlywhereapprovedbyhis
    supervisingofficerandshallinformthatofficerofanychangeinorlossofsuch
    employment.
    6.HeshallnottraveloutsidetheUnitedKingdomwithoutthepriorpermissionofhis
    supervisingofficer.
    7.Heshallbewellbehavedandnotdoanythingwhichcouldunderminethe
    purposesofsupervisiononlicencewhicharetoprotectthepublic,byensuringthat
    theirsafetywouldnotbeplacedatrisk,andtosecurehissuccessfulrehabilitation
    intothecommunity.
    8.HeshallremainundertheclinicalsupervisionofDr oranyother
    forensicpsychiatristwhomaysubsequentlybeappointedtoprovidesuch
    supervision.
    9.Heshallnot,whetherdirectlyorindirectly,contactorattempttocontactany
    memberofthevictimsfamily.
    10.HeshallnotentertheMetropolitanCountyofMerseyside
    withoutthepriorwrittenconsent
    ofhissupervisingofficer.
    OmandReview 16

    11.Heshallnotcontactorattempttoassociatewiththecodefendant[Robert
    Thompson]
    4. AfurthertwoconditionswereaddedbytheParoleBoardon7May2002atthe
    requestofthesupervisingprobationservice(seeSection5below):
    12.Heshallnotresideorremainovernightinthesamehouseholdasanychild
    undertheageof16years,withoutpriorwrittenpermissionofhissupervising
    officer
    13.Heshallnothaveunsupervisedcontactorengageinanyworkorotherorganised
    activity,withchildrenundertheageoff12years,withoutthepriorwritten
    permissionofhissupervisingofficer
    5. Itisthese13licenceconditionsthatthesupervisingprobationservicewas
    requiredtoenforce.
    OrganisationoftheReview
    6. TheperiodcoveredbythisreviewofthesupervisionofJonVenablesfollowing
    thecustodialperiodofhissentencefallsnaturallyintofourphases:
    7. Phase1. Thepreparatory8monthsfromreleaseonlifelicenceon22June2001,
    living ,uptohis
    transferinMarch2002toindependentlivinginthecommunityofYShire,allunder
    thesupervisionoftheprobationserviceofXShire
    3
    .
    8. Phase2. Theearlyyearsinthecommunitywithveryintensivesupervisionby
    theprobationserviceofXShire,withpoliceprotectionfromtheXShireforce,from
    March2002toAugust2003
    9. Phase3. NormalisedsupervisionwithinNationalStandardsbyXShirefrom
    August2003(afterVenableshadreachedhis21
    st
    birthday)uptoMarch2007when
    responsibilitybegantobetransferredtotheprobationandpoliceservicesofYShire
    3
    Forlegalandoperationalreasonstheareashavenotbeendisclosed.
    OmandReview 17

    10. Phase4 Offendermanagementundernationalstandardsbythelocalprobation


    serviceofYShirefromNovember2007,duringwhichperiodtherewasthe
    developmentofminoroffendingbehaviour,andendingwiththediscoveryofthe
    furtherseriousoffenceinFebruary2010whenhewasrecalledtocustody.
    11. Thisreviewexaminesthemainissuesthatarosethatboreonsupervisionineach
    oftheseperiodsonlifelicencesupervisedandenforcedbytheNationalProbation
    ServiceandmanagedthroughaMultiAgencyPublicProtectionArrangementspanel
    (theMAPPP).Additionally,therearecertainthemesthatrunthroughtheentire
    periodofsupervisiontodateandthathavethereforebeenexaminedfunctionally.
    Thereportisthereforeorganisedasfollows:
    Section2Themanagementarrangementsforthecase
    Section3Identityandtheimplicationsofbeingaprotectedperson
    Section4Psychiatric,counsellingandmentoringwork
    Section5Childprotectionissues
    Section6ThemanagementofriskofharmduringPhases1through4
    Section7Conclusions
    OmandReview 18

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa

    Section2Themanagementarrangementsforthecase
    12. TheLordChiefJusticedecidedinOctober2000thatthetariffforJonVenables
    hadexpired.Atthatstage,therewasnoreleaseplaninexistenceandofficialshadto
    scrambletoputonetogetherveryrapidlyforconsiderationbytheParoleBoard,and
    suggestlicenceconditionsonwhichhemightsafelybereleased.Itbecameapparent
    toHomeOfficeofficials
    i
    thatimmediaterelocationintothecommunityundera
    changeofidentity,severingallthelinkswithonespast,wouldbeveryhardforJon
    Venables,particularlysinceinthiscasethesubjectwasavulnerableyoungperson
    withverylimitedlifeskills.Verysensibly,itwasdecidedtoallowJonVenableson
    releasetoliveforaperiod
    whilsthewashelpedtofindhisfeetandget
    usedtolivingunderanewidentity(afarmoredemandingskillthanjustusinganew
    name). TheHeadoftheHomeOfficeLifersUnitwarnedprescientlythatitwas
    unlikelythataonceandforallchangeofidentitywouldbesustainable,andthatthe
    abilityofthepoliceandprobationservicetoprotecttheidentitywasextremely
    limited. Herightlystressedtheneedforanumberofcontingencyplanstobeagreed
    betweentheagenciesconcerned.Therewerenorightanswers,normany
    precedents
    13. TheHomeSecretarywasintensivelybriefedonthecaseandonhisresponsibility
    byvirtueofSections1and3oftheCriminalJusticeandCourtServicesAct2000to
    makeprovisionforthesupervisionofVenablesoncereleasedonlicence
    ii
    . He
    acceptedthattheactualsupervisionwouldbecarriedoutbyalocalprobationboard
    undersection4ofthe2000Act.ItwasmadeclearpubliclythatJonVenableswas
    notbeingfreedbutwouldremainonalifelicencefortherestofhislifeandwould
    beliabletoberecalledtocustodyatanytimeiftherewasanyevidencethathe
    presentedarisktothepublicorhadaseriousbreachofhislicenceconditions. Care
    wastakenbytheNationalDirectorofProbationintheHomeOfficetoensurethatall
    concernedrealisedthatsupervisionmustbeactiveandthatanysignificantchange
    ofbehaviouronthepartofthesubjectsmustimmediatelybebroughttothe
    attentionoftherelevantseniorofficialsintheMinistry.Asdescribedbelowin
    section3,however,withacaseofthisnotorietythearrangementsforreleasewere
    nevergoingtobestraightforward,especiallywiththeseriouslevelofthreatof
    violenceagainsthimhangingoverJonVenablesshouldhisidentityandwhereabouts
    cometopublicnotice.
    OmandReview 19

    14. AcentralprojectgroupwassetupbytheHomeOfficeinJune2001toproject
    managefuturearrangementsforthetwooffendersinthecommunity,focusingon
    publicprotectionandensuringthesafetyoftheindividuals.Membershipconsisted
    oftheofficerswhohadbeenconcernedwiththecasewhilsttheoffenderswerein
    thesecureunit(includingtheseniorprobationofficerwhowouldgoontosupervise
    himunderlicence),thepolice,socialservicesandtherelevantHomeOfficeUnits.
    Issuestackledincludedtheidentificationoffurthereducationcollegesthatmightbe
    suitableforJonVenables.
    15. TheMultiAgencyPublicProtectionArrangements(MAPPA)werebroughtin
    nationally2001aroundthetimethattheseplanswerebeingmadeforthe
    supervisionofJonVenablesinthecommunity,andsensiblyalocalmanagement
    boardequivalenttoamultiagencypanel(aMAPPP,thetermusedhenceforthinthis
    review),meetingquarterly,wasseenasthebestlongtermwayofensuringlocal
    sharingofinformation
    iii
    .
    16.JonVenableswascategorisedasaMAPPAlevel3case.Thiselevatedratinginvolves
    ahighlevelofsupervision,appropriateforthoseoffenderswhoposethehighestrisk
    ofcausingseriousharmorwhosemanagementissoproblematicthatmultiagency
    cooperationandoversightataseniorlevelisrequiredwiththeauthoritytocommit
    exceptionalresources.
    Thethreetiermanagementstructureforthecase
    17. Thefinalarrangementsforthemanagementofthecasewereinplaceby2002
    andconsistedofathreetiermultiagencystructure.
    18. TheprobationserviceofXShirehadresponsibilityforthemanagementofthe
    caseandenforcementofthelicence. ASeniorProbationOfficerwhowasalready
    workingwithJonVenablesatRedBankactedasoffendermanager/supervising
    officeronhisreleaseonlicencewithoversightfromahighlyexperiencedassistant
    chiefprobationofficerintheXShireprobationservice.Alocalprojectboard
    includingthesupervisingofficerandthepolicewassetuptomeetwithJonVenables
    toorganisepracticalarrangements,reportingtoahigherlevelProjectBoardor
    MAPPP.
    OmandReview 20



    19. ThesecondtierwasaformalMAPPPforboththecasesofJonVenablesandthat
    ofhiscodefendantRobertThompson,chairedbythesingleProjectManagerat
    AssistantChiefOfficerlevelfromXShireappointedtocoordinatewithsenior
    representativesfromthesupervisingprobationserviceandthelocalpoliceservice,
    callingontheexpertisewhenneededofotherindividualsfamiliarwiththecase.
    From2005thisincludedarepresentativefromlocalsocialservices.The
    responsibilitiesoftheMAPPPwere
    iv
    :
    a. Regulatingandmonitoringcontactarrangements
    b. Commissioninganyriskassessmentsthatmightberequired
    c. MakingrecommendationstoaNationalManagementBoard(NMB)(see
    below)withregardtodisclosureofinformationtolocalagencies
    d. AdvisingNMBofanymoregeneralchildprotectionissueswhichmayarise
    20. Thethirdtierofmanagementofthecaseinordertoprovidestrategicdirection
    tothelocalprobationserviceandthepolicewasprovidedbysettingupaNational
    ManagementBoardintheHomeOffice.OriginallydesignedfortheThompsonand
    VenablescasestheNMBnowalsooverseestherelevantaspectsofaverysmall
    numberofnotoriouslifercases.TheNMBwaschairedbytheHeadoftheHome
    OfficePublicProtectionUnit(PPU)withtheAssistantChiefOfficerofprobationwho
    wasactingasProjectManager,representativesfromtheLiferUnit,HomeOffice
    (laterMoJ)legaladvisorsbranch(LAB),DirectorofSSIandthepoliceACPOleadon
    publicprotection.FromOctober2004the(then)DepartmentforEducationand
    SkillsprovidedanappropriaterepresentativefortheNMBfromchildrensservices
    tocoverchildprotectionissues.However,attheendof2006theNMBdecidedthat
    providedtherewasaclearedofficialinDFEStoprovideadvicewhenneededthen
    therewasnoneedforregularDfESattendanceattheNMB.AfterDecember2006it
    wasnotfeltnecessaryfortheACPOpolicerepresentativetoattend.
    21. TherewasacentralhandoverofNMBresponsibilitywhentheMinistryofJustice
    tookoverresponsibilityfromtheHomeOfficeinMay2007forthemanagementof
    lifercasesaspartofawidermachineryofgovernmentchange.JackStrawbecame
    theJusticeSecretaryinJune2007havingbeenHomeSecretaryintheperiod
    immediatelyprecedingthereleaseofJonVenablesandwasveryfamiliarwiththe
    case. ThePPUstaffconcernedmovedwiththecase,andotherthantheinevitable
    distractionsofanydepartmentalchangeintermsofuncertaintiesfortheindividual
    OmandReview 21

    civilservantsconcernedthereisnoevidencethatthisaffectedthecase.Inalater
    reorganisationinsidetheMinistryofJusticementalhealthandpublicprotection
    caseswerebroughttogetherundertheHeadofPPUtoformPPMHGroup.TheHead
    ofPPMHGroupchairstheNMB.
    TheworkoftheNationalManagementBoard
    22. TheNMBhelditsfirstmeetingon7May2002.Originallyitwasenvisagedthat
    theNMBwouldmeetevery68weeksonthiscasebutthisquicklysettledintoa
    quarterlyrhythmwhichitkeptupuntil2006,timingitsmeetingsafterthelocal
    MAPPP. TheNMBreceivedbeforetheirmeetingsaspeciallywrittenreportonboth
    theVenablesandThompsoncasesfromtheoffendermanagercoveringprogress
    withthecaseandprovidinganupdatedassessmentofrisktothepublic.
    23. TheNMBtooktheleadoncommunicatingwithMinistersanddealingwithissues
    withnationalimplicationsorthatwerepoliticallysensitive. TheNMBhadto
    considersignificantresourceandpolicyissuesoverpayingforpolicesupportfrom
    centralfunds,identityprotectionandthelevelofsupervisionthatMinisterswould
    deemappropriate.Asdiscussedinthelatersectionsofthisreview,theNMBhadto
    tackleotherrecurringpolicyissuesincludingoveridentity,childprotectionand
    disclosure. Discussionsoftheseissues,includingwithlegaladvice,wereattimes
    protracted. Theseweretackledintheendsatisfactorilyasissues,butwhatis
    strikingisthatwhilsttheNMBwasheavilyengagedinsuchpolicyandprocess
    issues(includingcontingencyplanning)theNMBdidnotoftenfeeltheneedto
    providestrategicguidanceonthecaseitself.
    24. Intermsoftherangeofofficialattitudes,itisworthrecordingtheviewofan
    officialinthePPUin2002.Herecognisedthatagreatdealhadalreadybeendoneto
    managethecaseandthatultimatelyapersonalresponsibilityshouldrestonthe
    individualhimself butarguedthatitwasnecessarytodemonstratethattheyhadall
    gonetheextramile.Hesuggestedthataforwardlookshouldbetakenofthe
    implicationsoffuturerelationships.Heposedthequestionwhethertherewasarisk
    thatthementalconstructeachsubjecthad,whilethekeytogrowthandsurvivalin
    adolescence,mightcauseorfailtopreventtherecrudescenceoremergenceofhigh
    risknottosaydangerousbehavioursinthefuture.Itisasthoughhavingdugthe
    gardenanddiscoveredsomethinghorrific(andtheCJShavingdealtwithwhatwas
    discovered)wehaveputbacktheearthwithoutknowing(a)whetherother
    discoveriesperhapsnotashorrificbutasinfluentialaretobefoundand(b)whatall
    OmandReview 22

    theeffectsonthesocial,emotionalandpsychologicaldevelopmentofeachcaseof
    thediscoveryofsomethinghorrificareormightbe.Thispsychodynamic
    observationwasprescientinrelationtoVenablesbutneithertheNMBnorthe
    MAPPPsseemdisposedtofollowupsuchlongertermthinking.
    25. TheNMBhadoriginallyseenitselfhavingstrategicownershipofthecases,
    whichforthoseconcernedseemstohavemeantbeingthemultiagencyforumthat
    couldhavestoodbackfromtheweektoweekandmonthtomonthinvolvementof
    theMAPPAandlookedatthelongertermprospectsandemergingpolicyissues.In
    2005forexampletheNMBdirectedtheMAPPPthattheyshouldassumethatthe
    casewouldrequiretheexceptionallevelsofsupervisionfortheindefinitefuture,
    andin2006,giventhecontinuinglowassessmentofriskthatJonVenableswas
    thoughttopose,theNMBsetintrainatransitiontoagreaterdegreeoflocal
    ownershipofthecase,describedatthetimeasanormalisationpolicyincluding
    transferofthecasemanagementtotheprobationserviceofthelocalarea,YShire,in
    whichJonVenableshadbeensettled(seeSection6Phase3).
    26. Withthe2006/07movetonormalisethecasetheNMBwithdrewfroma
    quarterlymeetingcycleandinsteadagreedtobeavailabletomeetwhennecessary
    forconsiderationofindividualissueswithpoliticalornationalimplications.
    Ministerialinvolvementandrole
    27. Fromtheoutset,giventhenotorietyofthecase,theHomeSecretary(andlater
    theJusticeSecretary)keptanactiveinvolvementinthemanagementofthepublic
    dimensionofthecase.Atanationallevel,whenreleasetookplacein2002thenew
    HomeSecretary,DavidBlunkett,insistedthattheNationalDirectorofProbation
    takepersonalresponsibilityforensuringpropersupervisionandbeaccountable
    directlytohim.Heaskedinitiallytobeprovidedwithdailyandthenweekly
    reportingtohimofprogresswiththecase(andwiththatofRobertThomson).
    28. TheDirectorofNationalProbationagreed
    v
    inMay2003thatherdecisionmaking
    roleonthecasecouldbedelegatedtotheHeadofPPUaschairoftheNMB,explicitly
    recognisingthatthiswasontheunderstandingthattheofficialconcernedhada
    recentoperationalprobationbackground.Inotethatthisconditionwasnotmetfor
    somesubsequentholdersofthepost,althoughnooneappearsatthetimeof
    appointmenttohavereferredbacktotheoriginalunderstanding.Iseenoneedto
    recommendreimposingthisconditiongiventherangeofprofessionaladvice
    OmandReview 23

    aaaaaaaaa aaaaaaaaaa

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaa

    availabletotheNMB,andthepositionshouldnowberegularised,butitisan
    exampleofhoweasilyovertimesarrangementscanbechangedandrelaxedwithout
    collectivememorycomingtobear.
    29. TheSecretaryofStaterelaxedtheMinisterialreportingarrangementsinAugust
    2003notingthatJonVenableshadbeeninthecommunityfortwoyearswithout
    incident(coincidingwithhisreachingtheageof21).Supervisionmeetingswithhis
    offendermanagerwerereducedfromweeklytoeveryfortnight.
    30. InSeptember2002, suggested holidayabroad.The
    MAPPPandNMBconsideredthispotentiallyadvantageous
    vi
    ,butafterconsultation
    withtheNationalDirectorofProbationagreedtokeepitonholdandtoreconsider
    thefollowingyearwhenfurtherevidenceofhisprogressatcollegewasavailable
    vii
    .
    InMarch2003
    viii
    ,theNMBconsideredwhatpolicyshouldbefollowedinsuchan
    exceptionalcase,andagreedthatitwasnotappropriatetoconsulttheParoleBoard
    butinsteadthematterwouldneedtobereferredtotheHomeSecretary,whichwas
    dulydoneinApril2004
    ix
    . Theprinciplesbywhichrequestsfortraveloverseasby
    ThompsonandVenablesshouldbeassessedwereasaresultagreedinprincipleby
    theHomeSecretary(DavidBlunkett)inJune2004whoacceptedthattravelabroad
    cantakeplacesubjecttoapprovalofanyplanslocallytheinferencemadeby
    officialswasthattheywouldnotneedtoreferbacktotheHomeOffice.
    31.
    Referenceismadeinthesubmissiontoanoralbriefingheldin
    October2007,wheretheJusticeSecretaryhadbeeninformedofthepreviously
    agreedframeworkandhadnotedtherequestfromVenables,whichhadbeen
    approvedbytheNationalManagementBoardtotravelabroad.Thereisnorecordof
    thisearlieroralbriefingandthesubmissiondoesnotexplicitlystatethatVenables
    hadundertakenatrip
    OmandReview 24

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa

    aaaaaaaaaa

    officialsseemto
    haveinadvertentlyfailedtogivetheJusticeSecretary(JackStraw)thefullpicturein
    submittingthisadvice,bynotrevealingthepreciseextenttowhichforeigntravel
    hadalreadybeenundertaken .
    32. ConsiderableMinisterialandseniorofficialeffortwentintoguidingthehandling
    ofthemedia(andtheinjunctions)andenquiriesfromthefamilyofJamesBulger,
    andfromconcernedMPs,morethanonquestioningprogresswiththecaseitself,
    whichseemstohavebeenleftasanoperationalmatter.SubmissionstoMinisters
    onthevariousmediaissuesintheperioduptohisarrestin2008fortheSection4
    PublicOrderoffencedidnotgointodetailonhiscaseandwouldhaveleftthe
    impressionthatallwasthoughttobewell.Inoneinstance(asnotedinSection3)
    officialsexplicitlyrefrainedfrombriefingMinistersonthecoursetheywere
    followingonthegroundsthatthematterwasanoperationalonefortheprobation
    service
    x
    . Thatmayhavebeentheformalposition,butitwouldhavebeentheHome
    Secretarythatwouldhavehadtodefendthedecisionnottoinformanemployerof
    JonVenablesofhispastrecordhaditcometomedianotice,andIsuspectaHome
    Secretarymighthavewantedtobeawareofthat.
    33. Thediscoveryin2004thatJonVenableshadarelationshipwithagirlfriendwho
    hadachildtriggeredlegaladviceontherelativeroleontheonehandoftheHome
    Secretaryandhisofficials,andontheotherhandthelocalprobationservicethathad
    managementofthecase.HomeOfficelegaladviceclarifiedthatsection31ofthe
    Crime(Sentences)Act1997meantthatdecisionsrelatingtothesupervisionandday
    todaymanagementoflifelicenseesliewithanofficerofthelocalprobationboardor
    probationtrust,asappropriate.TheSecretaryofStateisresponsibleforensuring
    thatprovisionismadeforprobationservices,includingfinancialprovision,butthis
    wouldnotnaturallyextendtotheindividualmanagementoflifelicensees,whichis
    thespecificstatutoryfunctionoftheprobationservice.Theadvicedidnotofcourse
    detractfromtheclearstatutoryresponsibilitiesoftheSecretaryofStateinrelation
    torelease,settinglicenceconditionsandrecall.Thisadviceclarifiedthatitisthe
    probationboardthatexercisesthefunctionofsupervisionoflifelicenseesnotthe
    SecretaryofState.Nevertheless,severalofthoseinvolvedinthesupervisionofthe
    casecommentedtomethatinpracticethesituationwasnotclearsinceevenifthe
    operationalresponsibilitylaywiththelocalprobationservice,daytodaydecisions
    werestillliabletobecountermandedbytheNMBonbehalfofMinisters.
    OmandReview 25


    34. ThepotentialchildprotectionimplicationsofVenablesrelationshipalsoledto
    intensediscussionabouttheresponsibilityfortheoperationalmanagementofthe
    casebetweentheChiefOfficerofXShireService,whowereatthatpointresponsible
    fortheprojectmanagementarrangementsofbothcases,andtheChairofNMB.The
    localChiefOfficerinsistedoncheckswiththechildprotectionregister;PPUofficials
    intheHomeOfficewereconcernedonbehalfoftheSecretaryofStateattheriskof
    compromise.TheprojectmanagerACOfoundherselfcaughtbetweenconflicting
    orders
    xi
    andtheconsequentdifficultyofinstructingtheoffendermanagerastohow
    toproceed.Legally,itwasestablishedthatXShirehadresponsibilityforthe
    managementofthecase,butthedangerwasidentifiedthattheYShireChiefOfficer
    mightbeputtherebyinanimpossiblepositionshouldtherebeanincidentonhis
    patchforwhichhewouldbevicariouslyliable.
    Resources,continuity,successionplanningandtrainingforsupervision
    35. TheNationalDirectorandseniorofficersconcernedinthelocalprobation
    servicesrecognisedtheadditionaldemandsofthecase,includingsupervising
    someonelivingunderanewidentity.Seniorandexperiencedprobationofficers
    werechosentoprovidesupervision.TheattitudeoftheChiefOfficersconcerned
    throughoutthecasehasbeenthatbecauseofitsspecialnatureitshouldhavethe
    resourcesitneededwithnothingheldback.Thefilesbearthisout.Theoffender
    managersdidhavetocometotermswiththepracticalimplicationsforthemofthe
    policeprotectionthatwasrequiredandthecomplexsecurityarrangementsmadeto
    allowJonVenablestoliveunderanewidentity.Theyseemtohavepickedthisupas
    theywentalong,butitwouldbegoodtocapturetheirlearningforthefuturetohelp
    theirsuccessors.
    36. Earlyon,theneedforcontinuityandsuccessionplanningwasrecognisedand
    actedupon. Theoffendermanagersandtheirsupervisingofficershadgood
    handovernotes,wellplannedindividualhandoversandinsomecasessignificant
    overlapstoallowcontinuityincasemanagementandthebuildupofclienttrust.
    Thiswaswelldone.
    37. Allconcernedinthesupervisionofthiscasewereinstructedspecificallythatany
    behaviourthatconstitutesacriminaloffenceifdiscoveredbyanyagencymustbe
    reportedimmediatelytotheprojectmanagerforthecase(thesupervisingAssistant
    ChiefOfficer)andevidencegatheredinsupportofit.Allconcernedwerealsoaware
    OmandReview 26

    oftheneedtohavecontingencyplansagainstthepossibilityofaccidental
    compromiseofidentityandadangerarisingthreateningthesafetyorsecurityofthe
    subject,forexamplefollowingmediainvestigationordisclosurebythesubject,orif
    hewerearrested.
    38. ContingencyplansweremadeearlyonincaseofthearrestofJonVenablesfora
    minoroffenceunderhisnewidentity. Howeverin2008,whenhewasarrestedfor
    theSection4PublicOrderoffence,theproceduresdidnotworkaswellasexpected,
    andrevisedplanshadtobedrawnup.Aftertheshiftofresponsibilityforpolicingto
    theYShirepolice,theMAPPPrecognisedthattherewerenouptodate
    arrangementsforrecall,includingliaisonwiththePrisonServiceinordertoallow
    swiftrecallinthepublicinterestwhilstpreservingtheidentityofthesubjectin
    ordertoreducetherisktohim.Whenplansandflowchartswereproducedand
    distributedtheywerethenfelttobeunworkableinpracticeandrequiredrevision
    (forexampleduetotheabsenceofaprisonidentifyingnumberforJonVenablesin
    hisnewname).Intheevent,whenhewasrecalledin2010,urgentinterventionwas
    neededlateinthedaybyPPUwiththerelevantprisontoalertthemtotheactivation
    oftheplan.Itisanoldlessonthatcontingencyplansthatareexpectedtobeinforce
    forseveralyearsneedrefreshingandperiodictestingtoremaineffective.
    Securityarrangementsanddocumentation
    39. ToassistsecurityacodewordforthecasewasissuedbytheHomeOfficeinJuly
    2001,andpaperscontainingdetailsofthecaseandofthenewidentityforJon
    Venableswerehandledasclassifieddocuments.Throughoutthecase,however,
    therehavebeensensationalmediastories,someofwhichatleastmayhavetheir
    origininleakedinformation.Ihavenotattemptedtotracetheseleaks,butit
    appearsunlikelythattheywerelocalinorigin.Followingpressspeculationin2006
    thatappearedtohavecomefromsomeunauthorisedsourcewithaccesstoatleast
    someinformationonthecase,anexperiencedretiredCabinetOfficesecurityofficial
    carriedoutareviewofsecurityprocedures,includingintheMinistry,andinthe
    policeandprobationservice.Hemadeanumberofrecommendationsallofwhich
    wereaccepted.Sincethentherehasbeensomeslippingback,andclassificationof
    papersandofreferencestothesubjectsneedstobestandardisedagainwithnew
    guidanceonhowthesubjectshouldbereferredtofollowingthecompromiseofhis
    OmandReview 27


    identityandthedecisionoftheCourttodisclosewhichprobationservicewas
    latterlyresponsibleforsupervisionofJonVenables.
    40. Thissensitivecasedidnotforsecurityreasonsgetenteredontothe
    computerisedcasemanagementandrecordingsystems,orothercomputerrecords
    systems. AlthoughtheminutesoftheNMBprovideaclearoverviewoftheprogress
    ofthiscaseinitsearlyandlatestages,therearenowgapsintherecordsheldbythe
    MinistryofJusticeforpartsof2006and2007.Thesegapsareunfortunatesinceit
    isessentialthatthoseworkingonanotoriouscasesuchasthishavereadyaccessto
    thecollectivecorporatememoryofthecase,includingpsychiatricreports,aswellas
    decisionstaken.WhenthearrangementsfortheVenablescasewerenormalisedand
    transferredinNovember2007fromtheprobationserviceinXShiretoYShirewhere
    JonVenableswaslivingsecurityconstraintsmeanttherewasalackofclarityabout
    thepolicesupportresponsibilities,especiallyoncethetransferoffinancialsupport
    fromtheHomeOfficehadceased.Officialsdealingwithoverseastravelofthe
    subjectalsofailedtoconnectwithearlierconsiderationbyapreviousSecretaryof
    State(asdetailedatparagraph30).TherewasalsoaglitchwhentheMinistryof
    JusticerefusedanFOIrequestin2009formaterialonthecasethathadalreadybeen
    releasedinresponsetoanFOIrequestin2007andhadbeenreportedinthemedia.
    Conclusionsonmanagementarrangementsforthecase
    41. MyoverallimpressionisthatMinisterswerekeptwellinformedonthepublic
    profileofthecasebutlesssoonthesubstance.Mostsubmissionsresultedfromthe
    needtosubmitadviceonspecificmediastories,includingthosethattriggered
    lettersfromtheparentsofJamesBulgerorMPs,forexamplefollowinghoaxpostings
    aboutthesubjectsonsocialnetworkingsites,allegedsightings,ortheuntruestory
    thattheMODhadchangeditsrulesintheirfavourtoallowconvictedmurderersto
    enlist. Itwouldhavebeengoodpracticetohavehadaspecificbriefingonthese
    casesonchangeoftheresponsibleSecretaryofState(therehavebeen8duringthe
    courseofthecasetodate). AnannualstocktakewithajuniorMinisteronthevery
    smallnumberofNMBcaseswouldalsohelpkeepfocus.
    42. MyjudgmentisthatitwasrighttosetuptheNMBtoprovidestrategicdirection
    totheMAPPPoncasesofextremenotorietyandcomplexityinwhichnationalissues
    areengaged. InsuchcasesIbelievethisrepresentsthebestbalancebetweenlocal
    managementclosetothedaytodayexperienceofthecaseandessentialnational
    directiononmajorpolitical,legalandpolicyissues.Thereareboundtobe
    OmandReview 28

    significantissuesthrownupbyacasesuchasthis,includingidentity,public
    protectionandmediareportingrestrictionsthatrequireinterdepartmental
    arrangements,andnationalguidancefollowinglegaladvicefromMoJlawyersand
    counsel,andclosecontactwiththeJusticeSecretary. Allconcerned,includingthe
    JusticeSecretary,needtobeclearaboutwhereresponsibilityliesforthestrategic
    managementofacase,involvinglongtermreviewandplanning. Ifitisdecidedthat
    thelocalMAPPPshouldcarrythisresponsibilitythenthatneedstobedocumented
    sothatallconcernedareclearaboutwherestrategicownershipofthecaselies.In
    anyevent,IbelievethatitisthereisaroleforabodysuchastheNMBtoexercisea
    constructivechallengefunctiontotheMAPPPintheinterestsofsecuringthebest
    longtermoutcomes. Irecommendthatinadditiontomanagingbusinessasit
    comesup,theNMBshouldorganisestrategicreviewsofeachcasewiththeMAPPP
    periodically,probablybiennially.
    43. ThetermsofreferenceoftheNMBshouldbereviewedandreissued,takinginto
    accountseparateconsiderationbeinggivenintheMoJtoreorganisationof
    arrangementsformanagementofspecialcasesrequiringwitnessoroffender
    protection.Thetermsofreferenceshouldbebasedonacleardefinitionofthe
    respectiveaccountabilityoftheSecretaryofState,actingthroughhisofficials,and
    theprobationserviceortrustgivenoperationalresponsibilityforsupervision.
    ThereisacaseforchangingthetitleoftheNMBsinceitdoesnotmanagecasesin
    thewayinwhichitwasoriginallyenvisagedthatitwouldhavetowhenitwasset
    up.ThemembershipoftheNMBfortheVenablescasereflectedtheinterestsinthe
    case,includingthesecurityofthesubject,identity,legaladviceandchildprotection,
    recognisingthatsomemembersneedonlyattendwhentheirinterestsareengaged.
    Thespecialistinprotectedoffendermanagement(SPOM)shouldbeastanding
    memberoftheNMB,reflectingtheneedtotapintopracticalexperienceindealing
    withcasesofnotorietywhereidentityisamajorissue.
    44. ThedecisionoftheNMBearlyin2008onlytomeetwhenneededonthe
    Venablescasewasnotnecessarilythewrongone.TheMAPPPwasreportingthat
    therisktothepublicremainedlowandtherewasthereforelittleimmediate
    businessfortheNMB.OfficialswereconsciousoftheriskthattheNMBmightbe
    temptedtogetintosecondguessingoperationaldecisionsthatcanbeandare
    routinelymadeatthelocallevel.ButtheNMBshouldatthatpointhavemadeit
    explicitthatitwaslookingtotheMAPPPtotakestrategicownershipoflongterm
    planningofthecaseandtoreportperiodicallytotheNMBonlongertermprospects.
    OmandReview 29

    Additionally,giventhepoliticalsalienceoftheVenablesandThompsoncases,the
    NMBcouldalsohaveusefullymadearrangementswiththeMAPPAtoholdjoint
    periodic(say,biennial)strategiccasereviewsandthusexerciseastrategicchallenge
    function.
    45. WeektoweekmanagementofthecasebytheXShire,andlatertheYShire,
    probationservicewaswellresourcedandprofessional.Handoverswerewell
    managed. Thesecurityrequirementswere,however,unusual.Forthefuturewhen
    specialsecuritymeasuresarerequiredforoffendersbeingsupervisedinthe
    communitythentheMinistryofJusticeshouldorganisefortheprobationofficials
    concernedashortburstoftrainingandindoctrinationintowhatwillbeinvolved
    andthestressestobeexpectedonthesubject(andattimesonthemselves)andfor
    thistoberenewedasthesupervisingpersonnelchange.
    46. ItisnotgeneralpracticeforprobationofficersmanagingMAPPAcasestohave
    theirownclinicalsupervision,althoughthishasnowbecomebestpracticeincases
    involvingoffendersguiltyofserioussexualoffenceswhoareundertaking
    programmework(andisawidespreadpracticewithinthesocialservices
    profession).ForthesmallnumberofNMBcases,giventheircomplexity,identity
    protectionstressesandthenatureoftheindexoffencescommitted,Ibelievethatthe
    Departmentshouldarrangeforoffendermanagerstobeofferedclinicalsupervision
    andencouragedtotakeadvantageofit.
    47. TherecallofJonVenablesin2010wasmanagedswiftlywithoutdangertothe
    subject,andillustratedanexcellentlevelofcooperativeworkingbetweentheYShire
    policeandtheYShireprobationservice.Thereare,however,generallessonshere
    forNOMSforothercasestocheckthatlocalinstructionsexistandareknowntothe
    relevantstaffondutyintherelevantprisonstoenablesuchcontingencyplanstobe
    activatedwithintheprisonsconcernedandthatthedetailofsuchplanshasbeen
    checkedoutwiththosewhowouldhavetoactivatethem.
    48. Itwouldbewisenowtoissueanewcodeworddrawnfromthenationallistand
    toreissuebasicsecurityinstructionsonthecase.Newguidanceisneededonhow
    thesubjectsshouldbereferredtofollowingthecompromiseoftheiridentityandthe
    decisionoftheCourttodisclosewhichprobationservicewaslatterlyresponsiblefor
    supervisionofJonVenables.
    OmandReview 30

    49. Thereisalsoalessonfromthiscaseabouttheadditionalstepsthatneedtobe
    takentoensurecollectivememorywhenforsecurityreasonsacaseistightlyheld
    underneedtoknowprincipleswithduplicaterecordsnotbeingheldlocally.Files
    orprecedentbooksshouldbekeptinawaythatcaninformthehandlingofacase,
    andthoseinvolvedshouldbeencouragedtomakereferencetothem.Thiscase
    highlightstheneedforpaperrecordstobekeptingoodorder,askillthatnow
    seemsinshortsupply.
    OmandReview 31

    OmandReview 32

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    Section3Identityandtheimplicationsofbeingaprotectedperson
    Theneedforanewidentity
    50. InJanuary2001ThompsonandVenablesweregrantedaninjunctiveorderby
    theHighCourtplacingrestrictionsonthepublicationofanymaterialthatwould
    leadtotheiridentityandwhereaboutsbeingexposed. Itwasjudgedbythepolice
    thattherewasarealthreattotheirlivesiftheirwhereaboutsbecameknown.The
    policeareunderapositiveobligationtoprotecttherighttolifeofindividuals,as
    testedincourtinthecontextoftheneedtoprotectawitnessinthecaseofOsmanv
    UnitedKingdom1998.Thepolicemustthereforetakestepstoprotectathreatened
    individual. Thescopeandethicsoftheirsupport,however,requireacasebycase
    approachastoactionsbeingnecessary,justifiableandproportionategivenallthe
    circumstances. Suchsupportcanincludemaintaininganindividualssecurityby
    wayofrelocationatpublicexpenseintoasafearea,achangeofidentityandspecial
    protectionmeasureswherethereisaclearindicationthatthelifeoftheindividual
    willbeindanger.
    51. AnewidentityforJonVenables,securedthroughaninjunctiononreporting
    xii
    seemedtotheofficialsconsideringhiscaseessentialforhisownprotectionon
    releasewithoutitwelfareissuescouldnotbeaddressed.Prof.
    hadexpressedhisprofessionalopiniononthepointtotheParole
    BoardinAugust2000.Itisworthquotinginfull:Ithinkthatithasbeenvery
    advantageoustohimtoacceptthebenefitsofgoingunderhisownnameatRed
    Bank[thelocalauthoritysecureunit]andhavingtocopewiththereactionsofother
    peopletowhathedidwhenmuchyoungerthesituationwhenhemovesintothe
    opencommunitywouldbequitedifferent.Atthispoint,itiscrucialforhis
    rehabilitationthathebeabletomakeacleanstart. Therearenosignificantrisksto
    thepublicinhisdoingthatandtherearehugebenefitstohiminbeinggiventhe
    opportunitytomakeasuccessofsuchrehabilitation.Forobviousreasons,itisin
    thecommunityinterestaswellthathesucceeds.Forthistobepossible,Ithinkitis
    essentialthathebeabletoachieveanewidentity(withanewname)inanew
    vicinityandthathedoessowithinthecontextof .ofallthe
    risksinrelationtohisfuturerehabilitationthosethatsurroundthepossibilityof
    identificationarethegreatest(myitalics).Withoutanewidentitythechanceof
    discoverywould,itwasrecognised,addtotheburdenofpressureandstressand
    wouldcompletelyobscuretheoverallaimofreintegrationanddevelopment.
    OmandReview 33


    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa

    52. Thereareessentiallytwowaysinwhichanamecanbechanged.Forordinary
    membersofthepublicwhowishtoliveunderadifferentname,achangebydeed
    pollisasimplematter. Butthenewandoldnamesarelegallychainedtogether
    firmlyinanumberofways(andneedtobetoavoidcriminalsevadingjustice).
    Therearelegalobligations,forexampleonapplyingforapassportinthenewname
    orcompletingataxformandmanyotherlifetransactions,obligingtheindividualto
    disclosepreviousnames. Suchaprocedurewouldcertainlyhavebeeneasilybroken
    byinvestigativejournalistsorprivatedetectives.Thealternativeisfullidentity
    change:acovertprocessoperatedbythepoliceforasmallnumberofvulnerable
    witnessesincriminalcases.Afreshidentityisestablishedwiththedepartmentsand
    agenciesconcerned,completewithaconvincingpersonalhistory,andtheindividual
    tutoredinbeingabletosupporttheirnewnarrative.Documentationhastobe
    provided,includingpassport,nationalinsurancenumber,drivinglicence,credit
    history,NHSrecordsandsoon,withtheconnectionbetweentheoldandnewnames
    heldonlybyaverysmallnumberofspeciallyclearedofficers.Itisthatprocessthat
    wasusedforJonVenables.
    53. Theoperationofanewidentityforaconvictedchildmurdererwouldhowever
    notproveasstraightforwardasforexampleitmightforawitnessneeding
    protectionforalimitedtime.Theperiodforwhichthenewidentityhastobe
    maintainedislonger,literallylife.Thenatureoftheoffencecreatesaneedfor
    officialstobalancethevalueofanonymitywiththedutytoensurethedisclosureof
    thetruthaboutthenatureofhiscriminalrecordtomembersofthepublic,whether
    hisemployersoranyoneinacloserelationshipwiththesubject. Thislatter
    possibilitywasoneofconsiderablepotentialmediainterest.In2005theSunday
    Peoplerana(false)splashundertheheadingBulgerSlayerSexShamealleging
    thatJonVenableswasdatinganinnocentgirlblissfullyunawareofhisshameful
    pastanddemandedWilltheauthoritiestellwomenlikeherbeforetheyhandover
    anewbornbabyintothearmsofachildkiller?
    54. DuringtheinterimperiodthatJonVenableswaslivinginaccommodation
    (seeSection2)officialsin
    theLifersUnitintheHomeOfficeworkedonthedetailedpracticalarrangementsfor
    anewidentity. Initially,theprobationservicesawtheprotectionofthesubjectsas
    purelyapolicematterandtheLifersUnit,mindfulofcost,hopedthatnothingtoo
    elaboratebywayofnewidentitieswouldbeneeded.Atakeyinterdepartmental
    OmandReview 34

    .
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
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    meetingon12December2000,however,chairedbytheresponsiblelocalDeputy
    ChiefProbationOfficer,threeimportantconsiderationsemerged:JonVenableswas
    livinginconstantfearofpeoplefindingouthisidentity;thepolicejudgedthelevelof
    threattothesubjectasrealandserious;andLadyButlerSlosswasexpectedonlyto
    grantacontinuinginjunctiononthebasisthattheyhadnewidentities.Scotland
    Yard(SO10)wasthereforeapproachedbyPPUforhelpinsettingupacompletenew
    identityonthelinesofarrangementsforprotectedwitnesses.
    55. ForJonVenablestheconceptofacleanstartthenormalpolice
    recommendationfortheresettlementofaprotectedwitnesswascomplicatedat
    theoutsetbythejudgmentbythepsychiatristsandothersinvolvedinthe
    managementofthecasethat wouldbeessentialforhis
    rehabilitationinsociety
    Theend
    result,however,wasthathedidnothavetheidealcleanstart.
    56. Officialshadconsideredanumberofpossibilitiesfor JonVenables
    . Overseasrelocationwasconsideredandrejectedonthestrongclinical
    advicethat hadbeeninstrumentalingettinghimthisfar.
    Overseasrelocationwasalsorejectedduetoissuesconcerninginformationthat
    wouldneedtohavebeensharedwiththereceivingjurisdictionevenwereanother
    nationpreparedtoaccepthim.Theprofessionalviewofthepolicewasthatthe
    mechanicsofachangeofidentityitselfforhim (newbackhistory,
    name,passport,newnationalidentityandNHSnumbersetc)wasnotadifficult
    procedureandwouldbeneithercostlynorproblematic. Relocationandre
    identificationwasjudgedfeasibleonthebasisofalongtermresettlementplan.But
    thepoliceadviserwarnedthatnoChiefOfficerwouldagreetotakeonthecase
    withoutfinancialsupport(afigureof278,000forthefirstyearofpolicesupport
    wasquoted). Quiteexceptionally,additionalpoliceeffortforhisprotectionwas
    OmandReview 35

    aaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaa
    himaaaaaaaaaaaaaaaaaaaaaaaaa
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    aaaaaaa

    thereforefundedbytheHomeOfficefortheinitialperiodofrelease.Thiswent
    againstthegrain,sinceitisawellestablishedprinciplethatForcesarenot
    subsidisedfromcentralfundstocarryouttheirbasicdutiesofprotectingthepublic
    (thearrangementwasthereforeendedwithnormalisationin2006/07).
    57. Theseearlyarrangementswerenotjustconcernedwiththeactualchangeof
    identity,butalsoinvolvedfieldworktocheck,andwherenecessaryimprove,
    securityathisaccommodation,checkcertainsecurityarrangementsathisCollege
    andtotutortheindividualintensivelyinhowtocomporthimselfunderanew
    identity
    xiii
    . What,understandably,wasnotfullyrecognisedatthetimewasthe
    unintendedconsequenceofhisbeingtutoredinlivingalie. Ashispresentence
    reportinJuly2010fortheCentralCriminalCourtputit:Hehadtoundertakea
    completechangeofidentitytoprotecthimself
    . Thiswasnotstraightforwardandalsomeantthatalegacylife,
    anarrativehadtobecreatedfor
    andessentiallyhehadtoliveandholdaliefortherestofhis
    life. Thereislittledoubtthatifhisidentitybecamecompromised,hislifewouldbe
    atrisk. Hewasthustaughttolieandhadtobecomegoodatit.
    Identityrelatedprocessesanddocuments
    58. BackedbyexceptionalHomeOfficefunding,thelocalpoliceinXShiremadea
    majorefforttoassist,includingcreatingaspecialsmallunittoprotectandwork
    withJonVenablesashefoundhisfeetinhisnewidentity.Thepoliceofficers
    concernedprovedinvaluableinhelpinghimpickupbasiclifeskills.Thatunitwas
    closedwhenthepursestringsweretightenedinApril2002,andtheirChiefOfficer
    wantedtoredeployhisofficers,butbythentheyhadlargelycompletedtheirwork
    inhelpinghimadjusttolivingunderanewidentity.Ijudgethistooasreasonable.
    Asthecaseprogressedtherewereargumentsoverfundingtosupportthe
    continuingadditionalpoliceeffortbeingputintothecaseuntilthepolicydecisionto
    ceasefundingin2006/07. Thesupervisingprobationservicealsobenefitedfrom
    centralfunding,sometimesforsmallsumsneededtomeetunexpectedrequirements
    arisingfromchangesofaccommodationordebtarrears.Inacasewherean
    individualisreleasedaftersolonginsecurecare,havinghadnoopportunityto
    accumulatesavings
    thenfinancialsupportfrompublicfundsisboundtobeneeded.
    OmandReview 36

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaISatisfactoryarrangements
    nowexist,followingreviewbytheNPIA,toensurethatinquiriesmadeofthePNCin
    respectofprotectedcaseswillbeflaggeduptotherelevantpoliceservice,aswellas
    returningpromptlytotheinquireraCRBentrythatprovidesnoticeofthegeneral
    natureoftheoffenceforwhichtheoriginalCRBentrywascreatedandthusreveal
    thegeneralnatureofthepotentiallevelofharminvolved.Theriskofidentity
    compromisewill,however,begreaterwhenhecomestobereleasedagain,givenhis
    additionalconviction.
    59. AfterinitialreleaseandasthetimewasapproachingforVenablestomovefully
    intothecommunity,officialshadtoconsiderhowfartoextendthecircleof
    knowledgeofwherethetwooffendersweretoliveundertheirnewidentity.The
    viewoftheHomeOfficewasthatadecisionnottodisclosetoanyofthelocal
    authoritiesinwhichtheoffendersweretoliveandworkcouldnotbedefensibleand
    wasnotintheinterestsoftheNationalProbationService.Iagreewiththis
    judgment.
    60. InthecourseofthepreparationsbythepoliceforthereleaseofJonVenables
    intothecommunity,apassport,drivinglicenceandotherdocumentationwas
    secured
    xiv
    . Newrequirementsappearedlater,suchashisneedfornewGCSE
    certificatestobeissuedunderhisnewnameinordertogetonhisCollegecourse
    xv
    .
    HeneededtohaveaGP,raisingissuesaroundmedicalrecords. Heneededa
    certifiedphotoforapassportinhisnewnameinordertobeabletoopenabank
    account(latertherewasaflurryofefforttogethispassportreissuedwhenheleftit
    inthewash).
    CriminalRecords
    61.
    OmandReview 37

    62. AsJonVenablesbeganhissearchforamorepermanentfulltimejob,theHome
    Officebegantoconsider
    xvi
    theimplicationsofthePoliceAct1977underwhich
    employersareentitledtoaskprospectiveemployeestoproduceacriminalrecords
    certificateshowinganyunspentconvictions,giventhatundertheRehabilitationof
    OffendersAct1974JonVenablesconvictioncouldneverbespent.Itwasnotedthat
    increasinglypostSoham
    4
    ,employerswereaskingforCRBchecksforprevious
    convictions,andinsomecasesthiswasastatutoryrequirement.Anyseriousfuture
    jobforJonVenableswouldalmostcertainlyleadtoarequesttohimtodiscloseany
    previousconvictions.LegaladvicewasthatJonVenablescouldnotbeadvisedbyhis
    offendermanagertolie. Heneednothowevervoluntarilydisclosehisconvictions,
    alwaysprovidedthatthejobwasjudgedbytheoffendermanagerasasuitableone
    underthelicenceconditions. Iftheemployeraskedforacertificatethenheshould,
    however,beadvisedtowithdrawhisapplicationratherthancompromisehis
    identity.
    63. Similarly,in2004NMBofficials
    xvii
    cametotheviewthattherewasnoobligation
    ontheprobationservicetotaketheinitiativetodisclosehisrecordtoprospective
    employersgivenhisperceivedlowlevelofrisk.ThatpointwasputtotheNational
    DirectoroftheProbationServicewiththerecommendationthatsinceitwasa
    matteraffectingtheoperationalpolicyoftheServiceitwasajudgmentfortheHead
    oftheServiceratherthanaMinistertomake. Thatmaywellhavebeenright,and
    officialsnodoubthadajustifiedfearofovercautionbyMinistersgiventhe
    notorietyofthecase,butMinisterswereentitledtoknowofthepolicybeing
    followedbytheirofficials.
    4
    TheBichardInquirysetupfollowingtheSohamMurdertrialfoundveryseriousfailingsofthepolice
    andvettingprocedureswhichhadmeantIanHuntley,theschoolcaretakerfoundguiltyofmurderingtwo
    Cambridgeschoolgirls,hadslippedthroughthevettingnetinspiteofpreviouslyhavingbeensuspected
    ofanumberofsexualoffences.
    OmandReview 38

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    64. ItwasrecognisedwhentheseissueswerediscussedintheMAPPPthatthere
    couldbelargercompanieswhereaseniorpersonnelmanagermightbeapproached
    inconfidenceonthecaseandtheCRBrequirementcircumvented. Agroupnow
    existsthatisintendedtofunctionasanumbrellaorganisationtohelpexoffenders
    intheformoftheCorporateAllianceEmployersGroupbetween100orsomajor
    employersandtheMinistryofJustice.Therehadbeenanopportunityacouple
    yearsafterhisrelease,whenabankhadofferedtothelocalprobationareatwo
    placesfortwooffenderstobeplacedwiththemandworkintheirheadquartersin
    ananothercounty.Thelocalpolicehoweverexpressedconcernaboutwhetherhe
    wouldstickoutthere andJonVenableshimselfhadbeen
    veryreluctantlargelybecauseoffearsoverwhetherhisnewidentitywouldremain
    secure. ThebasicNMBlinein2002andrepeatedearlyin2004
    xviii
    andatlaterpoints
    wasfortheoffendermanagertoadviseJonVenablesoftheproblemaboutapplying
    forjobswhereCRBcheckswerelikelytobeanissue,thuseffectivelycircumscribing
    hisemploymenthorizons.
    65. TheNMBdoesnotappearevertohavestoodbackandtakenastrategicviewof
    theimpactofthisconstraintandthepossibilitiestheremighthavebeentoreturnto
    theissuewithJonVenablesandtopersuadehimtoletthemtrytogethiman
    openingwithbetterprospects.IndiscussingthecasewithMinistryofJusticepolicy
    officialsIsensethattheywouldnothaveseenMinistryinvolvementasappropriate
    inrelationtoanindividualoffender(andtheymaywellhavefeltthatVenableswas
    luckytohaveandbeabletoholddownajob,unlikesomanyexoffenders).For
    frontlineprobationstaffhelpinganoffendertheyaresupervisingtobetter
    themselvesissecondnaturebuttheyhadtocontendwithJonVenablesown
    reluctance.Theremayhavebeenamissedopportunityafterhegaveupcollegeto
    exploreagainwhetherajoborapprenticeshipwithanationalemployermightnot
    havebeenpossibleforJonVenables
    . SuchastepwouldnotnecessarilyhaveavoidedJonVenables
    laterdifficulties,butcouldhavemadeitlesslikely.Althoughnotnormalpractice
    suchaninitiativebackedbytheNMBwouldhavebeenjustifiedbytheexceptional
    natureofthelifetimedemandsthathiscasewouldplaceonthecriminaljustice
    system.
    66.
    OmandReview 39

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    67.
    SecurityArrangementsandDisclosureIssues
    68. Inordertoreducetheriskofidentitycompromiseonlyaverysmallnumberof
    namedindividualsintheHomeOfficeandthepoliceandprobationserviceofXShire
    wereawareofthenewidentityandwhereaboutsofJonVenables. Thisprocesswas
    wellmanaged. TheChiefConstable,aChiefSuperintendentandasmallnumberof
    officersdirectlymanagingthecaseinYShirewerealsorightlymadeawarefromthe
    outsetthatthesubjectwaslivingintheirarea.Comparablerestrictionshavebeen
    observedfollowingthetransferofthecasetotheMinistryofJusticeandtheYShire
    authorities.
    69. ByOctober2004,NMBmemberswerediscussingtheidentityrelated
    implicationsoffemalefriendsandpartners,includingwhethertheDepartment,or
    thelocalprobationservice,wasunderadutyofcaretoanyfuturepartnerofJon
    Venablestodisclosethetruthabouthisidentity,evenifhewasunwillingtodoso.
    Hehadbrieflyagirlfriendwhohadachild(seeSection5)
    HomeOfficelawyers
    wereconsultedandinApril2005theNMBconcludedthattherewasnoabsolute
    dutytoconsultpartners,butassessmentofthelevelofriskhemightposewas
    crucialtothatjudgment. ForthattheNMBandtheMAPPPreliedontheregular
    reportsfromtheoffendermanagerreportingthecaseascontinuinglowrisk.
    OmandReview 40

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    ThehandlingofPotentialCompromises
    70. AsearlyasFebruary2003,theNMBhadexperienceofthedifficultiesthatcould
    becreatedbytheidentityrelatedsecurityrequirementsinthecasewhenan
    individualinHMPLiverpoolclaimedtobeoneoftheBulgerkillers.Thestorywas
    nonsensebuttheproblemidentifiedwashow,giventhesecurityaroundthe
    assumedname,thegovernoroftheprisonconcernedcouldbeassuredthatthestory
    wasfalse.ThesensiblesolutionadoptedwasfortheMinistrytowritetogoverning
    GovernorsinformingthemofacontactpointintheMinistrywithwhomstories
    couldbecheckedout.
    71.
    72.
    73. Iamclearthatitwastherightjudgmenttocreateacompletenewidentityfor
    JonVenables giventhepoliceassessmentofthelevelofthreat.
    Thatexercisewascarriedoutprofessionally.Itwasrighttohaveaninterimperiod
    afterrelease,giventhedoubletaskofhelpingJonVenableslearntoliveinthe
    communityandtodosounderanewidentity.Itwouldbegoodpracticetohavean
    expertreviewoftheintegrityofsecurityarrangementsinsuchcases,sayafter5
    OmandReview 41


    years. Suchareviewmighthavepickedupdeficienciesthatmighthavedeveloped
    inhislegendandwhetherhewasbehavinginwaysthatriskedgivingthegame
    away,includingthathehadbecomeastrongEvertonsupporterthatbroughthim
    intoapeergroupusedtoseeingMerseysideasanaturalplacetovisitforrecreation.
    74. Iamsatisfiedthattheinitialpoliceeffortonhisprotectionandidentityfunded
    bycentralsubsidywasbothnecessaryandproperinthepublicinterestinthevery
    exceptionalcircumstancesofthiscasesincewithoutitsatisfactorysecurity
    arrangementswouldhavenotbeenmadeintime.
    75. Thereisalwaystheriskwithanycentralbudgetthatitwillencouragebidsfor
    expenditurethatoughttobepartofnormalbusiness,butintheseNMBcasesthere
    needstobeareliablecentralbudgettocoverexceptionalexpenditurebythe
    probationserviceconcerned,forexampleonaccommodationand,asmighthave
    beenthecase,forclinicalsupportandtrainingorexpensesassociatedwithnew
    employment. TheNMBshouldcontinuetohaveresponsibilityforabudgettocover
    theexpectedextraordinarycostsoftheirsmallnumberofcases.
    76. Wherelifersarebeingsupervisedinthecommunityunderchangedidentities
    butmanaged,forpracticalreasons,fromoutsidetheareainwhichtheyareliving
    thentheChiefOfficersofPoliceandProbationintheareashouldalwaysbe
    informed,aswasdoneintheVenablescase,andwheretherearepotentialchild
    protectionissues,theDirectorofSocialServicesshouldalsobeinformed.Such
    notificationsshouldbecarriedoutundercomparablesecurityproceduresas
    recommendedintheCabinetOfficeinspectionofthearrangementsfortheVenables
    case(seepara39).
    77. TheMinistryofJusticeshoulddocumentcarefullythedisclosureissuesthat
    aroseinthiscase,includingthelegaladviceobtained,andensurethattherecordis
    readilyavailabletoinformanyfuturerelevantcases.
    78. InthelightofthelegalrequirementrelatingtoCRBchecksthePPMHGroupin
    theMinistryofJusticeshoulddeveloparelationshipwiththeCorporateAlliance
    EmployersGroupatseniorlevelinordertoestablishgroundrulesforassistingwith
    NMBorothercomplexcasesshouldneedarise.
    OmandReview 42

    79. Documentationissuesweremanagedstepbystepwithoutunduedifficultyby
    officialsworkinginterdepartmentallybutconcernsgrewaboutthelackofoverall
    coordinationorclarityoverwhoownedanoverviewoftheadequacyoftheidentity
    changeprocessbeingfollowed. Identitychangeexpertise(theprocess,training
    involved,documentation)isahighlyspecialistactivity,spreadoveranumberof
    organisationsincludingtheMinistryofJusticeandtheMetropolitanPolice.
    Considerationshouldbegiventorationalisingthesearrangementssothatpolice
    servicesandotheragencieshaveasinglepointofexpertisetotap.
    OmandReview 43

    OmandReview 44


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    Section4Psychiatric,CounsellingandMentoringWork
    80. Beforeitgrantedreleaseonlifelicence,theParoleBoardconsidereddetailed
    psychiatricassessmentsandriskassessmentsonJonVenables.Hewasjudgedtobe
    emotionallystablewithoffendingbehaviourworkregardedascompleted.Hisrisk
    ofharmtootherswasassessedaslow.Particularlysignificantwastheassessment
    thattherewasnoindicationofanypredispositiononJonVenablespartwhenthe
    offencewasactuallycommitted.
    Thelicenceconditionforclinicalsupervision
    81. Inconsideringthelicenceconditionsforrelease,theHomeSecretary(David
    Blunkett)askedthatanadditionalconditionbeconsideredbytheParoleBoard,
    namelythatheshouldremainundertheclinicalsupervisionofDr or
    anyotherforensicpsychiatristwhomaybeappointedtoprovidesuchsupervision.
    Thatwordingwasdulyaddedasafurtherconditionintheoriginallicenceissuedon
    22June2001. Asdescribedbelow,however,theNMBdecidedinsummer2003in
    thelightoftheprogressJonVenablesappearedtobemakinginthecommunity
    (withtheknowledgeofParoleBoardofficialsbutapparentlywithoutconsulting
    DavidBlunkettagain)thatthisconditionshouldliedormant.From2003therefore
    JonVenableswasnotunderclinicalsupervision.
    ProvisionofPsychiatricSupport
    82. Dr aconsultantadolescentpsychiatrist,hadcarriedoutthepre
    trialassessmentofJonVenablesin1993andhadworkedintensivelywithhimat
    RedBank,alongwithanarttherapist,underthesupervisionofProfessor
    .AfterhisreleaseonlicenceandonceJonVenableswassettledinhis
    newidentityshecontinuedtoseehim
    xix
    inordertoprovidesupportforhimonkey
    lifeeventsandassistintheassessmentofhiscase.In2003whenhereached21she
    compiledafinalandfullreportonherworkwithhim,andatherrequestwithdrew
    fromthecaseonthegroundsthatwhatwasnowneededwasanadultpsychiatristto
    takeover.
    83. AtthefirstNMBmeetingon7May2002itwasrecognisedthatnoadult
    psychiatristhadyetbeenidentifiedtositontheXShireMAPPtoprovidepsychiatric
    input. Prof. waswillingtobeamemberoftheMAPPPand
    provideindependentadvicebutcouldnotprovideclinicalsupervisionofthe
    OmandReview 45

    aaaa
    aaaaa

    aaaaaa

    subject
    xx
    . TheMAPPPon6September02lookedindetailatthefutureof
    therapeuticinterventionandagreedthatwasnotnecessaryandthatProf
    neednotattendfuturemeetingsunlessneedarose. TheNMBwasinfluenced
    intheirapproachbytheprofessionalopinionofProf. that
    hadhadalargeamountofprofessionaltherapeuticinput(bothpsychiatriconeon
    onecontactandarttherapy)andthattherapyitselfwaslikelytohavediminishing
    returns. Hefeltthattherewaslittleneedforongoingtherapyandthebenefitswere
    likelytobenegative.Inhisviewtheriskofreoffendingintermsofsexualorviolent
    offendingwaslow,andlittlenewinformationwaslikelyatthatstagetoemergeon
    theoriginaloffence.Whatwasrequiredwasaclimateofsupport,guidanceand
    monitoringwithaccesstotherapyifitwasrequired:Theprocessshouldbeoneof
    tryingtoengageasfullyaspossiblewiththisyoungman.Headvisedthatthefocus
    shouldbeonthedangersofsubstanceabuseandofbecomingaffiliatedwitha
    delinquentgroup.Thedangersignalswouldbesignsofchaos,substanceabuse,
    dysfunctionalassociatesandoflostboundaries.SimilaradvicewasalsogivenbyDr
    inherreportonthecase.Preciselythesedangersignsdidappearintherun
    uptothefurtherseriousoffence,butIhavenotfoundanyreferencebackbyMAPPP
    orNMBtotheearlieradviceoranyfullconsiderationofwhethertorevisitthe
    decisiononclinicalsupport.
    84. Thequestionofpsychiatricsupervisionascalledforinthelicence(asagainst
    clinicalworkwiththeindividual)hadhoweverstillnotbeensortedwhentheNMB
    mettoreviewthecaseinSeptember2002.PPUofficialsfelt
    xxi
    thatthereshouldbe
    ongoingpsychiatricassessment,bothbecauseitwasalicenceconditionandbecause
    ofthedangerthathadbeenidentifiedthatthesubjectcouldbesusceptibleto
    depression. ThelocalNHSmentalhealthpartnershipwashoweverwarningthat
    fundingbytheNHSforongoingpsychiatricsupportwasproblematicandasked
    aboutHomeOfficefunding.BythethirdNMBmeetingon23January2003theview
    seemedtobecrystalisingthattherewasnoneedforpsychiatricsupervisionbut
    thereneededtobearegularprofessionalreviewoftheforensicriskassessment.
    85. TheMAPPPaskedDr toadvisethem. Dr recommendedthat
    anadultpsychiatristshouldtakeoversothathecouldstillbemonitored.Inher
    finalreport,madeavailabletotheNMB,shedrewattentiontocontinuingthehigh
    levelofanxietyJonVenablesfeltaboutbeingfoundbythepublicorthepress,fears
    groundedinreality.Hehadanattitudetolifethatwasmatureandcautiousbeyond
    hischronologicalyears. Shenotedthathehadshownthecapacitytodiscusswith
    herwhentherewasheightenedriskinthesystemandremindersofthemurderbut
    OmandReview 46

    aaaaaaaaaaaa


    thathewouldneedtobuildupatrustingrelationshipwithanadultpsychiatristto
    continuetodoso,andshouldfocusonthisareainengagementwithanadult
    psychiatrist. Shealsodrewattentiontotheriskoffuturedepression,althoughnot
    thenacurrentproblem,andrecommendedactivemonitoringbyanadult
    psychiatristfordepressivesymptomology.Anotherfocusofworkfortheadult
    psychiatristwiththeclientthatshehighlightedwasthedomainofsexualbehaviour.
    Anyadultpsychiatristneedstobemindfulofthisdomainintheclientslifewhichif
    apsychiatristremainsinvolvedoverasignificantperiodoftimeislikelytoinvolve
    supportingtheclientthroughtheseissueswhichasinotherhighprofilecaseshave
    demonstratedcanbeproblematicaloverthelifecourseforbothclientandany
    futurepartnerandanyfuturechildren.SheremindedtheMAPPPthat
    psychosexualdevelopmenthadoccurredinabnormalcircumstancesinsecurecare
    andneededassessment
    86. Dr suggestedalternativepsychiatricprovisionviaaspecialistunitatan
    NHShospitaltrustbuttheMAPPPwasnotwillingtoendorsethis(probablybecause
    offearsaboutsecurity)
    xxii
    . Instead,theNMBagreedtomakeanapproachtoDr
    ,aconsultantadultpsychiatristsuggestedbycontactsattheParole
    Board,tojointheNMB. ThiswouldbepaidforbytheNMB,i.e.bytheHomeOffice.
    TheMAPPPhadinmindattendanceatMAPPPatleastannually,withanannual
    meetingwiththesubjecttoundertakeariskreview,andtobeavailableasa
    psychiatricresourceifspecificissuesaroseonwhichadvicewasneeded.Dr
    agreedtobethenamedpsychiatristunderthelifelicenceandsuggestedthatshe
    shouldmeetthesubjectnolessthanquarterlyproducinganannualriskassessment
    andattendingthesubsequentMAPPP.Butsheadvisedagainstherhavinga
    therapeuticrole,whichcouldproduceaconflictofinterestbetweenherprofessional
    obligationstoherclientandherrolewiththeMAPPP
    xxiii
    . Shesuggestedthatclinical
    supportshouldbeprovidedlocally.IftheMAPPP/NMBwantedthelicence
    conditiontoremainthenanagreementcouldbebrokeredwiththelocalforensic
    servicestoincludetheirnameonthelicence.Shesuggestedthattheissueshouldbe
    exploredwiththesubjecttoseeiftheywantedanyfacetofacecontact.
    87. TheNMBdecidedhoweverthatDr wouldnotneedtomeetJonVenables
    butwouldremainasanadvisertotheNMBandMAPPP.ThiswasexplainedtoJon
    VenablesinJuly(2003)
    xxiv
    . Thisdecisionseemssurprisinginthelightofthe
    commentsbyDr abouttheissuesthatanadultpsychiatristoughttoaddress.
    Thereasonsforitarenotentirelyclearfromthefile,butmayrelatetoDr
    clinicalDirectorbeingunwillingtosanctionherhavingaclinicalresponsibilityfora
    OmandReview 47

    subjectoutsideherTrustarea,aswellasthewishbytheNMBtoreduceeffortand
    normaliseacaseprogressingwell.
    88. TheXShireprojectmanagerACOrecordedinanemailthatshehadchangedher
    mindontheissue:Irecallthatthebasisofmyconcernaboutthisoptionwasaworry
    aboutissuesaroundrelationships/rejectionbecomingcriticalinthenextfew
    months/yearsandthatanongoingestablishedrelationshipwithapsychiatristmight
    assistindealingwithsuchissuessuccessfullyshouldtheyariseImaybeseekingto
    establishsomekindofpsychiatricsafetyblanketwhichmirroredinanadultcontext
    themostpositivepartsoftherelationshipthatthesubjecthadpreviouslyhadwiththe
    twopsychiatrists. Ithinkthattherealityisthatthisisimpossible(andperhapsnot
    evendesirable). Weareclearlynotgoingtobeabletohandpickapsychiatristwho
    wouldbeempatheticandIalsothinkthat isrightinsayingIwould
    havedifficultyinbeingclearastowhatwewereactuallyaskingthemtodowehave
    twoveryexperiencedsupervisorswhowillpickupissuesandwehaveproject
    boards/MAPPPs.
    89. SincethearrangementtheNMBwishedtoadoptforpsychiatricsupportwasnot
    consistentwiththelicencecondition,thethenHeadofPPUconsultedthesenior
    ParoleBoardofficialwhowasresponsibleforthesecasesandwasassuredthatthe
    relevantlicenceconditionlefttheissueofwhethertoappointasuccessor
    psychiatristtoDr aswellaswhotoappoint,inthehandsofthosemanaging
    thecases. TheParoleBoardofficialwasreportedashavingagreedthatthe
    conditionshouldremaininthelicenceagainstthepossibilitythatdirectclinical
    supervisionmightbenecessaryatsometimeinthefuturebutconsidereditsoundto
    haveasingleidentifiedpsychiatricadvisercloselyintouchwiththesupervising
    team,onwhoseadviceaclinicalpsychiatristcouldbeappointedasandwhenthe
    needarose
    xxv
    .
    90. TheNMBandtheMAPPPhadthereforeacceptedbythesummerof2003,and
    confirmedinOctober2003,thatnofurtherpsychiatricortherapeuticprovisionwas
    neededforJonVenablesnordidheneedpsychiatricassessmentgiventhelowrisk
    hecontinuedtoposeandhisprogressinlivingindependentlyinthecommunity. A
    copyoftheNMBminuteswasaccordinglysenttotheParoleBoardtonote,andthe
    NationalDirectorofProbationwastobeinformedforonwardtransmissionto
    Ministersifrequired.Thispositionwasreconfirmedthefollowingyear(2004)
    despiteaconcernexpressedbyDr totheMAPPPthatgivenhisthen
    circumstancesthesubjectcouldbecomedepressed.Inhindsight,theNMBand
    OmandReview 48



    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa aa

    aaaaaaaa

    MAPPPapproachcanbeseenaspremature.TheadvicefromDr was
    prescient,andtheprojectmanagerACOsoriginalqualmswerejustified,butatthe
    timetheapproachseemedjustifiedbythelowlevelofassessedrisk.
    91. TherewasnoclinicalpsychiatristpresentinpersontoadviseatanyoftheNMB
    meetingsafter2005,norwastheneedforsuchadviceraiseduntilafterJonVenables
    committedhisdrugsrelatedsecondoffenceinDecember2008. ItwasSeptember
    2009beforetheNMBhadreportedbacktheoutcomeofapsychiatricassessment
    sessionwithJonVenables.
    Counsellingwithinaringofsecrecy
    92. AfterJonVenablessecondarrestin2008theJusticeSecretarywasinformedina
    submissionthat 'TheoffendermanagerhadmetJonVenablestodiscussthelatest
    incident,fromwhichitwouldappearthatJonVenablesisinneedoffurtheroneto
    onecounselling,toaddresstheunderlyingfactorswhichhavecausedhimrecently
    todrinkexcessivelyandtakeillegalsubstances'.
    Therewere
    concernsexpressedoverthesecurityimplicationsofgoingthroughtheGP.The
    MAPPPdidorganise(withsomedelay)aonehourpsychiatricassessmentbyDr
    whowasalreadyprivytothecase,whichwasreassuringinthatshedidnot
    seeclinicalsymptomsofdepressionoraneedformedication(seeSection6para
    170 below). Itwouldhavehoweverbeenentirelyconsistentwiththehandlingof
    thecasetohavefundedcounsellingfrompublicfundswithatrustedprofessional
    thesumswouldhavebeendeminimisinthecontextoftheoverallcostsofthe
    Venablescase. Norshouldsecurityconcernshavebeenregardedasan
    insurmountableobstacle. Adangerthathaslongbeenrecognisedinthesecurity
    worldisthatwhenindividualmembersofstaffwithsignificantsecretknowledge
    cometoneedthesupportofacounsellororpsychotherapistthenatureofthe
    intimatetherapeuticrelationshiprunstheriskofcompromiseofclassifiedmaterial.
    Arrangementsaremadetohaveanumberoftrustedprofessionalswhoagreeto
    takeonsuchcases,andwhocanbereliedupontoactintheinterestsoftheir
    patientsbuttakingsecurityprecautionssuchassecuringanyinformationandtheir
    casenotesappropriately.Officialscouldhavemadesuchanarrangementinthis
    case.
    OmandReview 49


    Mentoring
    93.InJuly2001,recognisingVenablesneededmuchmoresupportthanwasappropriate
    foranoffendermanagersrole,thelocalprobationservicereceivedauthoritytopay
    fromHomeOfficefundsaretiredexperiencedprobationofficertoactasapersonal
    mentorforJonVenables,giventhathehadnoexperienceoflivinginthecommunity,
    shopping,usingabusandsoon.(Oneoftheotheroptionstheyhadconsideredbut
    dismissedhadbeenfostering). Thisarrangementprobablyhelpedhim,although
    thoseinvolvedatlocallevelhaveacknowledgedthatitdidnotworkoutparticularly
    wellandhemighthavegainedmorefromsomeoneclosertohisagewithwhomhe
    couldidentify.Intheevent,illnessforcedthementortowithdrawinthespringof
    2004. Noreplacementwasidentifiedandtherolewaspickedupbytheoffender
    manager. Bysodoinghowever,therewastheevidentriskthattheoffender
    managerwouldcometobeseenbyJonVenables,andwouldcometoseeherself,as
    moreamentorandconfidantthanamanageroftheoffender. Thelocallevel
    supervisorsacknowledgedthattheboundariesdidblurintherelationshipbetween
    theoffendermanagerandthesubjectbutitwasverydifficultforthisnottohappen
    givenhiscircumstancesasayoungvulnerablepersonwithfewresourcesorfriends.
    Conclusionsonpsychiatric,counsellingandmentoringwork
    94. IamsatisfiedthattherewasnoreasonfortheNMBandMAPPPtochallengethe
    professionaladvicetheywereconsistentlygiventhattherewouldbenovalueafter
    2003inclinicalpsychiatricworkwithJonVenablesdesignedtoaddresshisoriginal
    offence.
    95. TheadvicetotheMAPPPandtheNMBin2003fromthepsychiatristwhoknew
    himbestfromchildhoodwasthatonreachingtheageof21heshouldtransfertothe
    supervisionofanadultclinicalpsychiatristinordertofocusonanumberofissues,
    includingthepotentialfordepression. Thatwouldalsohavebeeninaccordance
    withthelicencecondition.InsteadtheNMBandMAPPP,aftersomedelayand
    withoutapsychiatricadviserpresent,chosetoaskaconsultantadultpsychiatrist,
    Dr ,toadvisetheMAPPPbutnottoseeJonVenablesforthepurpose
    ofriskassessmentorclinicalsupervision.TheapproachtakenbytheNMBand
    MAPPPisunderstandableinthelightoftheoptimisticassessmentsbeingmadeof
    thecase,butwithhindsightitwouldhavebeenwisertofollowtheadviceofDr
    OmandReview 50

    aaa


    andtheoriginalinstinctsoftheseniorsupervisingprobationofficerand
    providedforcontinuingpsychiatricsupervision.
    96. TheParoleBoardofficialconcernedwiththecaseagreedtotheapproachofthe
    HomeOfficethatthelicenceconditionshouldsimplyliedormantincaseithadtobe
    revived. Havingdormantlicenceconditionsisnotunusual,andthatoutcomewould
    haveseemedconsistentwiththeoptimisticoutlookatthetime. Thereisnorecord
    oftheHomeSecretary(whohadspecificallyaskedfortherelevantlicence
    condition)beinginformedatthetime,whichheshouldhavebeen.
    97. Itisapitythatnosuitableindividualwasidentifiedafter2004toestablishalong
    termmentoringarrangementthatmighthavehelpedhimcopebetterwiththe
    strainsoflivingunderhischangedidentity,hisprobleminbalancingstudyand
    employment,andhisissueswithestablishinganormallifestyleforayoungsingle
    manofhisageandsocialbackground.Suchsupportcouldalsohaveeasedtheload
    ofhisoffendermanagerinmaintainingtheappropriateboundarybetweenoffender
    managerandmentor.
    98. Oncethelicenceconditiononpsychiatricsupervisionwasdormantnoserious
    thoughtseemstohavebeengiventoreintroducingitwhencircumstances
    deteriorated. Dr seemstohavestoppedattendingNMBsafter2005.The
    overallpicturetheMAPPPandtheNMBhadfrom2006wasthatJonVenableswas
    stuck,hadbecomealonerwithdepressivetendencies.The(reasonable)MAPPP
    explanationatthetimeseemstohavebeenthathewasayoungmanwhohadbeen
    drilledintocompliantbehavioursasanadolescentinsecurecareandwhowas
    belatedlycatchingupwithhispeergroupintermsofmildlyrebelliouslifestyle.He
    wasassessedstillaslowriskandgiventhehistoryofthecaseandtheeffortputin
    bytheprobationserviceanddepartmentalofficialsitisunderstandablethatofficials
    shouldbeoptimistic,andperhapsunconsciouslyinclinedtogivehimthebenefitof
    thedoubt.
    99. Theunfoldingofeventsinthecasein2008mighthavebeenexpectedtoleadto
    additionalMAPPPandNMBconsiderationofwhetherfurtherpsychotherapeuticor
    counsellingsupportwasneeded,notwithstandingtheresistanceJonVenableshad
    previouslyshowntoadmittinganeedforhelp(seealsobelow). TheMAPPPdid
    arrange(aftersomedelay)forapsychiatricassessmenttobecarriedoutonJon
    OmandReview 51

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
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    aaaaaaaa

    Venablesafterhisarrestforcocainepossession
    . JonVenableswasgivenaone
    hourassessmentbyDr
    . Unsurprisingly,Dr
    concludedthathehadnoclearsymptomsofdepressionandthattherewas
    noevidenceofmentaldisorder,pervasivedevelopmentaldisorderorpersonality
    disorder.
    ThecontrastwiththeevidencegivenonhisbehalfinJuly2010aspartofa
    pleaformitigationathistrialofhisbeingonadownwardspiralatthatpointwith
    increasinguseofmephedroneandofpornographycouldnotbemorecomplete.Jon
    Venableswaswellexperiencedwithpsychiatricassessments.Hehadshownover
    theyearsatRedBankthatittookaverylongtimeforatrustingclinicalrelationship
    tobebuiltup,andtherecordsshowthathehadpreviouslyreactedbadlytoanew
    psychiatristwhosawhimonceforanassessmentandwhohadattemptedstraight
    awaytogethimtotalkabouthisfeelingsaboutthemurder.Itisdifficultnotto
    concludewithhindsightthathewasputtingonanactforDr tofoboff
    intrusivequestioning. Theupshotwas,however,thathavingstartedtorecognise
    therewasapotentialproblemwithhismentalstate,bothMAPPPandtheNMBwere
    lulledintonotpursuingtheissue.Withthebenefitofhindsightwecanseethatit
    wouldhavebeenbetterifgreatereffortshadbeenmadetotrytogethimtoaccept
    someformoftherapeuticcounsellingwithatrustedprofessionalwhocouldknow
    histrueidentity.Hadhecooperated(whichofcoursehemightnothave)thatmight
    wellhavereducedtheriskofhiscontinuingdescentintotheuseofextreme
    pornography,althoughtherecanbenocertaintyofthat.
    100. Overall,Ifinditsurprisingthatin2008and2009withthecaseappearingtobe
    onadownwardpaththattherewasnotamoreactiveattitudebytheMAPPPandthe
    NMBtotheprovisionofprofessionalclinicalsupport.Averycautiousattitudeto
    justifyingfundingforthiswastakenonthepartoftheNMB(seeSection6phase4).
    Thesumsinvolvedwouldhavebeenasmallfractionofthetotaleffortalready
    expendedonthecase,letalonethecostofrecallifitgotthatfar.Thatisnottoimply
    anycertaintythatthefurtheroffencewouldtherebyhavebeenavoided,butona
    caseofthissignificanceattheleastthemattershouldhavebeenraisedwithNMB
    OmandReview 52

    membersbythePPUrepresentativeattheMAPPPandifnecessaryadvicefromthe
    NationalProbationDirectorsought.
    OmandReview 53

    OmandReview 54

    ,








    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
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    Section5Childprotectionissues
    101. JonVenableswas,aswasdescribedintheprevioussection,subjecttoanumber
    ofpsychiatricandpsychologicalevaluationsbyleadingnationalspecialists.The
    possibilityoffurtherviolentharmtochildrenwasexplicitlyaddressedbythem.For
    example,Dr ConsultantForensicPsychologist,assessedinAugust
    1999inrelationtotheindexoffencethattheoverallnatureoftheassaultcontains
    somesadistic,dehumanisingandpossiblysexualthemesbutconcludedonthebasis
    ofapsychopathologychecklist(thatshowedthatJonVenablesscoreswerecloseto
    thenorm)thatonbalanceIdonotthinkpsychopathicpersonalityasignificantissue
    forJonVenables.
    102. Dr anotherconsultantinchildandadolescentforensicpsychiatry
    wrotethatthereisnodoubtthatinJonscase,hadhenotbeenplacedinsecure
    accommodationattheageof10years,heislikelytohavecontinuedonapathoffailed
    educationalandvocationalopportunities,andanescalatingpatternofoffending,with
    anincreasingalienationfromsociety. Dr anotherForensicPsychiatrist
    whohadworkedcloselywithJonVenablesalsoconcludedinDecember2000that
    AtnotimeduringsessionshasJonpresentedwithanyevidenceofanypriororcurrent
    abnormalityinpsychosexualdevelopmentorofanysexualisedcomponentofthe
    offence. VisitingandrevisitingtheissuewithJonasachildandnowasanadolescent
    hegivesnoaccountofanysexualelementtotheoffence. Theseprofessional
    judgmentsaboutJonVenablesitshouldbenotedareincontrasttoexternal
    journalisticspeculationaboutsexualmotivestothekilling,suchasthatgivenby
    GittaSerenyinthechapterontheBulgercasethatsheaddedtoherbookonthe
    childkiller,MaryBell.
    Fortheofficialsmanagingthecase
    ofJonVenablesafterreleaseonlifelicencethereforetherewerenowarningsigns
    thatshouldhaveledthemtobeespeciallywatchfulforpaedophileinterests,andthe
    professionaladvicewasconsistentwithanassessmentoflowriskoffurtherviolent
    harmtochildren.
    103. On7May2002followingagreementbytheParoleBoard
    xxvi
    theHomeOffice
    issuedtwoadditionalconditionsforthelicencesofthetwooffenders,namelythat
    they shallnothaveunsupervisedcontact,orengageinanyworkorotherorganised
    activity,withchildrenundertheageof12years,withoutthepriorwritten
    permissionofhisprobationofficerandtheyshallnotresideorremainovernightin
    OmandReview 55

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    thesamehouseholdasanychildundertheageof16yearswithoutthepriorwritten
    consentofhisprobationofficer.
    104. Itisimportantthattheexistenceofthesetwoconditionsisnotunderstoodas
    meaningthatin2002therewasanysuspicionthatJonVenablesmightbecauseof
    thenatureofhisindexoffenceofchildmurderrepresentcurrentlyadangerto
    childrenormightharbourpaedophileinterests.Asnotedabove,alltheprofessional
    evidenceavailabletoHomeOfficeofficials,includingthepsychiatricassessments
    citedwasthathissexualorientationwasentirelynormalforayoungmanofhisage.
    Officialsrecognised
    xxvii
    atthetimethattheadditionalconditionswerenotstrictly
    necessarysincetheoriginalconditionsoflicencecouldbeheldtoprovidethe
    necessaryauthorityforthesupervisingofficer.HomeOfficeofficialsandtheHome
    Secretaryreadilyacceptedhoweverthepracticalconsiderationsraisedbythelocal
    probationservicethatitwouldbeeasiertosupervisehimifthepointwasmade
    explicit.
    105. Generally,theHomeOffice(andlatertheMinistryofJustice)tookthelinethat
    thechildprotectionneedsweremetbytheexceptionalMAPPPandNMBoversight
    ofthecase. InSeptember2002,theSocialServicesChiefInspectorwasconsulted
    andagreed
    xxviii
    thattheYShiresocialservicesneednotbebriefedonthecase.The
    activationofnormalchildprotectionarrangementswithlocalchildrensservices
    (underProbationCircular73(94)andtheGovernmentcircularWorkingTogetherto
    ProtectChildren)werejudgedbytheNMBtoposearisktosecurityofthenew
    identityandlocationofthetwosubjects.TheMAPPPProjectBoardwastherefore
    chargedwiththisresponsibility.Sensibly,whencircumstancesallowedinAugust
    2003followingtheappointmentofanewDirectorofYShiresocialservicesthe
    MAPPParrangedforhimtobebriefedonthecase
    xxix
    . TheNMBinOctober2004
    invitedtheDfESasthethenDepartmentwithchildprotectionresponsibilitiesto
    attendtheNMB.Fromtheendof2006
    xxx
    however,anominatedofficialinDfESwas
    briefedincaseaninputonchildprotectionwasrequiredbut,theNMBagreed,need
    notattendregularly.
    106. TheDirectorofEarlyYearsatOfsteddidraisewiththeHomeOfficeinJune2006
    whetherapersonwhoseidentityhadbeenchangedwouldbepermittedtowithhold
    thatfact,andtheirpreviousidentitywhenapplyingforregistrationwitharegulator
    suchasOfsted.
    Ofstedwasreassuredthatthearrangements
    OmandReview 56


    (seeSection3above)withthePNCwouldensurethatanyCRBcheckonanewname
    wouldflaguptheinquiryandallowactiontobetakentoensuretheregulator
    becameawareofthetruecircumstances.
    107. Venableshimselfwasawareofthedifficultiesthatwouldensueifhehad
    unauthorisedcontactwithchildren.In2004hehadarelationshipwhichheclearly
    valued
    xxxi
    withagirlfriendwhoturnedouttohavea5yearoldchild
    xxxii
    . Whenthis
    came(belatedly)tolightVenablesemphasisedtohissupervisorthathehadnotmet
    thechildandtookstepstobreakofftherelationshipandthegirlhadleftthe
    area
    xxxiii
    . In2006(whenhewasalmost24)hisOffendermanagermetanother
    femalefriendofhiswhoturnedouttobe1712(discoveredasshewasapplyingfor
    aprovisionaldrivinglicence). ,but
    whenthematterwasreportedtotheNMBthequestionwasraisedaswhetherhis
    havingfriendshipswithyoungergirls(1618))wasadevelopingpattern.Thiswas
    notedintheNMBminutesashavingtobemonitored.Hissecondoffendermanager
    didnoteinthisregardthatVenableshimselfappearedtobeabout5yearsbehind
    hischronologicalage.
    Conclusionsonchildprotectionissues
    108. IamsatisfiedthatfortheofficialsmanagingthecaseofJonVenablesafter
    releaseonlifelicencetherewerenowarningsignsfromanyofthepsychiatric
    assessmentsandriskassessmentsthatcouldhaveledthemtobeespeciallywatchful
    forpaedophileinterests.Ifanythingtheearlyevidencepointedtonormalinterests
    forayoungman. TherewastheonesuggestionintheNMBin2006(seeprevious
    para)ofapossibleinterestinyoungergirlsthanwouldbenormalforhisage,but
    thatwasnotfollowedupsystematicallybytheMAPPPorbyhisoffendermanager.
    109. Iconsiderthatplacingtheresponsibilityforchildprotectionneedsonthe
    exceptionalMAPPPandNMBarrangementswasareasonablejudgmentofthe
    balanceofriskinthelightofthecontinuingassessmentthatJonVenablesposeda
    lowriskofharmtoothers.
    110. ThelicencearrangementsforJonVenablesadequatelycoveredtheneedforhis
    supervisertobeabletoregulateifnecessaryhiscontactwithchildrengiventhe
    natureofhisindexoffence.Thereisampleevidencethatthroughouthissupervision
    OmandReview 57

    therewasattentiongivenbyalltheofficialsconcernedtochildprotectionasa
    potentialissue,notwithstandingtheconsistentassessmentoflowriskofharmin
    thatrespect.IconsiderthattheNMBandtheMAPPPsthatmanagedthecasewere,
    intheirdiscussionsofthecase,fullymindfulofthechildprotectionissuesinvolved
    insupervisionofJonVenablesandtookgreatcaretodeveloplegallysoundpolicyon
    disclosureofidentityinrelationtointimaterelationshipsthatmightinvolvecontact
    withchildren. Fromreportsfromhissupervisor,JonVenableshimselfwasclearly
    awareduringthisperiodthatsuchwasthenotorietyofhiscasehehadtobevery
    carefulinhispersonalrelationshipstostaywithintherelevantlicenceconditionsin
    respectofcontactwithchildren.
    111. Nevertheless,afterhisarrestforhisfurtherseriousoffenceitwasdiscovered
    thatJonVenableshadposedonasocialnetworkingsiteasawomanwithayoung
    childinordertohaveconversationswithapaedophile.Incommonwithhisuseof
    increasinglyextremepornography,ashismentalstatedeterioratedintheperiod
    leadinguptohisarrestsin2008,thiswasactivityhetookcaretoconcealatthetime
    (andwemaynotyethavefromhimthefullstory).Idonotseehowany
    proportionatesupervisionregimeforalowriskoffendercouldhaveguaranteedthat
    activitywouldcometolight.
    OmandReview 58


    aaaaaaaaaaaa

    Section6OverallManagementoftheRiskofHarm
    TheAssessmentsofRiskofHarm
    112. InthisSectionIconsiderthecontinuingmanagementofthecasethroughitsfour
    phasesinrelationtotheriskofharmposedtoothersandinthelightofthespecial
    factorsdiscussedintheprevioussections.Toplacethisnarrativeincontext,I
    summarisetheriskassessmentmadebeforehisreleaseasfollows.Bothindividuals
    weresubjecttoanumberofpsychiatricandpsychologicalassessments.Allthe
    professionalsconcernedindicatedtheircommondifficultyincompilingthese
    assessmentsduetoanumberoffactorswhichincluded:
    a. Theageoftheindividualsatthetimeoftheoffence
    b. Theunusualnatureoftheoffence
    c. Thelackofanyclearmotivationortriggerfactorsthatledtotheoffence
    d. Thelackofanypreexistingpsychiatricorpsychologicalconditioninthe
    individualsconcernedthatcouldhaveledtotheoffence
    e. ThegeneralbehaviouroftheindividualduringhisperiodintheSecureUnit
    wherenounexpectedbehaviourswereexhibited
    f. Theobviousmaturationfactorsthatmeantthatassessingriskinthecontextof
    whatappliestoachildandwhatappliestoanadultwasregardedasextremely
    problematic.
    113. Takingallthesefactorsintoaccount,thecollectivejudgmentofallthe
    professionalsinvolvedwasthattheriskoffutureseriousoffencewaslow.A
    detailedriskassessmentwasprovidedtotheParoleBoardbyProf
    whocategorisedthepotentialriskstothepublicasthat:
    Hemightcommitanotherseriouscrimecomparabletotheindexoffence.
    Theriskofrecurrencewasextremelylowrisk,solowthatitcanberegarded
    asnotsignificant
    Therecouldbeanimpulsive,reactiveactofviolenceifhewasprovoked.
    Theriskherewasassessedasverylow
    Hecouldcommitnonviolentcrime. Thiswasmoredifficulttoassess;there
    areriskfactorsinhisbackgroundbuttheywerenotparticularlystrong.
    Thelevelofsuchriskwoulddependuponeffectivefurtherrehabilitation.
    OmandReview 59

    114. Overall,JonVenableswasassessedbyProf as:


    presentingaverylowrisktosocietyand,withappropriatecontinuing
    rehabilitation,thereisagoodlikelihoodthatheshouldbeabletomakeasuccessof
    therestofhislife. Howeverthatlikelihoodwouldbegreatlyaffectedbythe
    availabilityofhighqualityrehabilitationovertheperiodaheadduringwhichhe
    readaptstosociety. Thechancesofsuccessfulrehabilitationareveryhigh,but
    ..thatjudgmentisstrictlycontingentonfurtherrehabilitationandonhisidentity
    beingprotected. Ifeitherisnotpossible,theriskswouldinevitablybesubstantially
    greaternotforfurtherviolenceofthekindsimilartotheoriginalcrime,but
    ratherofsocialmaladaptationandseriouspsychologicaldifficulties.
    115. DetailedinformationpreparedfortheParoleBoardhearingincludingthe
    psychiatricassessmentswereavailabletothosesettinguptheinitialarrangements
    forhisreleaseandsupervision.IhaveexaminedcarefullyallthereportstheParole
    Boardwouldhaveseen,includingtheseveralpsychiatricevaluations,andas
    recordedinSection5havefoundnosuggestionthattherewasasexualmotiveon
    thepartofJonVenablesincommittingtheoriginaloffenceorotherwarningthat
    mighthavealertedtheBoardtopotentialabnormalsexualinterests.Inote,
    however,thattheassessmentsandworkdoneduringJonVenablestimeatRedbank
    werenotsharedwithhissubsequentsupervisorstoinformtheirunderstandingof
    thesubject. Asnotedabove,therewasnothinginthesereportstogiveawarningin
    respectofabnormalsexualinterestsdeveloping,butgiventhecircumstancesofthe
    casesuchaccessshouldhavebeenavailableifrequested.
    116. TheHomeOfficedevelopedastructuredclinicaltool,OASys,toassessand
    managesystematicallyover250,000offenderseachyearinEnglandandWalesaged
    18oroverandoncustodialorcommunitysentences.OASyshasthreemain
    elements:thelistingofoffendingrelatedfactors,theriskofseriousharmposedby
    theoffenderandasentenceplan.Fromtheriskofharm,riskofreconvictionandthe
    complexityinvolved,acasecanbeallocatedtoatierthusallowingNOMSresources
    tobeprioritisedtothehigherriskandmorecomplexcases.Becauseofthenotoriety
    oftheindexoffence,ahighprioritywasgivenfromtheoutsettothecasesofboth
    JonVenablesandhiscodefendantRobertThompson.Initiallytheircaseswere
    allocatedtothehighestlevel,(equivalenttoaTier4)althoughtherewasalow
    assessmentofrisk,asaMAPPAlevel3offenderthisrankingwasjustified.
    OmandReview 60

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    117. Theexceptionalcircumstancesofthesecaseshoweverdidnotreallyfitthe
    OASysstructurealthoughOASysformsweredulycompletedatkeypointsafterhis
    release. OASysallowsfornumericalscorestobecalculatedforgeneraloffending
    andviolentoffendingprediction. Thesescoresaregenerallyheldtobealimited
    predictorofreoffendinginindividualcasesalthoughtheyhavegreaterstatistical
    valueforclassesofoffence,usefulforplanningpurposes.InthecaseofJon
    Venables,asrecognisedbyhispsychiatricassessments,linkinganoffenceasachild
    toadultbehaviourisproblematicandthescoresfromhisbehaviourupto2008
    wouldinanycasesimplyhavereinforcedtheimpressionthatheposedaverylow
    riskindeed. InpracticetheMAPPPandtheNMBreliedupondetailednarrative
    reportsfromtheoffendermanagerthatprovidedfinertexturedinformationthan
    wouldhavebeendrawnfromOASys.
    Phase1. Thepreparatory8monthsfromreleaseonlifelicenceon22June
    2001,living ,up
    tohistransferinMarch2002toindependentlivinginthecommunityin
    YShire,allunderthesupervisionoftheprobationserviceof XShire.
    118. InOctober2000whentheLordChiefJusticereinstatedthetrialjudgesoriginal
    tariff,JonVenableshadjustturned18. TheProbationBoardhadthereforetodecide
    whetherheshouldtransfertoanadultprisonorifthelevelofriskjustifiedrelease
    onlicence. PreparationsbytheHomeOfficeagainstthelatteroutcomedevelopedin
    hasteinlate2000andearly2001,andrevolvedaroundanintermediateplacement
    inareasonablysecuresettingwherehecouldbehelpedtobecomemore
    independent.Although,asnotedabove,hewasassessedconsistentlyasposinga
    lowriskofharm,thepersonalriskofviolencetowardshim,shouldhebediscovered
    inthecommunity,wasassessedashigh.Counselsadvice(May2001,
    )clarifiedthattherewasadutyoftheHomeSecretaryinrelationto
    thesafetyoftheoffendersthatextendedbeyondtheirtimeincustody. HomeOffice
    officialswerethereforefacedwiththeprospectofhavingtohelpprotectJon
    Venablesthroughtheconstructionofanewidentityforhim
    . Thisneedhadnotbeenproperlyanticipatedanditisevident
    fromthefilesandoralevidencethattherewassomescramblingtocatchup.The
    exercisewasneverthelessconductedprofessionally. Hisshorttimespentreleased
    onlicencebutliving gave
    theHomeOfficeandtheirspecialistadvisersthechancetocompleteworkonhis
    newidentity,asdescribedinsection3andtoworkoutlongtermmanagement
    arrangementsforthecase.
    OmandReview 61

    119. Greatcarewastakentopreparehimforindependentliving. Officialsinthe


    HomeOfficesupportingtheNMBcorrectlyidentifiedtheexpectationofactivelife
    longsupervisionduringwhichtimetheindividualmighthavelongterm
    partnershipsandhavechildren(practicingsafesexandavoidingunwanted
    pregnancywasalessonrightlyemphasisedtoVenablesearlyinhissupervision).At
    thesametime,officialsrecognisedthattheirapproachwouldonlyworkgiventhe
    willingnessofthesubjecttoparticipateandtocooperate.Intheearlyyearsbefore
    2007thatatleastappearedtobethecaseandIamsatisfiedthatJonVenableswasin
    theendaswellpreparedashecouldhavebeeninthecircumstancesforhislifein
    thecommunity.
    120. WithhindsightwecanseethattheHomeOfficeinitsinitialconsiderationofthe
    casedidnothoweverfullyanticipatetherangeofproblemsthatwouldemergelater
    flowingfromtryingtoestablishayoungpersonwithsuchacriminalhistoryand
    notorietyunderanewidentity.Officialswerefeelingtheirwaystepbystepacross
    newterritory.TherewereafewlessonsfromtheexperienceoftheMaryBellchild
    murdercase,andheroriginalprobationofficerwasconsulted,butinmanyrespects
    thecasesdiffered.
    121. Theextraordinaryfeaturesofthiscasewererecognisedinthethreetier
    supervisoryarrangements,asdescribedinsection2above,involvingnational
    probationmanagementintheHomeOffice(from2002throughtheNational
    ManagementBoard)andthelocalMultiAgencyPublicProtectionArrangements
    panel(theMAPPP). DirectsupervisionofbothJonVenablesandRobertThompson
    hadbeentheresponsibilityofXShireProbationServicefromthepointofconviction,
    recognisingthatbothsubjectswouldbereleasedasadults,andXShiretherefore
    seemedbestplacedtotakeonthetask.Policeprotectionarrangementswerealsoto
    bemadebyXShire. AdditionalfinancialsupportfromtheHomeOfficewasmadeto
    allowdedicatedpoliceandprobationresourcetobeidentified.Thisarrangement
    allowedasinglepolicyfocuswithintheHomeOfficeandasingleprojectmanager
    (anassistantchiefprobationofficer)tobeappointedforthetwocases,clearlyan
    advantagegiventhemanycommonissuesconcerningpoliticalinterest,identityand
    legalissues,security,theimpactofinjunctionsonreportingandsoon.Thetwo
    individualswereeventuallytobereleasedtodifferentpartsofthecountry,butwere
    supervisedbyspeciallyselectedexperiencedprobationofficersreportingtothe
    projectmanager. OnlytheChiefOfficersofPoliceandofProbationofYShireanda
    verysmallnumberofnamedindividualsintheirsupportweretobebriefedthatJon
    OmandReview 62

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    Venableswasintheirareaofresponsibility.Otherwisemanagementofsupervision
    wastobeconductedfromXShire,outsidethearea.Asnotedinsection5adecision
    wastakenlatertoincludetheheadofthelocalSocialServicesDepartmentinviewof
    childprotectionconsiderations.
    122. On22June2001JonVenableswasreleasedonlicenceandspenthisfirstnight
    alonefor9years. Forthenextyearhelived
    Inthatperiodhewassubjecttointensive
    supervision,withastructureforeachdaysetoutinhissupervisionplantogether
    withworkingwithadedicatedpoliceteamtolearnhowtooperateunderhisnew
    identity.Hehadtwomainhurdlestoovercome.Thefirstwassimplytolearntobe
    abletofunctionindependentlyaftersomanyyearsinsecureinstitutionalcare(as
    hisprobationofficercommentedonthisperiod,hewasstilladjustingtothefact
    thathedoesntneedtoasksomeonetoopenagateforhim).Hehadneverbeento
    thecinema,boughtabusticket,shoppedforfoodorrelatedtoothersoutsidethe
    smallcirclehecameintocontactwithinhissecureunit.Tohelpwithhislifeskills,
    hewasprovidedwiththesupportofamentor,aretiredexperiencedprobation
    officer.Theadditional,andverysignificanthurdle,wastogetusedtolivingwitha
    newidentity.Theexperienceofthosewhohaveworkedwithothersinthatposition,
    forexampleprotectedwitnesses,isthatthisispsychologicallyextremelyhardfor
    theindividualstoadjusttoandthatinveryfewcaseswillitresultinasuccessful
    longtermresettlement. InthecaseofJonVenables,aswillbeseen,thetaskwas
    evenharder.Hisconvictionforsuchasignificantoffencebroughtwithitthe
    difficultiesofforminghonestrelationshipswhilsthidinghispast,andcomplications
    forthosemanagingthecaseofexercisingadutyofcaretoanyonewithwhomJon
    Venablesmightformarelationship.
    123. Itisahugetributetothecaretakenby andtheprobation
    andpoliceofficersconcernedastheyworkedwithhimandaccompaniedhimon
    increasinglycomplexforaysintonormallifethat,byMarch2002,JonVenableswas
    judgedcapableofsurvivingandlivingonhisowninthecommunity.Afurtherrisk
    assessmentwascarriedoutbeforeJonVenableswasallowedtomovefullyintothe
    communityfromtherelativelycontainedenvironment
    wherehehadspenthisfirstmonthsonlicence.The
    professionalassessmentforthepoliceatthatpointmadebytheseniorprobation
    officerconcernedwasthattherehadnotbeenanysignificantchangesinbehaviour
    OmandReview 63


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    sincehisreleasethatwouldcausethejudgmentsmadeatthetimeofhisrelease
    (thatherepresentedalowriskofharm)tobecalledintoquestion.
    124. InMarch2002JonVenablesthereforemovedintoindependentaccommodation
    forthefirsttime.Hejoinedabadmintonclub,hadabiketogetaroundonandbegan
    planningfurthertraining.ByAprilthefinalhurdlestohisnewidentityincludinga
    newNationalInsuranceNumberhadbeenovercome.ByJulyhehadbeenaccepted
    for at college startingin
    September. HehadregisteredwithaGPandhadmetseveraltimeswithhismentor.
    Hewaslookingforwardtohiscourseandhewasbuildinghimselfacomputerwith
    somefinancialsupportfromprobationfunds.Hisoffendermanagerreportedatthis
    pointthatthereisnoaspectofJonsbehaviourormentalstatewhichgivesriseto
    concernasregardshisrisktoothers.TheNationalProbationDirectorreported
    xxxiv
    themovetotheHomeSecretary(DavidBlunkett)inthefollowingterms:Jon
    Venableshasconsistentlydisplayedapositiveapproachtoeveryaspectofhis
    personalandprofessionaldevelopment. Behindthatstatementofcourselaya
    greatdealofpressurebeingexperiencedbythoseatlocallevelinmanagingthecase,
    givenitsreputationalconsequences.
    Phase2. Theearlyyearsinthecommunitywithveryintensivesupervisionby
    theprobationserviceofXShire,withpoliceprotectionfromtheXShireforce,
    fromMarch2002toAugust2003
    125. TheHomeSecretarywasbroughtuptodateagainattheendofMay2002,and
    wasadvisedthattheNationalManagementBoardhadbeensetupandwasmeeting
    everyquartertosupervisethearrangementsandadvisetheNationalDirector,and
    thattherewasalocalMAPPPchairedbytheAssistantChiefOfficeroftherelevant
    probationareaplusanoperationalmanagementboardlocallychairedbythecase
    managerstodealwithdaytodayandweektoweekmatters.TheHomeSecretary
    restatedthattheNationalDirectoroftheProbationServiceremainedpersonally
    accountabletohimforthesesupervisionarrangements.
    126. Showinginitiative,JonVenablesin walkedinto
    andaskedforajob.Hewastakenonandstartedwork ,a
    parttimejobthatheintendedtocarryonwhilstatcollege.Hebecamefriendlywith
    anothercolleagueatworkwiththeprospectofarealfriendshipandthisinturnwas
    makinghimthinkthatitmightbepossiblecontemplateanintimaterelationshipin
    thefuture
    xxxv
    . Aroundthistimethefulltimespecialistpolicesupportteamfrom
    OmandReview 64

    XShirewaswithdrawn(itwasrequiredforotherduties)andalthoughthiswas
    reportedascausingJonVenablessomeconcernbecausehehadcometoleanon
    themforpracticallifeadvice,thereisnoevidencethatthiswasotherthana
    temporaryproblem.
    127. InAugust2002JonVenableswas20yearsold.Atthe15monthpointafter
    release(September2002)officialsconsideredwhetheritwouldbejustifiedtorelax
    theweeklyreportingarrangements.TheProbationNationalDirectorruled
    reasonablyhoweverthatsuchastepcouldtooeasilyberepresentedasareduction
    intherigourwithwhichthecasewasmanaged.Itwasagreed,however,thatgiven
    theprogressbeingmadewiththecaseformalwrittensupervisionreportsneedonly
    besubmittedquarterlytotheHomeOffice,asensiblestepgiventheprogressbeing
    made. Thereportsweretocover
    xxxvi
    :
    a. Theriskofreoffending
    b. Therisktothesubjectssafety
    c. Theriskofselfharm
    d. Theriskstoeachsubject[ofdisclosure]associatedwiththeiremployment,
    accommodationandotherpersonalcircumstances,includingmentionofany
    adverseincidentsorbehaviourwhichhadnotrequiredformalaction
    e. Immediatereportingifsubjectbehaviourcausedconcernorcircumstances
    changedinanywaythatcouldthreatenthesuccessofthearrangementsso
    farestablished.
    128. InJanuary2003theoriginaloffendermanagerwhohadoverseenhisintegration
    intothecommunitymovedintoanewroleandanewoffendermanagerfromthe
    XShireprobationservicewasappointed.Arrangementsforthehandover,including
    handovernotes,appearfromthefiletohavebeenexcellentandthetransitionwas
    madesmoothly.
    129. ByApril2003thetoneofreportingwasstilloptimistic,withtalkbyJonVenables
    ofmovingtoanotherareaalongwithamaleacquaintancetostartafurthermore
    advancedcoursewithaviewtotakinganAccesscoursetoenablehimtoapplyto
    universitiesinthefuture.Intheevent,byJulyhehaddecidedtoremainfora
    furthercourseat college
    xxxvii
    ,largelybecausehewasencouragedtostayby
    OmandReview 65


    theteachingstaffandhisfriendhadhimselfdecidednottomove.Inareporttothe
    NationalDirectorofProbationatthistimeitwasnotedthatJonVenableshad
    cooperatedfullywiththerequirementsofhislicencesincereleaseandhad
    respondedwelltotherigorouscasemanagementofhislicence.Therewasno
    evidenceofthesubjectposinganyrisktoothers.Thefrequencyofthesupervising
    MAPPPmeetingswasreducedtoa3monthlycycletofitinwiththeNMB,andthe
    MAPPPagreedtoafortnightlyratherthanweeklycycleofsupervision.
    130. Althoughnewspaperreportsfollowingthe10
    th
    anniversaryofthemurderof
    JamesBulgerattributedtoJonVenablesarangeofextremeantisocialbehaviours,
    thesewereforthemostpartentirelywithoutfoundation.Theonlypotentialrisk
    identifiedbytheMAPPPatthisstagewasthatthesubject,likemostofhispeers,
    wouldprobablydrinktoomuchonoccasionswhichinevitablywouldrisk
    involvementwithorassociationwithlowleveloffendingorantisocialbehaviour.
    BoththeoffendermanagerandthechairoftheNMB(theHeadofPPU)were
    confidentthatsuchbehaviourwaswithinacceptablelimits.Thisjudgmentproved
    accurateforthenext4orsoyears,untilotherfactorsstartedtoaffecthisbehaviour
    (seeSection6phase4below).
    131. Dr theconsultantadolescentpsychiatristwhohadworked
    intensivelywithhimatRedBankandsubsequentlymethimperiodicallytomonitor
    hisprogressinthecommunity,plannedtowithdrawfromthecaseinthesummer
    whenJonVenablesreachedtheageof21.Dr notedthattherehadbeenno
    sexuallyinappropriatebehaviour
    xxxviii
    butidentifiedfortheMAPPPareaswherean
    adultpsychiatristshouldfocusinfurtherworkwithhimforexampleinactive
    monitoringfordepressivesymtomatology.Sherecommendedthatanadult
    psychiatristshouldtakeover. Dr ,aconsultantadultpsychiatristwas
    identifiedbut(asdescribedinsection4above)afterdiscussionintheNMB,itwas
    decidedthattoavoidapotentialconflictofinterestshewouldnothaveaclinical
    rolewithhim,andshewouldactonlyasanadvisertotheNMBandMAPPP.Itwas
    alsoagreed,butitisnotclearwhytheNMBtookthisline,thatshewouldnotsee
    himforperiodicassessments.Fromsummer2003thereforeJonVenablescouldnot
    besaidtohavebeenundertheclinicalsupervisioncalledforinthelicencecondition
    thathadbeenspecificallyaddedattherequestoftheHomeSecretary.
    132. Attheendofsummer2003thecasewasunderstandablyseenasprogressing
    satisfactorilyfromthepointofviewofsupervisionofthelicenceconditionsandrisk
    managementbythelocalMAPPPandtheNMB.JonVenableswassettledinthe
    OmandReview 66

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    community,hadnotbreachedanyofhislicenceconditions,hadfriends,washolding
    downajob,hadcompletedafirstyearofcollegeandwasconsideringafurther
    coursefortheautumn. Thisphasecomestoanaturalclosewiththeagreementby
    theNationalProbationDirectorthatdecisionmakingonthedetailofsupervision
    wouldhenceforthbedelegatedfromHeadoftheServicetothelevelofHeadofPPU
    (seeSection2above).Althoughthereisnorecordonfile,IassumethattheNational
    DirectormentionedthisinoneofherregularmeetingsonthecasewiththeHome
    Secretary.
    Phase3. NormalisedsupervisionbyXShirefromAugust2003(afterVenables
    hadreachedhis21
    st
    birthday)uptoMarch2007whenresponsibilitybeganto
    betransferredtotheprobationandpoliceservicesofYShire
    133. Thisthirdphaseopensinautumn2003withJonVenableshavingstartedhis
    secondyearin college
    Anupbeatreportfromhisoffendermanagerreportshimenthusiasticaboutthese
    studiesandthathewascontinuingtoworkhardintheeveningsin
    Hewasalsohavingtoreceivefinancialassistance(from
    centralHomeOfficefunds)withhisrent,counciltaxandwaterbillsgiventhe
    demandsofbalancinghisstudiesandpaidwork
    xxxix
    .
    134. AfterthestartoftheNewYear,however,whilstthetoneofreportingfromthe
    offendermanagertotheNMBandMAPPPremainedpositive,thereweretroubling
    developments. JonVenableswasreportedasunderrenewedfinancialstrainand
    disillusionedwithhisnewcoursehavingfoundaworkplacementunsatisfactory.
    Doubtswereexpressedaboutwhetherhewouldreachasufficientleveltopass.His
    2daysaweeksecondyearworkplacementdidnotturnouttobewhathehad
    hopedforandhewithdrewfromit.Hewasclearlystrugglingtokeepupwiththe
    coursealthoughhavingreducedhishoursofpaidworkat in
    theevenings.Hehadqualifiedat totrainothers
    itwasagreedthathelookforanewplacewiththehelp
    ofhisoffendermanager
    xl
    .
    OmandReview 67

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    135. AttheMAPPPon2April2004,Dr commentedthatalthoughtherewas
    nosignofpsychiatricillness,therewassomeriskofJonVenablesbecoming
    depressed. Itwouldnothavehelpedthatcontactwithhismentor,aretiredsenior
    probationofficer,hadhadtoceaseatthispointbecauseofherseriousillhealth.No
    replacementforherwasidentified.LaterthatmonththeMAPPPwastold
    xli
    thatJon
    Venableshadvirtuallystoppedattendingcollegeandthat,althoughheprofessed
    himselfkeentocontinue,hehadfallensofarbehindinhiscourseworkitwouldbe
    difficultforhimtocatchup. Hisoffendermanagersreportconcludedthatthere
    werenoimmediateissuesofconcern

    xlii
    . TheNMBmeton30April
    andnotedthereportsfromtheoffendermanagerofhisdifficultieswithhiscourse,
    thathedidnotwanttocontinuewithstudyingandthathewasstruggling
    financially. Generallytheyconcludedthingsremainedstaticbutwithsomegrowing
    frustrations
    xliii
    . ThereisnoreportonfilethattheNMBortheMAPPPrequested
    proactivestepstobetakenonthisnews,suchasreassessingwhetheritwassensible
    forhimtoputinsomanyhoursat whilststillattemptingto
    attendfulltimeatcollege,orsuggestingthathesoughttutorialhelpwithhisstudies
    orsawastudentcounsellingservice.TheMAPPPremainedresolutelypositive,on
    thebasisthatalthoughhehaddroppedoutofcollegehewasatleastdeterminedto
    goonearninghisliving.
    136. Bythebeginningofthesummer(2004)hehadfailedtocompletethenecessary
    writtencoursematerialandconsequentlyfailedhiscourse.Hetoldhisoffender
    managerthatheintendedtocompletethecourseatsomepointinthefuturebutat
    thatmomenthisstatedprioritywastotrytoearnmoremoneybygettingmore
    hoursat . InJulyitwasreportedtotheNMB
    xliv
    thathehad
    taken testformanagementtrainingbuthadfailed,whichhe
    putdowntonotbeingabletofocusonmorethanonethingwhilstatcollege.The
    riskassessmentremainedlowwithnosignsofantisocialbehaviourorsubstance
    abuse. NMBconsiderationinthisperiodseemstohavebeentakenupwithpolicy
    issuessuchasthedisclosureregimerelatingtocontactwithchildrenandtheissues
    aroundtheimplicationsshouldtherebedisclosurefromCRBchecksofhiscriminal
    record(seeSection3). Supervisionofhiminthelightofhislifedifficultieswasleft
    totheoffendermanager.
    137. Inthesummerof2004hisoffendermanagerdiscoveredthatJonVenables
    girlfriendofsome7monthsstandinghadayoungchild. Thistriggeredmuch
    OmandReview 68


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    concernandactivitybyNMBofficialsonthedutyofcarerelatingtochildprotection
    (seeSection4).Itwaslefttotheoffendermanagertodealwithhisfailuretobe
    openaboutthematterbuttherewasintensediscussionabouttheresponsibilityfor
    theoperationalmanagementofthecasebetweentheChiefOfficerofXShireService,
    whowasresponsiblefortheprojectmanagementarrangementsforbothcases
    xlv
    ,
    andtheChairofNMB. Inparallel,theNMBtooklegaladviceonthedutyofthe
    probationservicetodisclosehispasttopotentialpartnersifchildrenwereinvolved
    ormightbecomeanissue. Theconclusionwasthatsincehisassessmentofriskwas
    low(bothtothepublicandtochildren)theredidnotseemtobeadutytoinform
    partnersonthegroundsofsafetyor,ifchildrenwereinvolved,thesafetyofchildren.
    Butitwasstressedinthelegaladvicethatitwasimportantforthatjudgmenttohold
    thattheassessmentofriskcontinuetobelow.TheMAPPPalsoaskedtheNMBfor
    adviceinAugust2004sinceanurseryschoolhadopened doorsawayfromthe
    subjectsflatbutwasinformedthatinviewofthelowrisknoactionwasneeded
    xlvi
    .
    TheNMBalsoconsideredatthesametimewhetherthelocalSocialServicesneeded
    tobeinformedthathewasintheirarea,astepthatwasfinallytakenonthe
    appointmentofanewDirectorofSocialServicesfortherelevantlocalauthority
    withintheYShireCriminalJusticeArea.
    138. TheMAPPPaskedthattheoffendermanageremphasisetothesubjectthathe
    mustreportanycontactswithchildrenandbepreparedtodisclosehisidentityto
    anyseriouspartner.Thegirlwasleavingtheareainanyeventonthecompletionof
    herstudies butthe outcomewasthatJonVenablesbrokeofftherelationship,
    .HisoffendermanagerlaterreportedtotheNMB
    thathewassufferingfromcontinuinganxietyoverexposure:
    .JonVenableswasalsowarnedthatthesubjectoffinancialsupport
    mightneedtoberevisitedsincehewasnolongerpursuingatrainingoreducation
    course. Inshort,ashisoffendermanagercommented,heseemedtobeincreasingly
    stuck,unabletomoveon. ThechairoftheMAPPPfeltthathewassufferingfrom
    anxiety andwasnotmovingonwithhislife,being
    comfortablewithhislivingarrangementsandwork
    xlvii
    . Dr informedthe
    October2004MAPPPthatalthoughtherewerenosignsofpsychiatricillness,she
    felttherewassomeriskofJonVenablesbecomingdepressed(awarningshehad
    giventhepreviousyearseepara135)andthatclosemonitoringofanyalcoholor
    drugmisusewouldbeimportantasameansofmonitoringgenerallybehaviourand
    anytendencyfordepressiveillness,thusalsoechoingtheearlieradvicefrom
    Professor
    xlviii
    . ItwouldnothavehelpedJonVenablesstateofmindat
    OmandReview 69

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    thispointthatinNovembertheNewsoftheWorldranaluridstorythatJames
    BulgersmotherhadtrackeddownRobertThompsonandwasnowtryingtofind
    him.
    139. InJanuary2005,hisoffendermanagerreportedtotheNMBthatJonVenables
    wasstillworkingat andworkingfairlyregularhours(3035
    hoursaweekat5.05anhour)but(nodoubtaftermuchencouragementbyher)
    wasnowmorepositiveinattitudeandapplyingforjobs.Hehadbeentoldthathe
    wasbeingnominatedfortrainingasamanagerat . Her
    relationshipwithhimseemedtobedevelopingandshereportedhavingbeenon
    shoppingtripswithJonVenableswhichhadbeenagoodwayofkeepingupwithhis
    tasteinmusic,videosandcomputergames.Shealso,withsometrepidation,helped
    himchooseabetterflattorent,whichwasinanewlybuiltestate.Itwashowever
    moreexpensiveandwouldrequiresubsidyfromfundsprovidedbytheHomeOffice.
    TheMAPPPcontinuedtodiscussthearrangementsforhissecuritygivencontinuing
    concernsovernewspaperspeculationsandagreedthatifJonVenableswasaway
    fromhomeformorethanaweekheshouldinformthepolicesothatlocalsecurity
    arrangementscouldbemade.
    140. BySpring2005,however,hishopesofgettingontomanagementtraininganda
    betterpaidjobwith hadnotmaterialised
    xlix
    andhewas
    reportedasnowdisillusionedwithhisworkat andfeltlet
    down
    l
    . Financialproblemscontinuedandhehaddifficultymakingendsmeet.He
    electedtoleavehisflat,rentarrearsthathadbeenrunupweremetbytheprobation
    service,andhemovedintoaroominasharedflat . Thismore
    economicalarrangementallowedthecentralfinancialsupportforhisrenttobe
    halvedto160/month
    li
    .
    141. Hecontinuedtoapplyforanewjobhopingtobeabletowork40hoursaweekto
    earnmoremoney.Significantly,however,herecognisedthathewouldhavetolook
    forsemiskilledorunskilledjobswheretheemployerwasunlikelytoaskforaCRB
    check,andthatifthatdidhappenthenhewouldhavetowithdrawhisapplication.
    OmandReview 70

    142. JonVenableshadnowbeenlivinginthecommunityforover5yearswithout
    furtheroffendingbehaviour,wasstable
    lii
    (ifstuck)andwasstillassessedasposinga
    lowriskofharmtoothers. Hissupervisionhadbeenreducedtoeverythreeweeks,
    withquarterlyMAPPPs. Tothatextent,hissupervisiontodatehadbeenasuccess,
    althoughthewarningsignsweretherethathisprogressinbecomingselfsustaining
    hadstalledandthatheriskeddepression.
    143. Atnationallevel,theNMBprovidedpolicyguidanceonanumberofkey
    disclosureandchildprotectionissuesandworkedhardonprocessissuesaround
    security. InthelightofthecontinuinglowriskassessmentstheNMBseemsto
    havebeenkeenonnormalisingthelevelofexceptionaleffortgoingintoit.The
    guidancegiventotheMAPPPbytheprojectmanagerACOthatspring(2005)was
    thattheNMBhadindicatedthattherewouldbenoendpointtothesupervisionin
    thesecasesandthereforetherewasaneedforaMAPPPtoadviseonarealistic
    supervisionandmanagementplanthatprovidedappropriateandsustainablelevels
    ofcontact. ArrangementsweremadeforanalldaycaseMAPPPconferencewith
    PPUtoplanthefutureeffortonthecase,finallyheldinJanuary2006.
    144. AccordingtotherecordoftheJanuary2006MAPPPcaseconference
    liii
    ,there
    wasaparticularconcernaboutthelackofnormalisationinthesecasesin
    comparisonwithotherlifercases,withnodiscussionoftheoriginaloffence,unusual
    linemanagementarrangementsandcontinuingdirectsupervisionofthesubjects.
    ThedangerwasidentifiedthatJonVenableswouldcometofeelhewasspecialand
    didnothavetotakeresponsibilityforhisdebts.Themeetingagreedthattheproject
    groupsofprobationandpolicesupervisingofficersthatwerecontinuingtomeet
    withJonVenablespresentshouldstopandthatthereshouldjustbenormal
    supervisionbytherelevantlocalprobationserviceofYShire. Theminutesofthe
    meetingrestatethattheprobationauthoritywasresponsibleformakingoperational
    decisionstomanagethecaseandmakearrangementslocally,andtheNMBforco
    ordinatingthecaseandmakingnationaldecisions.Themainareasforworkwith
    JonVenablesidentifiedinthesentencingplanatthispointwerethinkingand
    behaviour. Atthesametimeitwasnotedthatthepolicewouldbereviewingthe
    arrangementsinJune2006whenthebespokearrangementswithXShirewould
    cometoanend,andthatthe160permonthrentassistancewouldendinJuly
    whichitwasnotedwasboundtocausedifficultyforthesubject
    liv
    .
    145. TheNMBnextmetinJune2006,andwereagainremindedbytheoffender
    managerofherconcernthatJonVenableswasnotdevelopingstrategiestomoveon
    OmandReview 71

    aaaaaa

    . TheDfES
    representativeattheMAPPPexpressedapprehensionabouthislonelyexistenceand
    potentialdifficultiesforthefuture
    lv
    . NeverthelesstheNMBrecordedfirmlythat
    normalisationofthecasewouldproceed,withnofundingstreamforprobationand
    withdrawalofsupporttothepoliceinthesummer.Itwasstatedthattherewasa
    needtomatchnationalresourcestotheriskandthattherecouldnotbethe
    assumptionthatthefundingarrangementswhichhavepreviouslybeeninplace
    wouldcontinue.Thisattitudecan,atleastinpart,beexplainedbytheincreased
    focusonresourcesfollowingriskwiththecreationoftheNationalOffender
    ManagementServiceandthegradualshiftofattitudestoprobationworktowards
    offendermanagementandawayfromasocialworkperspective.
    146. TheNMBmetagaininSeptember2006,andagainnotedthatJonVenableshad
    financialproblems,feltisolated,andwouldnottakerisksovertakingnewsteps
    becauseofhisfearofidentification.Again,inDecember2006theNMBmetand
    heardthesamestorybuttheNMBdoesnotappeartohavereactedbygivingany
    newstrategicdirectiontotheMAPPP.TheNMBagendain2006seemstohavebeen
    dominatedbynormalisingthecase,removingthespecialfundingarrangements,
    andprocessissuesregardingcontingencyplanningandcommissioningasecurity
    reviewofthemanagementarrangements,respondingtoMinisterialenquiries
    147. Attheendoftheyear(December2006),theMAPPPhadbeentoldyetagainthat
    JonVenablesstillhadfinancialdifficultiesandthattheoffendermanagerhadeven
    providedsomefinancialassistanceof30frompersonalfunds
    lvi
    . Shewas
    (correctly)advisedthiswasnotappropriateandshouldnotberepeatedandwas
    remindedthatthesupervisingprobationservicedidhaveasmallfinancial
    contingency.WhentheMAPPPmetattheendofJanuary2007theynotedthat
    moneyandemploymentremaineddifficultissues.TheMAPPPnoted
    lvii
    thatitwas
    notclearwhowouldpickupthebillifhehadtomoveagainandthatthiswouldhave
    toberaisedwiththeNMB.
    148. WhentheNMBcametoreviewthepositionlaterinJanuary2007,itdiscussed
    lviii
    aletterfromtheChiefConstableofXShirerequestingthattheNMBreviewits
    decisiontoceasefundingXShiretosupporttheoperation.TheNMBconfirmedthat
    policywasnowforMAPPPmemberstofundtheirownroles,andpointedoutthat
    thearrangementsforThompsonandVenableshadbeenestablishedintheinfancyof
    OmandReview 72

    MAPPAandnoothercasehadnationalfunding.NMBconfirmedthereforethat
    fundingresponsibilityforpolicingonthecasesshouldbetransferredtoYShire.The
    NMBruledthatfundswerethereforenolongeravailablefromthePPUintheHome
    Officetoprovidededicatedpolicepersonnel.Therewassomedoubtexpressedto
    theNMBaboutwhatnormalpolicingmightmeanwhentheriskofharmbyhim
    wasregardedassolowandwhenitwasonlythepublicperceptionofriskthat
    resultedinthecasebeingmanagedatahigherlevel.WhentheNMBmetinMarch
    therewasstilldisagreementoverhowtoresolvetheissueofhowtofund
    exceptionalexpenditureshouldthecaserequireit.
    149. TheNMBnotedinMarch2007thatthecaseremainedlowriskandplanningfor
    thetransferofprobationandpoliceresponsibilitieswashappeningsmoothlyand
    thatthecasewouldbeprogressivelytransferredtoYShireintheJuneSeptember
    period. ThecurrentOffendermanagerwouldbythenhavehadfiveyears
    supervisingJonVenablesandithadalwaysbeenunderstoodthatwouldbean
    appropriatepointtointroduceanewoffendermanager.Inreality,2006hadbeena
    yearofmarkingtimeandgrowingfrustrationandemotionaldifficultyforJon
    Venablesinwhichitisnowpossibletodetecttheprecursorsofhissubsequent
    behavioralproblems.
    Phase4 Offendermanagementundernationalstandardsbythelocal
    probationserviceofYShirefromNovember2007,duringwhichperiodthere
    wasthedevelopmentofminoroffendingbehaviour,andendingwiththe
    discoveryofthefurtherseriousoffenceinFebruary2010whenhewas
    recalledtocustody.
    150. Inthesummerof2007theNMBsnormalisationarrangementshadtakeneffect
    withformalresponsibilityforsupervisionandpolicingtransferredtoChiefOfficers
    ofthelocalYShirearea. AMAPPApanelcontinued,asdidtheoversightoftheNMB.
    AtthispointJonVenableswasreceivingsupervisioneverythreeweeksfromthe
    sameoffendermanagerasintheprecedingphase,thusmaintainingcontinuity
    whilstarrangementsweremadeforhissupervisiontobehandedovertoa
    probationofficerdrawnfromtheserviceofthelocalarea,YShire.Thishandover
    tookplacesmoothlyduringOctober2007,againwithanoverlapandopportunityto
    maintaincontinuity.
    OmandReview 73


    ,
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    151. TheNovember2007MAPPPreviewedthecasewiththeretiringoffender
    managerinrelativelyoptimisticterms
    lix
    . AtthistimeJonVenableswaslivingina
    sharedflat continuingtowork
    . Hewasregardedascontinuinglowrisk,withnosignsofantisocial
    behaviourorsubstancemisuse
    lx
    . Theperceptivehandovernotes
    lxi
    fromhisretiring
    offendermanagerdescribedthesituationinthefollowingterms.Thesubjectis
    stable. Hehasbeencompliant,doesnotappeartohavemanyambitions,ispleased
    withtheamountoffreedomhehaswhichhedidnotthinkhewouldhave,but
    neverthelessdoesnoteasilyshareissues.Itisquitedifficulttogetinformationfrom
    himandthisisnotnecessarilybecauseheisresistantbutjustbecauseoftheperson
    thatheis.
    152. TheNovemberMAPPPdidnotlookahead
    Isurmisethatagainthisisanexampleofapatternoftellingthesamestorytohis
    offendermanagerstoplacatethem.MuchoftheMAPPPmeetingwashowevertaken
    upwiththepolicearrangementstoensurehissecurity,ifthereweretobea
    compromise. Thesubjectssecurityandcontingencyplanningalsocontinuedtobe
    thefocusofNMBworkasrecordedinthefilesandthereisnoevidenceofsustained
    thinkingaboutthelongtermprospectsforthecase.TheNMBplannedtomeetin
    futureonlytwiceayear,butwithquarterlyMAPPP
    lxii
    .
    153. ThenewoffendermanagerreportedtotheNMBinJanuary2008
    lxiii
    Hisroomislikethatofateenagerwithclothing,foodcartonsetc
    alloverthefloor. Hespendsagooddealofleisuretimeontheplaystationandon
    theinternetplayinggamesnotsureofthesignificanceofthisasyet,giventhe
    attentionvideogameshadfollowinghisoffence
    lxiv
    . Imnotcertainwhatgamesheis
    playing. Thislaststatementmayhavebeenunintentionallyprescient,sincewith
    hindsightwecanseethatatthispointJonVenableswasnotbeingstraightforward
    withhisnewoffendermanagerabouthisattitudeofmindandlifestyle,perhaps
    understandablewithsomeonewhohadpreviouslyshownthatittooktimetobuild
    uptrust,butperhapsalsobecausehewasbeginningtoregressfromhisearlier
    ambitionsand,likemostoffendersonlicence,hidebehavioursthathewouldknow
    wouldearndisapproval.
    OmandReview 74

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    154. AttheNMBinJanuary2008,copieswerehandedroundfordiscussionasusualof
    theupdatesummaryofthecase,asdescribedabove.Nopointsarisingwere
    recordedintheminutes.TheNMBdidhoweverreviewthearrangementsfor
    securityintheeventofarecall. ThechairoftheNMBisthenrecordedassuggesting
    thattheNMBwasnotneededinitspresentform.Heproposedthattheheadofthe
    relevantPPUteamattendMAPPPsandwouldthendiscussprogressinthecasein
    hisonetoonemeetingswiththeHeadofPPU.TheNMBagreedwiththisapproach
    onthebasisthattherewasnopointingatheringbusyofficialstogethersimplyto
    notenochangeintheriskassessment.ItwasagreedthatanNMBmeetingcouldbe
    convenedintheeventofanemergency.
    155. ThenextNMBwasindeedanemergencymeeting,inOctober2008,afterJon
    VenablesarrestinSeptemberofthatyearfortheSection4PublicOrderoffence. As
    notedinSection2,thisdecisiontohavetheNMBmeetonlyonareactivebasis
    restedonadifferentapproachtoitsstrategicresponsibilityfortheVenablescase.
    TheHeadofCriticalPublicProtectionwouldattendeverymeetingofthelocal
    MAPPPandreportbacktotheHeadofPPUwhocouldcallanNMBifrequired.The
    changewas,however,madewithoutclearassurancethattheMAPPPunderstood
    thatitwouldpickupthelongtermresponsibilityforthedirectionofthecasethat
    hadoriginallybeenarolefortheNMBandthattheywouldbeoperatingwithoutthe
    spurofhavingtheregularoffendermanagerreportssubjectedtoNMBdiscussion
    fromtheperspectiveofexpertpractitionerswhowereatoneremovefromthecase.
    Offtherails?
    156. Intheearlyhoursofthemorningof 2008,JonVenableswas
    arrestedbypoliceafterascufflewithanothermanoutsideanightclub.Bothwere
    drunk. JonVenablesclaimedthathehadbeenactinginselfdefenceafteran
    altercation. Hewaschargedunderhisnewidentityundersection4ofthePublic
    OrderActandbailedtoappearbeforeamagistratescourton
    OmandReview 75

    157. TheJusticeSecretarywasinformedbytheNationalDirectorofProbationofthe
    circumstancesofthearrestinasubmissionon 2008andthatthe
    MAPPPwouldbeconsideringwhetherthisdevelopmentmeritedrecall. TheNMB
    meton8OctoberandnotedthattheSeniorCrownProsecutionLawyerforthearea
    hadreviewedthecase(withoutknowingthesubjectstrueidentity)attherequestof
    theChiefCrownProsecutorforYShire(whodidknowthetrueidentity)andthatit
    wasbeingtreatedasasection5offence,followingwhichdecisiontheCPSdropped
    charges. TheJusticeSecretarywasimmediatelytold.
    158. TheJusticeSecretarywasinformedthatitwastheintentionoftheMAPPPthat
    Venablesreceiveaformalwarningfromhisoffendermanager.Recallwould
    certainlynothavebeenjustifiedforasingleoffenceofthisnature(therewasin
    particularnocausallinktotheindexoffence)andissuingawarningwasseenasa
    reasonablestep. JonVenableswassaidtoberemorsefulandthatheknewhow
    luckyhewasthathisidentityhadnotbeencompromised.Hewouldattendan
    alcoholawarenesscourse. Giventherecenthistoryofthecase,however,andthe
    repeatedpsychiatristswarningstolookoutforalcoholorsubstanceabuse,with
    hindsightthismayhavebeenamissedopportunityfortheMAPPPandhisoffender
    managertoseethisoffenceasasignthatJonVenablesbehaviourandemotional
    statewasfundamentallychangingfortheworse,andlikelytoleadtomoreserious
    difficulty. Ontheotherhand,theoffenceitselfwasnotseriousanddidnotaffectthe
    assessmentofriskofharmtoothers.Theactiontakenbyhisoffendermanager
    seemsappropriategivenhispasthistoryofcompliance.JonVenablessubsequently
    cooperatedwithhisoffendermanagerinaddressingtheissuesofalcoholabuse.
    159. Inasecondincident,on ,JonVenableswasstoppedbypolice
    aspartofarandomstopandsearchoperation.Asmallamountofcocainewas
    foundonhimandhewasarrested.Hereceivedacautionatthelocalpolicestation.
    TheoffendermanagerconsultedhisChiefOfficerofProbationandtheyconcluded
    thatthecaution,asevidenceofescalatingrisk,didnotmeritimmediatelyrecalling
    JonVenablestocustodysinceitwouldnotbeusualtorecallalifelicenceetocustody
    foracautionofthatkind.Arevisedriskassessmentwascompiledafterthese
    offencesthatrightlyconcludedthatheposedaslightlyelevatedriskofviolence
    associatedwithalcoholuseandinvolvementindrugs. TheMAPPPtooktheoffence
    veryseriouslyandconsideredcarefullywiththepolicewhethertherewasacasefor
    recall. Afterlocaldiscussiontheyagreednottorecommendrecallbutinsteada
    threepartresponseappropriatetoayoungoffenderatriskoflapsingintoapattern
    ofantisocialbehaviour:issuingJonVenableswithafinalwarningletter,goingtothe
    OmandReview 76

    ParoleBoardandrequestingadditionallicenceconditionstoimposeacurfewand
    reimposingweekly(ratherthanthepreviousthreeweekly)reportingtohis
    offendermanager.
    160. TheseconclusionsofthelocalMAPPPwerereportedbytheDirectorof
    ProbationtotheJusticeSecretaryon 2008. TheDirectorcommented
    thatalthoughitwouldnotbeusualforfrontlinemanagerstorecommendrecallofa
    lifelicenceeforacautionofthiskind,therewasnowcauseforconcernoverthecase.
    ThelocalMAPPPcontinuedtoassesstheriskofharmaslow,butwhilstdrugsand
    alcoholwerenotriskfactorsassociatedwiththemurderofJamesBulgerthetwo
    recentincidentscombinedindicatedthatJonVenableswasbehavingirresponsibly
    inthatwaywhichmightbringhimintofurtherandpossiblymoreserioustrouble
    withthelocalpolice. TheadditionalstepsproposedbytheMAPPPweredesignedto
    controlhisbehaviourwiththeintentionthattheMAPPPwouldreviewthesituation
    inthreemonthstime.
    161. Inresponse,theJusticeSecretaryaskedtheNMBtoprovideassurancethatthe
    proposedresponsewasappropriateforpublicprotectionpurposesandtoconsider
    whether,exceptionally,thelatestincidentmightmeritrecall. TheNMBtestedthe
    reasoningofthelocalMAPPPattheirmeetingon7January,whichwasheldasa
    telephoneconferenceduetobadweather. Theyheardfromapolicechiefinspector
    (whohadclearedhispositionwithhisDeputyChiefConstable)andfroma
    probationareamanager(whohadclearedherpositionwithherChiefOfficer)that
    thelatestincidentevenwhencombinedwiththepreviousarrestfortheSection4
    PublicOrderoffencedidnotconstituteevidenceofanescalatingriskofharmtothe
    public,althoughbothemphasisedthatthefinalwarningtobegivenshouldbejust
    that. TheNMBthereforeadvisedtheJusticeSecretarytoendorsetheproposalsfor
    furtherlicenceconditionsincludingacurfew.Heagreed.
    162. FromafurtherMAPPPon25February2009itappearsthatJonVenableshad
    meeklyacceptedthecurfewconditionsevenbeforetheywereformallyapprovedby
    theParoleBoard.On4March2009theHeadofPPUintheMinistryofJustice
    formallyaskedtheParoleboardtoimposeadditionallicenceconditions,namely:
    Toobserveacurfewathomeof11pmto6.30am
    Toengagewithhisdrugandalcoholbehaviouralissues,asdirectedbyhis
    supervisingofficer
    Theseconditionswereagreedandaddedtothelicence.
    OmandReview 77

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    163. Inadditiontothesestepstotrytocorrecthiswaywardbehaviour,boththe
    MAPPPandtheNMBappeartohavebegunatthispoint(January2009)torecognise
    thattheremightbedeeperproblemswiththecase.AttheemergencyNMB
    telephoneconferenceon7January,theYShireAreaManagerhadalsoreportedthat
    sheandtheoffendermanagerhadtogethervisitedJonVenablesathishome.They
    reportedJonVenablesasrecognisingthathehadputhislibertyatjeopardy.
    TheNMBinvitedtheoffendermanagertoseeifDr
    mightbeavailabletoretreathimsincehehadevidentlyrelatedwelltoher,
    ortoaskherforadviceonotheravenuestopursueforcounsellingforhim.
    FurtherWarningSigns
    164. InFebruary2009,theMAPPPmettotakestockofthenewconditions.The
    offendermanagerwasundertakingweeklysupervisionvisitsandhadcarriedout
    drugtests,allofwhichshowednegativeforclassAdrugs.Venableswasreportedas
    veryanxiousabouttheprospectofrecalltoanadultprisonifheoffendedagainand
    heknewthatnootherbadbehaviourwouldbetolerated.Buthewasclearly
    strugglingwiththedilemmasofhislife(seetheoffendermanagersaccountofthis
    totheNMB,quotedbelowinpara165). Aspartoftheriskmanagementplan,the
    MAPPPagreedthattheoffendermanagerwouldcontinuetotrytomotivateJon
    Venablestotakeacollegecourseorimprovehislifechancesandtomotivatehimself
    morethanhethenwas. Thisseemsperfectlyontargetasanaim,butbyitselflikely
    tobeanunrealisticobjectivetogivetheoffendermanager.Theoffendermanager
    toldtheMAPPPthathehaddrawnablankinrelationtoadvicefromDr
    (seepara163above)abouttheneedforcounsellingforJonVenables.
    Venables
    GPwasunawareofrealidentity,andtheMAPPPwasconcernedthathisseeinga
    counsellorwouldraiseissuesarounddisclosure.TheDistrictManagerofthelocal
    OmandReview 78


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    probationareaofferedtoseekadvicefromapsychiatristfamiliarwithMAPPA
    processes.
    165. TheJusticeSecretaryhadbeenpromisedinJanuary2009anupdateinMarch
    afterthemeetingthatmonthoftheNMB. AtthatMarchNMBmeetingtheoffender
    managerreportedthathehaddiscussedwithJonVenablestheissueshefeltwere
    stoppinghimforminganyrelationshipsandtheyhadstartedtolookataplanofhow
    andwhentoinformanyprospectivepartnershouldhebelievethismightbecome
    necessary.
    A
    briefsummaryriskmanagementplanwasprovidedtotheNMB:
    Theoffendermanagerwouldcontinuetomeetwithhimonaweeklybasis
    Theoffendermanagerwouldcontinuetheworkstartedonillicitsubstances
    andalcoholabuse
    Hewouldabidebythecurfewunlesshisworkdictatedotherwise
    Theoffendermanagerwouldcontinuetoworkwithhimtoaddresshis
    depressivefeelings
    Theoffendermanagerwouldcontinuetoworkwithhimtoexaminehowhe
    canmoveforwardinrespectofformingrelationships
    166.
    Significantly,itwasreportedtothe
    NMBthatalthoughJonVenableshadatthetimeofhissecondarrestinformedhis
    offendermanagerthathehadonlyusedcocaineonacoupleofoccasions,however,
    ittranspiresthathehasbeenusingthisonasemiregularbasisonceeverysixweeks
    orso...Ibelievethathehasbeenusingcocaineasarelieffromwhatheseesasatedious
    andunfulfillinglifestyle. InadditiontoIbelieveaslightdepressivestate.
    OmandReview 79

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    WhenIfirstmethim18monthsagothiswasnotanissueasIbelievehewas
    functioningasayoung20yearoldina25yearoldbody,henowappearstobecaught
    upandisfunctioningatalevelappropriatetohisage.
    167. FromthefileitisclearthattheNMBandtheMAPPPnowhadinMarch2009all
    thecrucialelementsofthecaseinfrontofthem. Thefocusofdiscussionwas,
    however,oncontroloftheoffendingbehaviour,continuedprotectionofhisidentity
    andgettinghimtoaccepthiscircumstancesratherthananymorestrategic
    assessmentofthecircumstancesthemselvesandtheeffecttheyseemedtobehaving
    onJonVenablesemotionalstate.
    168. InJune2009theMAPPPtookstock.TheoffendermanagerwasseeingJon
    Venablesweekly.Fivedrugtestshadbeencarriedout,andallhadprovednegative
    forClassAdrugs.Thecurfewrestrictionimposedafterhiscautionwasnotproving
    irksomesinceJonVenablesreportedthathehadnomoneytospend.Amoveto
    cheaperaccommodationwasbeingconsidered.TheMAPPPdiscussedwhetheror
    notitwasagoodthingforhimtoshareaflat(theydonotappeartohavebeen
    awareatthispointthathehadpreviouslysharedaflatandofhowsecurityconcerns
    hadthenbeendealtwith).Itwasimportant,theMAPPPnoted,thathedidnot
    becomeisolated,lowanddepressedandfallapartorindeedactoutviadrugsor
    alcoholagain,andthiswaspossibleshouldhea)getintodebtandb)becomevery
    lonelyandfeeltrapped. Fromariskperspectivehowever,sharingwouldmake
    keepingconfidentialitiesharderandsupervisionharder. Theinfluenceofpeerson
    himcouldbeaproblem. Thegroupwasinclinedtosupporthiminhiscurrentflat,
    butrecognisedthatthismightnotbepossible.
    169. TheoffendermanageralsoreportedinJunetotheMAPPPthathewasmaking
    hisownenquiriesaboutfindingasuitablecounsellortoworkwithJonVenables,
    Dr
    whohadpreviouslybeenamemberoftheMAPPPbuthadnevermetVenables,was
    saidtobeagreeabletoofferinganassessmenttoseeifanythingfurtherwas
    required. NOMSagreedtopayforthisassessmentbutitwasmadecleartothelocal
    offendermanagerandtheDistrictManagerthatfuturefundingforanylongterm
    counsellingwasunlikelytobeapproved.Theycommentedthatthiswasnot
    expectedtoberequiredbutwouldbefurtherevaluatedfollowingtheassessmentby
    OmandReview 80

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    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    170. TheNMBwasupdatedonthecaseinSeptember2009
    lxv
    inthefollowingterms.
    Theoffendermanagerreported
    lxvi
    thatapsychologist[sic]hadseenthesubjectfor
    twohours[infacttheinterviewitselfwasforanhour].Shehadtalkedthroughhis
    issuesandconcludedtherewasnoneedformedicationandthatshedidnotneedto
    seehimagain. HadtheNMBstudiedthefullreportfromDr theymight
    havebeensuspiciousastowhetheronthisfirstmeetingwithDr (whomhe
    hadnotmetbefore)hehadonceagainbeenunabletobeopenwithastrangerover
    histruefeelings(seepara92inSection3).TheNMBmightalsohavesought
    confirmationastowhetherhehadactuallyhadaGPreferralontoawaitinglistfor
    counsellingandsatisfiedthemselvesastothesecurityofanysucharrangement.
    Theassessmentwassufficienttoestablishthattherewerenosymptomsof
    psychiatricillnessbutthatshouldnothavebeeninterpretedasdisposingofthe
    issueofthepossiblevalueofonetoonecounselling(ashadbeenreportedtothe
    JusticeSecretary,seepara92above).
    171. TheregularreportfromtheoffendermanageralsoinformedtheNMBthatback
    inthesummerJonVenableshadbeenthreatenedwithevictionforhaving
    arrearsofrent. Now hislandlordhadissuedaSection21notice
    seekingeviction.Theoffendermanagerreportedthathehadimmediatelytakenthis
    upwithVenablesanddiscoveredthathehadnotkepttohisagreementonhowhe
    wouldmanagehismoney.HewasalsobeingthreatenedwithCourtactionon
    forunpaidCouncilTax. HisoffendermanagertoldtheNMBIfeelheis
    buryinghisheadinthesandrehisproblemsandhittingoutfigurativelyatmeandthe
    systemItisapparentheisnotbeingtotallyhonestwithmeregardingtheissueshe
    facesregardinghisfinances. Withhindsight,wenowknowthatitwasnotjust
    aboutfinancethathewasbeingdeceptive.
    172. RecallprocedureswerebeingdiscussedatthistimeandtheagendaforaMAPPP
    meetinginDecemberrecordsanupdateonthisasanitembutthereisnothingon
    fileofNMBactivitybetweenSeptember2009toFebruary2010exceptfora
    submissioninearlyFebruarytotheMinisteraboutaFreedomofInformation
    requestonthecase.
    Theaccidentaldiscoveryoftheseriousoffence
    173. On22February2010,JonVenablesreportedtohisoffendermanagerthathe
    believedthathisidentityhadbeencompromised.
    OmandReview 81

    aaaa

    Theoffendermanagerimmediatelyliaisedwithlocalpolice,underthepre
    existingplans,andthepolicedecidedthatheshouldmoveoutofhis
    accommodation. OnarrivingathisflatthepolicefoundJonVenablesforciblytrying
    toremovetheharddrivefromhiscomputer.Onexaminationbythepolice,indecent
    imageswerefoundincludingsomeatLevel4(definedaspenetrativesexualactivity
    involvingachildorchildren,inthiscasechildrenasyoungas7or8).Againin
    accordancewiththefurtheroffencerecallplansthiswasimmediatelyreportedto
    theMinistryofJusticethroughtheHeadofPPMHG.Afterhisrecalltocustodyitwas
    discoveredthathehadshortlybeforehisarrestposedaswomanwithayoungchild
    inordertohaveconversationswithpaedophilesonnetworkingsites.
    174. AnimmediatefreshriskassessmentwascarriedoutthatrevisedJonVenables
    scoresfortheriskofseriousharmfromlowtohighandsimilarlyhisriskof
    reconvictiontohigh.On24FebruarytheHeadofPPMHGrevokedVenables
    licenceonbehalfoftheSecretaryofStateonaclearrecommendationfromthe
    offendermanageronthegroundsthathisdownloadingandpossessionofimagesof
    younggirlsasyoungas7or8wouldindicateagreatlyincreasedlevelofriskto
    childrenthatisunsustainableinthecommunity.TheJusticeSecretarywasinformed
    aftertheevent.
    175. JonVenableswastakenbackintocustody.Theplansthathadbeenprepared
    againstthepossibilityofrecallworkedsmoothlyandIcommendthepolice,
    probationserviceandMinistryofJusticeofficialsonactingswiftlytoensurerecall.
    176. On23JulyitwasdisclosedpubliclyattheCentralCriminalCourt,ontheliftingof
    reportingrestrictions,thatJonVenableshadbeenchargedbytheCrown
    ProsecutionServicewiththreecounts:
    1)Makinganindecentphotographofachild,contrarytosection1(1)(a)ofthe
    ProtectionofChildrenAct1978;theparticularsoftheoffencearethatbetween24
    Feb2009and23Feb2010hemade{i.e.downloaded]57indecentphotographsof
    children
    2)Distributingindecentphotographsofchildren,contrarytosection1(1)(b)ofthe
    ProtectionofChildrenAct1978;theparticularsoftheoffencearethatbetween1
    Feb2010and23Feb2010hedistributedthreeindecentphotographsofchildren.
    OmandReview 82

    aaaa

    3)Distributinginternetphotographsofchildren,contrarytosection1(1)(b)ofthe
    ProtectionofChildrenAct1978;theparticularsoftheoffencearethaton23Feb
    2008hedistributed42indecentphotographsofchildren.
    JonVenablespleadedguiltytothethreeoffencesconcernedwithindecentimagesof
    childrenonacomputerandwassubsequentlysentencedtotwoyears
    imprisonment. Hispresentencereportsbeforethecourtassessedhimasposinga
    mediumlevelofriskofserioussexualharmtochildren,becausehehadcolluded
    withandencouragedtheharmalreadyinflictedontheexploitedchildrenby
    downloadingtheimages.Therewasnoevidenceofhisusingtheinternettotryto
    contactorgroomchildrenforsexualexploitation.Nevertheless,theJudge
    considereditnecessaryfortheproperpurposeofprotectingfuturechildrenfrom
    beingexploitedforhissexualgratification,toimposeasexualoffencesprevention
    order(SOPO)forfiveyearsfromthedateofsentenceprohibitingJonVenablesfrom:
    (1)owningorusing,saveathisplaceofemployment,oratasupervisedfacilityopen
    tothepublic,anycomputerwithaccesstotheinternetwhichdoesnothavea
    softwareprogrammedesignedtopreventaccesstochildabuseimagesinstalled
    andinoperation;
    (2)usinganyinternetbasedfilesharingorpeertopeersoftware;
    (3)usinganyinternetbasedsocialnetworkingsitesoraccessinganychatfacility
    whichenableshimtoengageinanyformofchatontheinternet.
    JonVenableshasalsobeenrequiredtoregisterwiththepoliceunderthe
    notificationrequirementsofPart2oftheSexualOffencesAct2003for10yearsand
    ispermanentlybarredbytheIndependentSafeguardingAuthorityfromworking
    withchildren.
    Conclusionsonriskmanagement
    177. IamsatisfiedthatJonVenableswasaswellpreparedashecouldhavebeenfor
    hislifeinthecommunity.Itisahugetributetothecaretakenby
    andtheprobationandpoliceofficersconcernedastheyworkedwithhimand
    accompaniedhimonincreasinglycomplexforaysintonormallifethat,byMarch
    2002,JonVenableswasjudgedcapableofsurvivingandlivingonhisowninthe
    community. Iamalsosatisfiedthatitwasappropriateforhiscasetobedealtwithat
    MAPPAlevel3andTier4underOASysdespitethelowriskassessmentthatformed
    partofthebasisoftheParoleBoarddecisiontoreleasehimunderlicence.
    OmandReview 83

    aaaaaaaaaaaaaaaaaaaaaaa

    ProbationservicecontactwithJonVenablesafterreleasemorethanmetthe
    minimumnationalquantitativestandardsforTier4underOASysbecauseofthe
    exceptionalamountofsupervisionappliedandthenatureofthemanagement
    arrangementsdescribedinSection2.
    178. Theriskofminoroffendingbehaviourcommontothatmaleagegroupwas
    recognisedbyhisoffendermanagersfromthemomentofreleaseonlicence,and
    thatriskwasappropriatelymanaged.Itisclearfromprobationservicereportsthat
    JonVenableswasawarefromtheoutsetofthepotentiallydisastrousimpactofany
    involvementincrimeasthiswouldalmostcertainlyleadtorecall.Hisfearof
    exposurewasreal,andcontributedalongwithhissecretivenessandhisratherstolid
    temperamenttohisreluctancetotakestepstoimprovehisprospects.
    179. Thedecisiontonormalisethecasein2006(asimplementedby2007)was
    justifiedintermsofthetransferofprobationandpolicingresponsibilitytothearea
    inwhichJonVenableswasnowwellsettled
    Thetransferwashandledwell.Butbeyondthat,there
    seemstohavebeenacentralwishtorelateresourcestoriskaswassaidatthe
    time. Thatsentimentwasnodoubtpartofamuchwidershiftofpolicytowards
    focusingoffendermanagementonmanagingriskofharm,andJonVenableswas
    seenaslowrisk,evenifofhighnotoriety. TheunintendedeffectoftheNMBs
    decisionearlyin2008tomeetonlywhenrequiredwas,however,toeasepressure
    ontheMAPPPtobemoreproactivewithanindividualwhowasrecognisedtobe
    experiencingproblems.Itmaybesignificantthattherewasnoclinicalpsychiatrist
    presenttoadviseatanyoftheNMBmeetingsafter2005,norwastheneedforsuch
    adviceraiseduntilafterthesecondoffencein2008.
    180. IconsiderthatthetwoepisodesofoffendingbehaviourbyJonVenablesin
    SeptemberandDecember2008wereappropriatelyconsideredbythelocalMAPPP
    andbytheJusticeMinistry,includingbytheJusticeSecretaryhimself.Inparticular,
    Iagreethattherewasnocaseforhisrecalltocustodyonthebasisoftheseoffences.
    Theactionstakenbywayofaformalwarningandthenbyadditionallicence
    conditionsandmuchmoreintensivesupervisioninrelationtohisdebts,andhis
    drugsandalcoholuse,wereappropriateandproportionate.Eachofhissetbacks
    wasusedbyhisoffendermanagerasincreasedleveragetogetJonVenablestoopen
    upandtrytomovehislifeon.Offendersundersupervisionoftenhaveminorcrises
    thattheprobationservicehastohelpthemcopewith,andJonVenablesbehaviour
    OmandReview 84

    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa
    aaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaaa

    wasreasonablyinterpretedinthatlight. Forhissupervisorsheremainedalowrisk
    offender.
    181. Hisbehaviourdidnot,therefore,giverisetosufficientlydeepconsiderationby
    officialsofwhatthismightindicateabouthisunderlyingstateofmind,giventhe
    indicationsgiventotheMAPPPandNMBfrom2006onwardsofhisemotional
    difficulties.ThesubmissiontotheJusticeSecretaryinJanuary2009,forexample,
    hadreportedthattheprobationareamanagerbelievedthatthesecondincidentin
    2008hadledJonVenablestobemuchmoreopenwithhissupervisingofficerthan
    hadbeenthecasepreviously.
    Thequestionthatwasnotfullyaddressedwaswhathelpcouldandshouldthenbe
    consideredtotrytokeephimontherails,asdiscussedinsection4andtoimprove
    thelongertermoutlook,especiallyifhecontinuedinalowpaidjobwithno
    prospects,livingastressfulassumedlifeunderanewidentitywithnoambitionsand
    littleornoprospectofsatisfactoryintimaterelationships.
    182. Afterhisarrestforcocainepossessionin2008hewasregularlydrugtestedby
    hisoffendermanager. ThetestusedwouldhavedetectedclassAdrugs,butnotthe
    useofthe(thenlawful)recreationaldrug,mephedrone(similarineffecttoecstasy)
    thatJonVenableslateradmittedtohavingusedheavilyatthattime.Abroader
    spectrumofdrugtestingshouldbeconsideredincaseswhereoffendermanagers
    needtosatisfythemselvesthatbehaviourslikelytoleadtofurtheroffendingare
    beingsatisfactorilycontrolled.
    OmandReview 85

    OmandReview 86

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    Section7Concludingconsiderations
    183. Thissectiondoesnotrepeattheconclusionstoindividualsections.Asummary
    ofalltheprincipalconclusionsandrecommendationsisatannexA.
    Theriskofharmtothepublic
    184. Havingexaminedingreatdetailthelocalandnationalrecordsofthiscaseand
    interviewedmanyofthosemostdirectlyinvolved,Ibelievethepublicwouldbe
    reassuredtoknowofthededicationandprofessionalismofallconcerned.Itisvery
    reassuringtoseetheeffortsthatweremadeoveralongperiodtoupholdthesafety
    ofthepublicandtheinterestsofjustice.
    Itisapparenttomethatsignificantresourceswere,
    rightly,appliedtomanagetheperceptionsofriskofharmtothepublic,firstbythe
    HomeOfficeandthenbytheMinistryofJusticetothiscase,allowingcase
    managementtomorethanmeettheminimumnationalstandardslaiddownforthe
    supervisionofseriousoffenders.Ihaveconcludedthathewaseffectivelyand
    properlysupervisedatanappropriatelevelandfrequencyofcontact,havingregard
    totheparticularcircumstancesandchallengesofhiscase.
    185. ThecollectivejudgmentofalltheprofessionalsinvolvedinthecasebeforeJon
    Venableswasallowedin2003tolivefullyinthecommunitywasthattheriskof
    harmtootherswasseenaslow. Naturally,suchariskassessmentwasqualified
    bytheobviousdifficultiesofextrapolatingfromwhatappliesasachildwhenthe
    murdertookplaceandwhatappliestoanadult. Forayouthofhisage,educational
    levelandsocialbackground,hisobservedbehaviourduringthefirstsixorseven
    yearsinthecommunityappearedtohissupervisorstobearoutthatrisk
    assessment,withhistwolapsesin2008beingbehavioursthatwouldbeexpected
    fromasignificantnumberofhispeergroup.Hisriskassessmentinrelationtoanti
    socialbehaviourwasthenproperlyincreasedinthelightofthatevidence.
    186. AllthosewhoworkedwithJonVenableshavecommentedthathetookalong
    timetobuilduptrustsuchwashisconstantfearofexposure. Hewasbynature
    secretive,andnodoubtthiswasintensifiedbyhavingtoliveunderanewidentity.
    Heconcealedfromhisoffendermanagersthathehadbrokentheconditionsofhis
    licenceandvisitedMerseysideandliedtothemwhenasked.Iamclearfrommy
    OmandReview 87


    discussionswiththemthattheywerenotawareofhisbreachofhislicenceandthat
    hewouldhavebeenrecalledifthathadbeenknown.Givenhissecretiveness,Ido
    notcriticisehisoffendermanagersfornotbeingabletospotthathewasperiodically
    makingthesetrips. Italsoneedstobeborneinmindthatsincehewaslivingunder
    anewidentityknowntoonlyaveryfewpeopletherewouldhavebeennochanceof
    policetipoffsandlocalintelligenceasmightapplyinthecaseofotheroffenderson
    licence.
    187. Inrelationtothenatureofthefurtherseriousoffenceofdownloadingindecent
    images,Iconcludethattherewerenoearlywarningsignsthathehadpaedophile
    interestsandthatwhenhecameunderseriousstressthatformofaberrant
    behaviourwouldemerge,norwasthereanythingintheseveralindepthpsychiatric
    assessmentscompletedovertheyearssincechildhoodthatwouldhavepointedtoit.
    Noreasonablesupervisoryregimealone,eventightenedasitwastodealwith
    episodesofantisocialbehaviour,wouldhavebeenexpectedtodetecthisuseofthe
    computertodownloadindecentimages.Thereisnodoubtthat,aswasreportedto
    theJusticeSecretary,Venablessupervisingofficerandthelocalpoliceofficers
    involvedwereshockedbytheaccidentaluncoveringofthefurtheroffencein
    Februaryofthisyear.Thatdiscoverydoesnotinitselfinvalidatetheconsistent
    assessmentduringofyearssincereleaseonlicencethattheriskofafurtherserious
    offencewaslowandthatheposedalowrisktoothers.Lowprobabilityoccurrences
    dosometimeshappenthatisthedifferencebetweenlowriskandnorisk.I
    concludethatriskassessmentswereproperlyformulatedandunderstoodbythose
    involvedinhissupervision.
    188. TheriskmanagementplanputtotheNMBinMarch2009afterVenablestwo
    lapsesin2008correctlyinvolvedtheoffendermanagerinworkwithhimtoaddress
    alcoholandsubstanceabusebutalsoworkaddressinghisdepressivefeelingsand
    worktoexaminehowhecouldmoveforwardinformingrelationships.Theseare
    areaswhereprofessionaltherapeuticsupportwouldhavebeenadvisable,for
    examplebysecuringtheservicesofanexperiencedpsychotherapistorcounsellor
    experiencedinforensicworkwhocouldhavebeentrustedwithknowingthedetail
    ofthecase,underthecodeofprofessionalconfidence.
    189. FurtherclinicalassessmentofJonVenableswillbeneededtogaugeinwhatways
    hisprogressiveuseofinternetsitesandpornography,latterlywithextreme
    paedophileimages,relatedtohisdeterioratingemotionalstateinrelationtohis
    OmandReview 88



    senseofidentityandselfworth.Thepossibilityofhisbecomingdepressedhadbeen
    highlightedtotheMAPPPandtheNMBbyseveralpsychiatristswhoworkedonthe
    caseandhadbeenoneofthefactorsthatledtheconsultantpsychiatristwhoknew
    himbesttorecommendcontinuedclinicalsupervisionafter2003,advicetheNMB
    andMAPPPdidnottake.Therewere,asthisinquiryhasnoted,missedopportunities
    tohelpJonVenableswithhislifechances.Therecanbenocertaintybutitis
    possiblethathadclinicalsupportbeenavailableintheyearbeforehisfurther
    offencethenhemighthavebeenmoreopenanddisclosedhisinterestinsuch
    imagesandwhattheyrepresentedforhim,andperhapsagreetomoreintensive
    therapyandthusallowedthatrisktobemanaged.Thatisofcoursewrittenwith
    hindsight.
    TheriskofharmtoJonVenables
    190. Ihavenothingbutpraiseforthecaretakenbythepolice,probationservice,
    HomeOfficeandMinistryofJusticeofficialsovermakingarrangementstoprotect
    JonVenablesfromexposureandmobvengeance.Hisfearofexposureandits
    consequencesforhissafety,wasjustified.Itisclear,forexample,fromprobation
    servicereportsthatJonVenableswasawarefromtheoutsetofthepotentially
    disastrousimpactofanyinvolvementincrimeasthiswouldalmostcertainlyleadto
    exposureandrecall. Itisperhapsanindicatorofchangeinhisstateofmind,andof
    theonsetofdepressiveandpessimisticfeelingsabouthisfuture,thatoverthelast
    threeyearsbeforerecallhewasengaginginincreasinglyriskybehaviourincluding
    (weknowfromhindsight)useofdrugsandincreasinglyextremepornography. I
    regarditassignificantthatwhenJonVenableswasvisitedbyhisoffendermanager
    shortlyafterbeingtakenintocustodyhewasreportedasnotappearingupsetor
    angryattheturnofeventsbutseemedrelievedandappearedtofeelsaferthan
    wheninthecommunityunderhisfalseidentity.
    Wereobjectivesforsupervisionsufficientlyclear?
    191. Officialsrecognisedattheoutsetthatfromtimetotimetherewouldbetension
    betweenwelfareandsecurityissues.ThethenHomeSecretary(DavidBlunkett)
    wasassuredbytheDirectorGeneraloftheProbationServicethattheresources
    beingexpendedonthesecaseswouldbeconcentratedonthefollowingobjectives:
    onensuringthatthepublicwasprotected
    tosafeguardthephysicalsecurityoftheindividual
    OmandReview 89



    aaaaaaaa




    toallowtheindividualstodevelopselfreliance
    toundertakefurthereducation.
    192. TheHomeSecretaryacceptedthisstatementofprioritiesandadded,insupport
    ofthecaseforacontinuinginjunctionagainstpublicationthatcouldleadto
    identificationoftheirwhereabouts,thathealsostronglybelievedthathehadaduty
    toensurethattheseyoungmenhaveaproperchancetoleadalawfullifeatliberty.
    Thiscouldbejeopardisediftheyweresubjecttoharassmentandintrusionbythe
    media. OfficialsalsosensiblyidentifiedatalaterstagetheriskofselfharmbyJon
    Venablesiftherewasnotmoresenseofprogresswithhislife. Theprotectionofthe
    integrityoftheprocessofsupervisionsoastoprotectMinistersandthecriminal
    justicesystem,especiallythenationalprobationservicewasalsoidentifiedby
    officialsasanobjectivefortheirmanagementofthecase.
    193. Iconcludethattherightobjectivesweresetforthoseundertakingsupervision
    andthatallconcernedwereawareoftheprimacytobegiventosafeguardingthe
    public.
    Werethelicenceconditionssatisfactorilymonitored?
    194. Iamsatisfiedthatthoseinvolvedinhissupervisionkeptthelicenceconditionsin
    mindthroughoutintermsoftheobjectiveofsafeguardingthepublic.TociteDr
    ConsultantinChildandAdolescentForensicPsychologyinadvicetothe
    ParoleBoard:ThereisnodoubtthatinJonscase,hadhenotbeenplacedinsecure
    accommodationattheageof10years,heislikelytohavecontinuedonapathoffailed
    educationalandvocationalopportunities,andanescalatingpatternofoffending,with
    anincreasingalienationfromsociety. Infact,hisadolescentyearsturnedouttobe
    troublefreethankstothecarewithwhichhehadbeenbroughtupespeciallyina
    secureinstitutionalsetting.Thatmusthavebeenasignificantconsiderationinthe
    mindsoftheNationalManagementBoardandthelocalMAPPPastheymonitored
    theapparentlytroublefreeprogressJonVenableswasreportedasmakingforthe
    first6yearsinthecommunity,andastheyputinthatcontexthis2008episodesof
    drunkennessandcocaineuse. Overall,Iconsiderthatthedirectsupervisionwasas
    effectiveascouldreasonablyhavebeenexpectedinthecircumstances.
    195. Twospecificissuesovertheenforcementoflicenceconditionsdidhowever
    arise. TheconditionimposingclinicalsupervisiononJonVenableswasaddedtothe
    licenceattherequestoftheHomeSecretary.Itwasreinterpretedin2003bythe
    OmandReview 90




    NMBasmeaningthatthesupervisioncouldbedroppedbutreintroducedatneed;
    thischangewassaidtobewiththeassentofaParoleBoardofficial. Thatmayhave
    seemedareasonablestepinthelightoftheoptimisticoutlookatthetime,butonce
    theconditionwasdroppednoseriousthoughtseemstohavebeengivento
    reactivatingitwhencircumstancesdeteriorated.
    196. Theotherissueisthatevidencetothepolicebyoneofhisworkcolleaguesatthe
    timeofhistrialin2010allegesthathedeliberatelybroketheconditiononvisiting
    theLiverpoolareainordertoattendconcertsbyhisfavouritebandandEverton
    homefootballmatches. Theriskofcontactwiththevictimsfamilymayhavebeen
    lowbutthelicenceconditionwasclearandtheyhadmadetheirstrongviewsknown
    thattheyexpectedthatsuchvisitswouldbeprevented.Thesevisitsrepresenta
    seriouslapseoftrustbetweenJonVenablesandhisoffendermanagers.The
    breacheshoweveronlycametolightafterhisarrestforthefurtheroffencewhena
    traintickettoLiverpoolwasuncoveredandwhenacolleagueofhisatworkgave
    evidencetothepoliceafterhisarrestin2010oftheirvisitstogether.Venables
    explanationwasthathecouldnotkeepexplainingawaynotgoingonsuchtripsto
    seehisfootballteamandhisfavouriteband.VisitingMerseysidewasafoolishrisk
    forhimtotake,andwouldcertainlyhaveledtorecall,andheknewthat. However
    nodoubthavinggotawaywithitonceheprobablyfelthecouldcontinuetoconceal
    furthervisitsfromhisoffendermanagers.Givendeterminationtoconcealthese
    tripsthereisnopracticalwaythathisprobationsupervisioncouldhaveuncovered
    them.
    197. JonVenablessupervisorsreportedfromtheoutsetthathewas,understandably,
    notfreewithinformationabouthimself. Hefailedonseveraloccasionsbeforethe
    eventsof2008(asnodoubtmanyotheroffendersunderlicencehaveintheirtime)
    torevealtohisoffendermanagerthenatureofhisrelationshipwithgirlfriendsand
    thefulltruthabouthisdebts. Healsodeceivedhisoffendermanagerin2008(and
    possiblyearlier)overhisdruguse(notjustcocainebutincludingadmittingafter
    hisrecalltomephedrone(MeowMeow)use,notatthetimeabannedsubstance).
    Thisbehaviourcallsintoquestionwhetherinotherwayshewasbeingdeviousand
    whetherhisoffendermanagerhadbecometooclosetohimandwastooanxiousto
    placethebestconstructiononhisbehaviourovertheprecedingperiod.Sucha
    perceptionwouldbeunderstandablegiventheemotionalinvestmentinthecaseand
    thelegitimatesenseofprideinwhathardworkbytheprobationserviceovermany
    yearshaddonetoredeemhim. Isuspectthatmostofthoseinvolvedinthecaseat
    alllevelsdevelopedanunconsciousdesiretogivehimthebenefitofthedoubt
    OmandReview 91

    beforehisarrestfortheseriousoffence.Boundariesarehardtokeepinthese
    circumstances. AstudyofthevarioussubmissionstoMinistersonthecaseoverthe
    yearsbeforehisarrestrevealsofficialsdescribingaglasshalffullratherthan
    admittingtoonehalfempty.
    Wereboundariesinsupervisionappropriatelymaintained?
    198. Thetermoffendermanagerisnowtheofficialtitlefortheroleoftheprobation
    officerexercisingsupervisionofthosereleasedunderlicence.InthecaseofJon
    Venables,theroleofsupervisionoflicenceconditionsdidnotincludeaddressingthe
    originaloffendingbehaviour(theBulgermurder)andwasmoreconcernedin
    practicewithtryingtoensurehissurvivalinthecommunityunderanewidentity.
    Thetermoffendermanagerwasnotbroughtintousebythoseconcernedinthis
    caseandsupervisingofficerisusedextensivelyinthefiles.
    199. InJanuary2003,JonVenablesoriginaloffendermanagerretiredfromthecase,
    butrequestedfromMAPPP
    lxvii
    permissiontoretainhisfriendshipwithhimhaving
    workedwithhimfor10years. ThiswasacceptedbytheMAPPPonconditionthat
    hehavenoconnectionwiththeongoingmanagementofthesubject.Inthe
    exceptionalcircumstancesofthecaseIcanseewhytheMAPPPtookthatview,but
    theprofessionaladviceIhavereceivedhasemphasisedthatitisnotadvisableasa
    generalpractice. WhatitmayillustrateisthatthisexperiencedofficerfeltthatJon
    Venablesneededmentoringaswellassupervision,reinforcingthesenseofmissed
    opportunitythatneithertheMAPPPnortheNMBsawtheneedtoreplacehis
    mentorwhenshewithdrewin2004throughillness.
    200. JonVenablesneededagreatdealofsupportashelearnedtoliveinthe
    community. Hehadleft justbeforehis19
    th
    birthdaywithouthaving
    evervisitedacinema,orchosenclothesorgotonabusbyhimself.Hehad
    everythingtolearn.Therewasthroughouttheearlyyearsofhiscasetheevident
    riskthatthesupervisingprobationofficerwouldcometobeseenbyJonVenables,
    andwouldcometoseethemselves,asmoreamentorthanamanagerofthe
    offender. Itwouldhavebeenbetterinhindsighttohavehadaclearerseparationof
    rolesofmentorandofoffendermanager,andwhentheoriginalmentorbecameill,
    bettertohavereplacedherratherthanhavetheoffendermanagershoulder
    (evidentlywillingly)thefullburden.Butitwouldbeunfairtocriticisethose
    concernedsinceatthetimehewasconformingtoallthebestexpectations.Fora
    youthofhisage,educationallevelandsocialbackgroundhisbehaviourduringthe
    OmandReview 92


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    aa
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    firstsixorsoyearsinthecommunitycanonlybedescribedasgood,withhistwo
    lapsesin2008beingbehavioursthatwouldregrettablybeexpectedfroma
    significantnumberofhispeergroup.
    201. Asnotedabove,until2004JonVenableshadamentor,aretiredprobation
    officer,onwhomhecouldleanforadvice.InJanuary2005hisnewoffender
    managerreportedthatshehadbeenonshoppingtripswithJonVenableswhichhad
    beenagoodwayofkeepingupwithhistasteinmusic,videosandcomputergames.
    TheMAPPPinApril2005speculatedthathisoffendermanager,
    sometimesfulfilledanalternativeparentingrole.
    (bythenhewas25yearsold).Theoffendermanagerin2009wassuggesting
    playingbadmintonaswellasdartsinhisflatinordertogetclosertoJonVenables.
    Theseexamplesshowthedepthofprofessionalcommitmentoftheprobation
    officerstogetcloseenoughtoJonVenablestoearntrust(evidentlynotaneasytask)
    andthustobeabletoexerciseeffectiveindirectsupervisionoverallthetimeswhen
    hewasoutoftheirsight.Theconsultantpsychiatrist, whowas
    presentattheMAPPP,pointedoutthatthisclosenesswasimportanttorecognisein
    termsofthestabilityandmaintenanceofthesupervisingrelationship.
    lxviii
    Iconclude
    thatoverall,despitetheobvioustensionsbetweentheroleofoffendermanagerand
    hisneedformentoring,theoffendermanagersandtheirsupervisorsbehavedin
    waysappropriatetotheexceptionalnatureofthetasktheyhadbeengiven.
    Wouldahigherdegreeofintrusivemonitoringandsurveillancehavebeen
    justified?
    202. Likeotherpeoplehisage,JonVenableshadanextensivenetworkofonline
    contactsusingavarietyofonlineaccountsandnames.
    . Uptohis
    offencebeingdiscovered,therewerenowarningsignsthatwouldhaveledthe
    MAPPPtoconsiderwhetheralicenceconditioncomparabletothatappliedto
    certainclassesofsexoffenderstopermitthemonitoringofcomputerusagewould
    havebeenjustified.Itmustbeopentodoubtwhetherlegallysuchacondition
    wouldinanycasebesustainableasproportionateifchallengedgivenhislowrisk
    assessment.
    OmandReview 93

    203. Technologyoftagginginthefuturecouldneverthelessallowtrackingand
    satellitegeolocationbyGPSunderalicenceconditionincaseswheretheassessed
    riskofharmjustifiedsuchintrusion. SuchasystemisundertrialintheNHSfor
    casesofsexualoffendersclassedashavingseverepersonalitydisorderswhenthey
    areallowedoutofsecurehospitalsforvisitsintothecommunity. Thatwould
    probablynothavebeenthecaseforJonVenablesuptothepointofhisserious
    furtheroffence,butforthefuturewherespecificgeographicalexclusionsare
    specifiedinaliferlicenceitmaybepossibletohaveautomaticwarningsgiventothe
    offendermanagertobecheckedshouldthesubjectenteraprohibitedregionor
    geographicalarea.PPMHGroupneedstokeepabreastofdevelopmentsinsuch
    applications.
    Theimplicationsofidentitychange
    204. In1993attheconclusionoftheoriginaltrialofRobertThompsonandJon
    Venablesthejudgeruledthattheirnamesshouldbereleasedbecauseofthenature
    ofthemurderandthepublicreactiontoit. InthisreviewIhavehighlightedthe
    subsequentdifficultiesthatthisdecisioncausedforthecriminaljusticesystemand
    forJonVenables. Identitychangewasneverastraightforwardorreliableoption,
    andIbelieveitwillbecomeincreasinglyhardinfuturetopreventnewidentities
    beinglinkedbypatientinvestigationbacktobirthidentitygiventhegrowthinthe
    numberandcomplexityofelectronicdatabasesholdinginformationabout
    individuals,notleastsocialnetworkingsites.ThisisatrendthattheCourtswill
    needtobearinmindinfuturecasesofextremenotorietyinseekingtoassess
    whethertheapplicationoftheopenjusticeprinciple
    5
    wouldinpracticefrustrateor
    renderimpracticabletheadministrationofjustice. Theendsofjusticemaybebest
    servedinsomeexceptionalcasesbykeepingconfidentialthenameoftheoffender,
    justifyingadeparturefromtheprincipleofopenjustice.
    Theplanningandmanagementoflongtermissues
    205. Formostlifersthatgostraightitisusuallypossibleafter46yearsfor
    applicationtobemadeforlicenceconditionstobeliftedorsignificantlyrelaxedin
    5
    AttorneyGeneralvLevellerMagazineLtd[1979]
    OmandReview 94


    termsoffrequencyofsupervision.InthecaseofJonVenables(aswithRobert
    ThompsonandMaryBell)therequirementforsupervisionofthelifelicenceis
    expectedtobeliterallyforlife.
    206. Aboveall,suchlifetimesupervisiondemandsthatthereisanofficialgroup
    familiarwiththecasethatcanstandbackandtakeastrategicviewandthus
    wheneverpossibleanticipatethedifficultiestobeexpected.Iconcludethatthe
    NMBwasonlypartiallysuccessfulinthatregard.In2007/08aspartof
    normalisationofthemanagementofthecaseandceasingtohaveaproactiverole
    itselftheNMBshouldhavemadeitexplicitthatitwashenceforththedutyofthe
    MAPPPtotakestrategicownershipoflongtermplanningofthecase.Additionally,
    lookingaheadandgiventhepoliticalsalienceoftheircases,Iconsiderthatitwould
    begoodpracticefortheNMBtoorganiseperiodic(say,biennial)strategicreviewsof
    theirhighprofilecases.Itwouldalsobeadvisableforamemorandumtobedrawn
    upforeachNMBcasesettingdowntherelativerolesofNMBandrelevantlocal
    MAPPP.
    Finalreflectionswithhindsight
    207. InthisinquiryIhaveidentifiedanumberofpotentialopportunitiesthatmight
    haveopenedhadcircumstancesbeendifferentandthatmighthavemadetheriskof
    afurtherseriousoffencelesslikely,althoughthatcanonlybeamatterofjudgment.
    Thesearenotinmyviewmattersforcriticismoftheofficialsinvolvedsincethey
    wereactingingoodfaithatthetimeinthelightoftheinformationandassessment
    oftherisksinthecasethenavailabletothem.
    208. Forexample,neithertheNMBnortheMAPPPappeartohaverequested
    proactivestepstobetakenwhenitwasreportedthathewasstrugglingin2004
    withhisCollegecourse,suchasreassessingwhetheritwassensibleforhimtoputin
    somanyhoursat whilststillattemptingtoattendfulltime
    atcollege,orsuggestingthathesoughttutorialhelpwithhisstudiesorsawa
    studentcounsellor.AtthetimethisfailuretoacquireworkrelatedskillsbyJon
    Venableswouldnothavebeenseenassosignificantasitmightlaterappear.
    209. Morecouldhavebeendonetooatanearlierstagehadhebeenmorecooperative
    togethimintoajobwithbetterprospectsandrekindlehisoriginaloptimismabout
    acareer.TheHomeOfficecould,forexamplehaveapproachednationalemployers
    (suchasBritishTelecomorBAESystems)ataseniorleveltoseeifalocalpositionas
    OmandReview 95

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    anapprenticetechniciancouldhavebeenfound.Byleavinghimto,
    atlowwagesforthe
    restofhislife,whencombinedwithhisgrowingrealisationthatcloseintimate
    relationshipswerefraughtwithhazardforhissecurityandpeaceofmindandthat
    hisfuturewouldbeasaloner,thescenewassetforsignificantpsychologicalstress.
    Thatinturnwaslikelytoleadtoanincreasedlikelihoodofoffendingbehaviourof
    somesort. Prof. originalassessmentsfortheParoleBoardin1996and
    1998wellbeforehisreleaseareprescient:Thechancesofsuccessfulrehabilitation
    areveryhigh,but...thatjudgementisstrictlycontingentonfurtherrehabilitationand
    onhisidentitybeingprotected. Ifeitherisnotpossible,theriskswouldinevitablybe
    substantiallygreaternotforfurtherviolenceofthekindsimilartotheoriginalcrime,
    butratherofsocialmaladaptationandseriouspsychologicaldifficulties.
    210. AlthoughtheNMBwereawareafter2006thattheprospectsforthecasewere
    notasencouragingasintheearlyyearsafterreleaseandthatVenableswasgetting
    stuckinanisolatedrut,theyputthisdowntoadelayedrebelliousperiodandsome
    lazinessonVenablespart.Hisbehaviourwasunderstandablyseenas
    unexceptionableforsomeoneofhiseducationalandsocialbackground.TheNMB
    didnotthereforepresstheMAPPPtobeproactiveonissuessuchasemployment
    andclinicalsupportanddidnotprovidelongtermthinkingaboutthedirectionthe
    casewastaking. Isensereluctanceamongofficialstohaveriskedbeingseento
    featherbedJonVenablesgiventhecontinuingmediaobsessionwiththecase.They
    wouldnotwanttohavebeenthoughtofasprivilegingthislowriskcaseovermany
    otherhighrisklifercaseswheremajordangerstothepublicexistedfromtheoutset.
    Actionshaveconsequencesasoneofficialsaid,andifJonVenablescontinuedhis
    humdrumlifestyleand employmentthatwasseenashis
    choice; NMBmembersnodoubtreckonedhewasluckycomparedwithmanyother
    youngmenreleasedonlicenceinthatatleasthehadbeenabletofindandhold
    downasteadyifunremunerativejob.
    211. ProactivestepsbytheNMBinrespectofemploymentandcounselingwould
    havetakenthemoutsidethenormalboundariesofoffendermanagementandcould
    havebeencriticisedasprivilegingJonVenablesovermanyothercasesunder
    probationsupervisionofindividualswith(ononeview)abetterclaimforsocietys
    support(certainlythatwouldhavebeenhowtheredtopmediawouldhaveseenit).
    Butthiswasfromtheoutsetahighlyexceptionalcase;theNMBwillonlyeverhave
    todealwithatinynumberofsuchcaseswherethepenaltyforfailureissohigh.The
    lessonforNMBofficialsinthefutureisthattheyneedtofollowthrough
    OmandReview 96

    imaginativelyinbeingpreparedtoconsiderexceptionalstepswhennecessaryfor
    theircases.
    212. Theresourcesexpendedonthiscasebythecriminaljusticesystemare
    impossibletoestimatebutarealreadyveryconsiderable,beingordersofmagnitude
    greaterthanforthemajorityofseriousoffendersbeingsupervisedonlicence.That
    expenditureofhighlyexperiencedeffort,aswellasmoney,wasrightlyseenasan
    investmentforthelongterm,giventheprospectofactivelifetimepublicinterest
    drivenbythenotorietyofthecase. Itmaystillbepossibletoarriveatasatisfactory
    longtermoutcome. OnlytimewilltellhowJonVenablesrespondstorecallandhis
    custodialsentence,andwhetherheispreparedtoworkonhisissues.Thethreatto
    himwillremain,andthusidentityissueswillneedtobefacedanew.Itwill
    undoubtedlybeharderfromhereon.
    SirDavidOmandGCB
    London
    November2010
    OmandReview 97

    OmandReview 98

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    AnnexA
    SummaryofConclusionsandRecommendations
    i. ItwasnecessarytocreateacompletenewidentityforJon
    Venables ,giventhepoliceassessmentofthe
    levelofthreat.(para73)
    ii. TheneedtohelpprotectJonVenablesthroughtheconstructionof
    anewidentityforhim
    hadnotbeenproperlyanticipatedbeforethedecisionbytheLord
    ChiefJusticeanditisevidentfromthefilesandoralevidencethat
    therewassomescramblingtocatchup.Nevertheless,that
    exercisewascarriedoutprofessionally.Withhindsightwecansee
    thattheHomeOfficeinitsinitialconsiderationofthecasedidnot
    fullyanticipatetherangeofproblemsthatwouldemergelater
    flowingfromtryingtoestablishayoungpersonwithsucha
    criminalhistoryandnotorietyunderanewidentity.(para118)
    iii. Itwastherightjudgmenttohaveaninterimperiodafterrelease,
    giventhedoubletaskofhelpingJonVenableslearntoliveinthe
    communityandtodosounderanewidentity.(para73)
    iv. TherewouldhavebeensomelongtermadvantageshadJon
    Venables
    availableatthetime.Theendresult,however,wasthathedidnot
    havetheidealcleanstart.(para55)
    v. Theinitialpoliceeffortonhisprotectionandidentityfundedby
    centralsubsidywasbothnecessaryandproperinthepublic
    interestintheveryexceptionalcircumstancesofthiscasesince
    withoutitsatisfactorysecurityarrangementswouldhavenotbeen
    madeintime.(para74)
    vi. Inordertoreducetheriskofidentitycompromiseitwas
    appropriatethatonlyaverysmallnumberofnamedindividualsin
    theHomeOfficeandthepoliceandprobationservicewereaware
    ofthenewidentityandwhereaboutsofJonVenables.Securitywas
    generallywellmanagedandtherecommendationsfromareview
    byanexpertfromtheCabinetOfficewereimplemented.(paras39,
    59,68)
    vii.
    OmandReview 99

    viii. JonVenableswasintheendaswellpreparedashecouldhave
    beeninthecircumstancesforhislifeinthecommunity.Itisahuge
    tributetothecaretakenby andtheprobation
    andpoliceofficersconcernedthat,byMarch2002,JonVenables
    wasjudgedcapableofsurvivingandlivingonhisowninthe
    community.Cooperationandinformationsharingbetweenthe
    policeforcesandprobationsservicesconcernedhasbeen
    excellent.(para118123)
    ix. TheassessmentsandworkdoneduringJonVenablestimeat
    Redbankwerenotsharedwithhissubsequentsupervisorsto
    informtheirunderstandingofthesubject.Thereportsseenbythe
    ParoleBoard,includingtheseveralpsychiatricevaluations,donot,
    however,containanyindication,evenindirectly,thattherewasa
    sexualmotiveonthepartofJonVenablesincommittingthe
    originaloffenceorotherwarningthatmighthavealertedhis
    supervisorstopotentialabnormalsexualinterests.(para102,104)
    x. TherewasnoreasonfortheNMBandMAPPPtochallengethe
    professionaladvicetheywereconsistentlygiventhattherewould
    benovalueafter2003inclinicalpsychiatricworkwithJon
    Venablesdesignedtoaddresshisoriginaloffence.(para94)
    xi. Theriskofminoroffendingbehaviourcommontothatmaleage
    groupwasrecognisedbyhisoffendermanagersfromthemoment
    ofhisreleaseonlicence.Thatriskwasappropriatelymanaged.
    (para178)
    xii. Allconcernedinthesupervisionofthecasewereinstructed
    specificallythatanybehaviourthatconstitutedacriminaloffence
    ifdiscoveredbyanyagencymustbereportedimmediatelytothe
    projectmanagerforthecase.Weektoweekmanagementofthe
    casebythe probationservicewaswellresourcedand
    professional.Handoverswerewellplannedandmanaged,
    includingliaisonwiththepolice.(paras36,37,45)
    xiii. Therightobjectivesweresetforthoseundertakingsupervision
    andthatallconcernedwereawareoftheprimacytobegivento
    safeguardingthepublic.Thoseinvolvedinhissupervisionkeptthe
    licenceconditionsinmindthroughoutintermsoftheobjectiveof
    safeguardingthepublic.(para193)
    xiv. Overall,despitetheobvioustensionsbetweentheroleofoffender
    managerandhisneedformentoring,theoffendermanagersand
    theirsupervisorsbehavedinwaysappropriatetotheexceptional
    natureofthetasktheyhadbeengiven.(para201)
    OmandReview 100

    xv. Arrangementsforthehandoverofoffendermanagers,including
    handovernotes,appearfromthefiletohavebeenexcellentand
    thetransitionwasmadesmoothly.(para128)
    xvi. Afterrelease,JonVenableswaseffectivelyandproperlysupervised
    atanappropriatelevelandfrequencyofcontact,havingregardto
    theparticularcircumstancesandchallengesofhiscase.Risk
    assessmentswereproperlyformulatedandunderstoodbythose
    involvedinhissupervision.TheprobationservicecontactwithJon
    Venablesafterreleasemorethanmettheminimumnational
    quantitativestandardsforTier4underOASysbecauseofthe
    exceptionalamountofsupervisionappliedandthenatureofthe
    managementarrangementsdescribedinSection2.Theexceptional
    circumstancesofthesecasesdidnotreallyfittheOASysstructure
    althoughOASysformsweredulycompletedatkeypointsafterhis
    release. (para177)
    xvii. Nosuitableindividualwasidentifiedafter2004toestablishalong
    termmentoringarrangementthatmighthavehelpedhimcope
    betterwiththestrainsoflivingunderhischangedidentity,his
    probleminbalancingstudyandemployment,andhisissueswith
    establishinganormallifestyleforayoungsinglemanofhisage
    andsocialbackground. Suchsupportcouldalsohaveeasedthe
    loadofhisoffendermanagerinmaintainingtheappropriate
    boundarybetweenoffendermanagerandmentor.(para97,199)
    xviii. ThetwoepisodesofoffendingbehaviourbyJonVenablesin2008
    wereappropriatelyconsideredbythelocalMAPPPandbythe
    JusticeMinistry,includingbytheJusticeSecretaryhimself.(para
    177). Onthebasisoftheinformationavailableatthetimethere
    wasnocaseforhisrecalltocustodyonthebasisofhisoffencesin
    2008. Theactionstakenbywayofaformalwarningandthenby
    additionallicenceconditionsandmuchmoreintensivesupervision
    inrelationtohisdebts,andhisdrugsandalcoholuse,were
    appropriateandproportionate.TheriskassessmentofJon
    Venablesinrelationtoantisocialbehaviourwasproperly
    increasedinthelightoftheevidencethatcametolightwithhis
    offendingbehaviourin2008.(para180)
    xix. Heconcealedfromhisoffendermanagersthathehadbrokenthe
    conditionsofhislicencebyvisitingMerseysideandliedtothem
    whenaskedabouthismovements.Theywerenotawarebefore
    hisarrestin2010ofhisbreachofhislicenceinthatrespect. He
    wouldhavebeenrecalledifthathadbeenknown.Hisoffender
    managersshouldnotbecriticisedforfailingtodetectthis
    deception.(para186)
    OmandReview 101

    xx. Fromthefile,theNMBandtheMAPPPhadinMarch2009allthe
    crucialelementsofthecaseinfrontofthemintermsof
    consideringthelongertermoutlook,especiallyifhecontinuedina
    lowpaidjobwithnoprospects,livingastressfulassumedlife
    underanewidentitywithnoambitionsandlittleornoprospectof
    satisfactoryintimaterelationships.Thefocusofdiscussionwas,
    however,oncontroloftheoffendingbehaviour,continued
    protectionofhisidentityandgettinghimtoaccepthis
    circumstancesratherthananymorestrategicassessmentofthe
    circumstancesthemselvesandtheeffecttheyseemedtobehaving
    onJonVenablesemotionalstate. (para167)
    xxi. ProbationservicereportsshowthatJonVenablesfearofexposure
    wasreal,andcontributedalongwithhissecretivenessandrather
    stolidtemperamenttohisreluctancetotakestepstoimprovehis
    prospects. (para178)
    xxii. Ifhehadbeenpreparedtocooperatethenmorecouldhavebeen
    donetooatanearlierstagetotrytogethimintoajobwithbetter
    prospectsandrekindlehisoriginaloptimismaboutacareer.(para
    209)
    xxiii. NMBofficialswerejustifiedinconcludingtherewasnoobligation
    todisclosehiscriminalrecordtoprospectiveemployersgivenhis
    perceivedlowlevelofrisk;andsinceitwasamatteraffectingthe
    operationalpolicyoftheServicethiswasajudgmentthatwas
    appropriatefortheHeadoftheServicetomake.ButMinisters
    wereentitledtoknowofthepolicybeingfollowedbytheir
    officials. (paras63)
    xxiv. Withthe2006/07movetonormalisethecasetheNMBwithdrew
    fromaquarterlymeetingcycleandinsteadagreedtobeavailable
    tomeetwhennecessaryforconsiderationofindividualissueswith
    politicalornationalimplications.Thedecisiontonormalisewas
    justifiedintermsofthetransferofprobationandpolicing
    responsibilitytotheareainwhichJonVenableswasnowwell
    settled.Thetransferwashandledwell.ButtheNMBshouldatthat
    pointhavemadeitexplicitthatitwaslookingtotheMAPPPtotake
    strategicownershipoflongtermplanningofthecaseandtoreport
    periodicallytotheNMBonlongertermprospects.(para179)
    xxv. TheapproachtakenbytheNMBandMAPPPin2003tochoseto
    askaconsultantadultpsychiatristtoadvisetheMAPPPbutnotto
    seeJonVenablesforthepurposeofriskassessmentorclinical
    supervisionwasjustifiedbytheoptimisticassessmentsthenbeing
    madeofthecase. Withhindsight,itcouldhavebeenofvalueto
    provideforcontinuingpsychiatricsupervisiononthelines
    recommendedbytheadolescentpsychiatristwhohadbeen
    workingwithhim. Therewasnoclinicalpsychiatristpresentto
    OmandReview 102

    adviseatanyoftheNMBmeetingsafter2005,norwastheneedfor
    suchadviceraiseduntilafterthesecondoffencein2008.(para
    95)
    xxvi. Oncethelicenceconditiononpsychiatricsupervisionwasdormant
    nosustainedconsiderationseemstohavebeengivento
    reintroducingitwhencircumstancesdeteriorated. Hewas
    assessedstillaslowriskandgiventhehistoryofthecaseandthe
    effortputinbytheprobationserviceanddepartmentalofficialsit
    isunderstandablethatofficialsshouldbeoptimistic,andperhaps
    unconsciouslyinclinedtogivehimthebenefitofthedoubt.The
    unfoldingofeventsinthecaseshouldneverthelesshaveledto
    additionalMAPPPandNMBconsiderationofwhetherfurther
    clinicalpsychotherapeuticoratcounsellingsupportwasneeded,
    notwithstandingtheresistanceJonVenableshadpreviouslyshown
    toadmittinganeedforhelp(seealsobelow).(para98)
    xxvii. TheMAPPPdidarrange(aftersomedelay)forapsychiatric
    assessmenttobecarriedoutonJonVenablesafterhisarrestfor
    cocainepossession. Withhindsight,itisdifficultnottoconclude
    thathewasputtingonanactforthedoctortofoboffintrusive
    questioning. Alsowiththebenefitofhindsightwecanseethatit
    wouldhavebeenbetterifgreatereffortshadbeenmadetotryto
    gethimtoacceptsomeformoftherapeuticcounsellingwitha
    trustedprofessionalwhocouldknowhistrueidentityandbe
    briefedontheneedtosecureinformationandcasenotes
    appropriately.Hadhecooperated(whichofcoursehemightnot
    have)thatmightwellhavereducedtheriskofhiscontinuing
    descentintotheuseofextremepornography,althoughtherecan
    benocertaintyofthat.(para99)
    xxviii. Overall,in2008and2009withthecaseappearingtobeona
    downwardpaththerecouldhavebeenamoreactiveattitudeby
    theMAPPPandtheNMBtotheprovisionofprofessionalclinical
    support,andalesscautiousattitudetofundingtakenonthepartof
    theNMB. Thesumsinvolvedwouldhavebeenasmallfractionof
    thetotaleffortalreadyexpendedonthecase,letalonethecostof
    recallifitgotthatfar.Thatisnottoimplyanycertaintythatthe
    furtheroffencewouldtherebyhavebeenavoided,butonacaseof
    thissignificanceattheleastthemattershouldhavebeenraised
    withNMBmembersbythePPUrepresentativeattheMAPPPandif
    necessaryadvicefromtheNationalProbationDirectorsought.
    (para100)
    xxix. Placingtheresponsibilityforchildprotectionneedsonthe
    exceptionalMAPPPandNMBarrangementswasareasonable
    judgmentofthebalanceofriskinthelightofthecontinuing
    assessmentthatJonVenablesposedalowriskofharmtoothers.
    (para109)
    OmandReview 103


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    xxx. ThelicencearrangementsforJonVenablesadequatelycoveredthe
    needforhissupervisertobeabletoregulateifnecessaryhis
    contactwithchildrengiventhenatureofhisindexoffence.Thereis
    ampleevidencethatthroughouthissupervisiontherewas
    attentiongivenbyalltheofficialsconcernedtochildprotectionas
    apotentialissue,notwithstandingtheconsistentassessmentof
    lowriskofharminthatrespect. (para110)
    xxxi. TheNMBandtheMAPPPsthatmanagedthecasewere,intheir
    discussionsofthecase,fullymindfulofthechildprotectionissues
    involvedinsupervisionofJonVenablesandtookgreatcareto
    developlegallysoundpolicyondisclosureofidentityinrelationto
    intimaterelationshipsthatmightinvolvecontactwithchildren.
    (para110)
    xxxii. JonVenableshimselfwasclearlyawarethatsuchwasthenotoriety
    ofhiscasehehadtobeverycarefulinhispersonalrelationshipsto
    staywithintherelevantlicenceconditionsonaccesstochildren.
    (para107) Afterhisarrestforhisfurtherseriousoffenceitwas
    discoveredthatshortlybeforehehadposedaswomanwitha
    youngchildinordertohaveconversationswithpaedophileson
    networkingsites,butIdonotseehowanyproportionate
    supervisionregimeforalowriskoffendercouldhaveguaranteed
    thatwouldcometolight. (paras111)
    xxxiii. Theplansthathadbeenpreparedagainstthepossibilityofrecall
    workedsmoothlywhenimplementedin2010afterhisarrest.I
    commendthepolice,probationserviceandMinistryofJustice
    officialsonactingswiftlytoensurerecallwithoutdangertothe
    subject. Thisepisodealsoillustratedtheexcellentlevelof
    cooperativeworkingbetweentheYShirepoliceandtheYShire
    probationservice.(para47)
    xxxiv. Likeotherpeoplehisage,JonVenableshadanextensivenetwork
    ofonlinecontactsusingavarietyofonlineaccountsandnames.
    Uptohisoffencebeingdiscovered,therewereno
    warningsignsthatwouldhaveledtheMAPPPtoconsiderwhether
    alicenceconditioncomparabletothatappliedtocertainclassesof
    sexoffenderstopermitthemonitoringofcomputerusagewould
    havebeenjustified.Itmustbeopentodoubtwhetherlegallysuch
    aconditionwouldinanycasebesustainableasproportionateif
    challengedgivenhislowriskassessment.(para202)
    OmandReview 104

    xxxv. FurtherclinicalassessmentofJonVenableswillbeneededto
    gaugeinwhatwayshisprogressiveuseofinternetsitesand
    pornography,latterlywithextremepaedophileimages,relatedto
    hisdeterioratingemotionalstateinrelationtohissenseofidentity
    andselfworth.(para189)
    xxxvi. Ministerswereproperlyinvolvedinkeydecisionsonthecasefor
    whichtheywereaccountable.Ministerswerekeptwellinformed
    onthepublicprofileofthecasebutlesssoonthesubstance.(para
    41)
    xxxvii.ItwasrighttosetuptheNMBtoprovidestrategicdirectiontothe
    MAPPPoncasesofextremenotorietyandcomplexityinwhich
    nationalissuesareengaged.Insuchcasesthisarrangementcan
    providebalancebetweenlocalmanagementclosetothedaytoday
    experienceofthecaseandessentialnationaldirectiononmajor
    political,legalandpolicyissues.Thereisalsoaroleforabody
    suchastheNMBtoprovideaconstructivechallengetotheMAPPP
    intheinterestsofsecuringthebestlongtermoutcomes.(para42)
    xxxviii.ThemembershipoftheNMBhasforthemostpartreflectedthe
    differentinterestsintheircases,includingthesecurityofthe
    subject,identity,legaladviceandchildprotection,recognisingthat
    somemembershaveneededtoattendonlywhentheirinterests
    wereengaged. (para43)
    xxxix. ThedecisionoftheNMBearlyin2007onlytomeetwhenneeded
    ontheVenablescasewasnotnecessarilythewrongone,giventhe
    risktothepublicremainedlow,buttheNMBshouldatthatpoint
    havemadeitexplicitthatitwaslookingtotherelevantMAPPPto
    takestrategicownershipoflongtermplanningofthecaseandto
    reportperiodicallytotheNMBonlongertermprospectssothat
    thesecouldbediscussedintheNMB(para206).
    OmandReview 105

    OmandReview 106

    Recommendations
    i. ThetermsofreferenceoftheNMBshouldbereviewedandreissued,
    takingintoaccountseparateconsiderationbeinggivenintheMoJto
    reorganisationofarrangementsformanagementofspecialcases
    requiringwitnessoroffenderprotection.Thereisacaseforchanging
    thetitleoftheNMBsinceitdoesnotmanagecasesinthewayin
    whichitwasoriginallyenvisagedthatitwouldhavetowhenitwasset
    up.(para43)
    ii. Thetermsofreferenceshouldbebasedonacleardefinitionofthe
    respectiveaccountabilityoftheSecretaryofState,actingthroughhis
    officials,andtheprobationserviceortrustgivenoperational
    responsibilityforsupervision,andwhereresponsibilityliesforthe
    strategicownershipandmanagementofacase,involvinglongterm
    reviewandplanning.(para43)
    iii. IftheChairoftheNMBdoesnothaverecentoperationalprobation
    experiencethenthechairneedstobesupportedbyaseniormember
    ofPPMHGwithsuchbackground.(para28)
    iv. TheNMBshouldorganiseperiodicstrategicreviewsofeachcasewith
    therelevantMAPPPperiodically,probablybiennially.Itwouldalsobe
    goodpracticetohaveaspecificbriefingonthesecasesonchangeof
    theresponsibleSecretaryofState.Anannualstocktakewiththe
    SecretaryofStateoraMinisterontheverysmallnumberofNMB
    caseswouldalsohelpkeepfocus.(para42)
    v. TheNMBshouldensurethatitcancallattheappropriatestageon
    nationalexpertsonrelevantissuessuchasthoserequiringpsychiatric
    judgments. Whereidentitychangeisinvolvedaspecialistinprotected
    offendermanagementshouldbeastandingmemberoftheNMB.(para
    43)
    vi. AllthelearningfromNMBcases,includingthepracticalimplications
    forprobationsupervisionofthecomplexsecurityandpolice
    protectionarrangementstoenabletheindividualtoliveunderanew
    identity,shouldbecapturedforthefuturetohelpsuccessors.(para
    35)
    vii. ForthesmallnumberofNMBcases,giventheircomplexity,identity
    protectionstressesandthenatureoftheindexoffencescommitted,
    NOMSshouldarrangeforoffendermanagerstobeofferedand
    encouragedtoundertakeclinicalsupervision.(para46)
    viii. Theoffendermanagersshouldalsoreceiveashortburstoftraining
    andindoctrinationintowhatwillbeinvolvedandthestressestobe
    expectedonthesubject(andattimesonthemselves)andforthistobe
    renewedasthesupervisingpersonnelchange.(para45)
    OmandReview 107

    ix. Toremaineffectivecontingencyplansneedtoberefreshedand
    periodicallytestedwithallthoseorganisationsthatmayneedtobe
    involved.(paras38and47)
    x. Anewcodeworddrawnfromthenationallistshouldbereissuedwith
    basicsecurityinstructionsonthecase.(para48)
    xi. Additionalstepsneedtobetakentoensurecollectivememorywhen
    forsecurityreasonsacaseistightlyheldunderneedtoknow
    principleswithduplicaterecordsnotbeingheldlocallyorwhere
    computerisedinformationsystemscannotbefullyused.Filesor
    precedentbooksshouldbekeptinawaythatcaninformthehandling
    ofsuchcases,andthoseinvolvedshouldbeencouragedtomake
    referencetothem.(Para49)
    xii. TheNMBshouldcontinuetohaveaccesstoabudgettocoverthe
    expectedextraordinarycostsoftheirsmallnumberofcases,suchas
    onaccommodationand,asmighthavebeenthecase,forclinical
    supportandtrainingorexpensesassociatedwithnewemployment.
    (para75)
    xiii. Wherelifersarebeingsupervisedinthecommunityunderchanged
    identitiesbutmanaged,forpracticalreasons,fromoutsidetheareain
    whichtheyarelivingthentheChiefOfficersofPoliceandProbationin
    theareashouldalwaysbeinformed,aswasdoneintheVenablescase,
    andwheretherearepotentialchildprotectionissues,theDirectorof
    SocialServicesshouldalsobeinformed.Suchnotificationsshouldbe
    carriedoutundercomparablesecurityproceduresasrecommended
    intheCabinetOfficeinspectionofthearrangementsfortheVenables
    case. (para76)
    OmandReview 108

    xiv. TheMinistryofJusticeshoulddocumentcarefullythedisclosure
    issuesthataroseinthiscase,includingthelegaladviceobtained,and
    ensurethattherecordisreadilyavailabletoinformanyfuture
    relevantcases.(para77)
    xv. InthelightofthelegalrequirementrelatingtoCRBchecksthePPMH
    GroupintheMinistryofJusticeshoulddeveloparelationshipwiththe
    CorporateAllianceEmployersGroupatseniorlevelinorderto
    establishgroundrulesforassistingwithNMBorothercomplexcases
    shouldneedarise.(para78)
    xvi. Itwouldbegoodpracticetohaveanexpertreviewoftheintegrityof
    securityarrangementsinlongtermcases,sayafter5years,inorderto
    pickupanydeficienciesthatmighthavedevelopedinthesubjects
    legendandwhetherbehaviourshaddevelopedthatriskedgivingthe
    gameaway.(para73)
    xvii. Considerationshouldbegiventorationalisingidentitychange
    expertise(theprocess,traininginvolved,anddocumentation)asa
    highlyspecialistactivity,spreadoveranumberoforganisations
    includingtheMinistryofJusticeandtheMetropolitanPolicesothat
    policeservicesandotheragencieshaveasinglepointofexpertiseto
    tap.(para79)
    xviii. Abroaderspectrumofdrugtestingshouldbeconsideredincases
    whereoffendermanagersneedtosatisfythemselvesthatbehaviours
    likelytoleadtofurtheroffendingarebeingsatisfactorilycontrolled.
    (para182)
    OmandReview 109

    OmandReview 110

    ListofAbbreviations
    ACO AssistantChiefOfficer
    ACPO AssociationofChiefPoliceOfficers
    AG AttorneyGeneral
    CRB CriminalRecordsBureau
    DfES DepartmentforEducation
    HO HomeOffice
    LAB LegalAdvisersBranch
    MAPPA MultiAgencyPublicProtectionArrangements
    MAPPP MultiAgencyPublicProtectionPanel
    MoJ MinistryofJustice
    OM OffenderManager
    PNC PoliceNationalComputer
    PPMHG PublicProtectionandMentalHealthGroup
    PPU PublicProtectionUnit
    RoH Riskofharm
    SSI SocialSecurityInspectorate
    SPOM Specialistinprotectedoffendermanagement
    XShire ProbationServiceresponsibleinitiallyforthesupervisionofthecase
    OmandReview 111

    OmandReview 112

    i
    OR3121Cand123C
    ii
    OR3106Cand97C
    iii
    OR856H,OR352C
    iv
    OR4105D
    v
    OR427D,OR599E
    vi
    OR439D
    vii
    OR210B,OR581E
    viii
    OR574E
    ix
    OR571E
    x
    OR4113D,OR4112D
    xi
    OR548E
    xii
    OR3126C
    xiii
    OR830H,OR1081K,OR853H
    xiv
    OR830H
    xv
    OR837H
    xvi
    OR211B
    xvii
    OR559E
    xviii
    OR559E
    xix
    OR844H
    xx
    OR465D
    xxi
    OR23B
    xxii
    OR47D
    xxiii
    90E
    xxiv
    OR840H
    xxv
    OR585E
    xxvi
    OR1054K
    xxvii
    OR344C
    xxviii
    OR492D,OR33B
    xxix
    OR27B
    xxx
    OR244B
    xxxi
    OR554E,OR550E
    xxxii
    OR567E,OR558E,OR557E
    xxxiii
    OR554E
    xxxiv
    30E
    xxxv
    OR824H
    xxxvi
    OR439D
    xxxvii
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    xli
    OR561E,OR570E
    xlii
    OR568C
    xliii
    OR212B
    xliv
    OR544Epage4
    OmandReview 113

    xlv
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    xlvi
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    xlviii
    OR518E
    xlix
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    liii
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    liv
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    lv
    OR239B
    lvi
    OR244B
    lvii
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    lviii
    lix
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    lx
    46G
    lxi
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    lxii
    OR168F
    lxiii
    165f
    lxiv
    Areferencetothesummingupofthetrialjudgewhodrewattentiontothe
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    lxv
    OR253B
    lxvi
    OR253B
    lxvii
    OR25B
    lxviii
    162f
    OmandReview 114

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