Mediere Vol.iv No.2 2013

7/30/2019 Mediere Vol.iv No.2 2013

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EditorialWe are pleased to launch our first special edition dedicated to mediation and

restorativejustice.Wehad thehonour toreceivesome inedit and currentmaterialsregarding restorative justice inGreatBritain andmediation inRomania andGreatBritain.

We hope that the present issue will inspire and motivate those involved in thisspecialtytofurthersupportthegrowthofthesemethodologies.Wealsohopethatthiseditionwillbeastartingpointfornewapproachesinmediationandrestorativejusticeincountriesthatwishtoadoptoralreadyadoptedmediationandrestorativejusticeaspracticalformsofinterventioninthejusticesystem.

Wearegrateful,asalways,tothosethatcontinuetosupportusandthistime,warmregardstotheauthorswhoansweraffirmativelytoourinvitationtosubmitmaterials

forthisspecialedition:LawrenceKershen,QC,mediatorandfacilitatorandwithabackground as a Chairman of the Restorative Justice Council in UK; Dr. TheoGavrielides, Founder and Director of Independent Academic Research Studies(IARS), Adjunct Professor at the Centre for Restorative Justice of Simon FraserUniversity;Dr.MartinWright,mediatorandfacilitatorandseniorresearchfellowatthe Faculty of Health and Life Sciences, DeMontfort University; Kate Jackson,commercial and communitymediator; Jane Cooksey, commercial and communitymediator; Dr. Ana Blan, mediator and vice-president with Romanian Society ofCriminologyandCriminality;OanaRalucaCiceu,juristandmasterstudentinsocialworkwithinjusticesystematBabeBolyaiUniversity.

WelaunchthisspecialeditionwithamaterialthatprovokesusaskingWhyRJ?.

The subjects included here relate to the need for an over-arching body that willpromotetheRJagendanationally,theimportanceofeffectivegovernanceinsuchanorganisation,theneedforacommunicationsstrategythatwillinformandinspirealllevels of the community, and the essential role that standards play in promotingeffectiveRJanditsacceptancebythepublic.

The secondmaterial presents some of the possible future directionsof restorativejustice. The paper identifies three opportunities for restorative justice, alerting therestorativejusticemovementthatifitdoesnotrestorethedamagescausedbyitsownpower-interestbattles,itwillsoonbediminished.

Anotherinterestingsubjectpresentsthelinkbetweenprobationandrestorativejustice

inEnglandcontext.Thearticleexaminestheconsultativedocument,acentralfeatureofwhichistoprivatisemuchoftheprobationserviceonthebasisofpaymentbyresults.

Thesecondpartofthisfirstspecialeditionapproachesthemediationphenomenon,fromwhich,wecansay,restorativejusticeemerged.


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The fourth article analyzes two common forms of mediation in Great Britain:commercial and community mediations. Commercial mediations are surelycompanies haggling over money and community mediations involve the personal

issuesofwarringneighbours.However,inrealitytheissuesineachoftenstartwithsomethingasbasicashumanemotion.

The following article continues, from apsychological perspective, toanalyse thesetwoformsofmediation.Astheauthorsays,thedifferencebetweenthesetwoformsofmediationreliesontheapproachesofthepeopletothemediationandtheconcernsthattheybringtoberesolved.Itistheseaspectsthatcreatetheneedforamediatortohavesomedifferentapproaches.

What happens in Romania regarding mediation and restorative justice? Thepenultimatearticlereviewsrestorativejusticein thiscountry,referringtomediation.Starting with 2006 mediation in Romania has a legal support and it can beimplementedforcriminaljusticecasesaswell.

Thelastmaterialofthiseditionanalysesthelegalsupport,wementionedpreviously,whichmakespossibleimplementingmediationinRomania.

We hope this special edition that focus on mediation and restorative justice willarouseyourcuriositytoreadandonlinedebate.

Thankingyouonceagainforyourinterestandsupport,wearewishingyouapleasantreading!

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EditorialSuntemncntaisvaducemnatenieprimulnostrunumrspecialcareabordeaz

temele medierii i justiiei restaurative. Am avut onoarea s primim o serie demateriale inedite i de actualitate privind justiia restaurativ n Marea Britanie imediereanRomniaiMareaBritanie.

Ne dorim ca numrul de fa s inspire,motiveze i spun pe gnduri pe aceispecialitipreocupaideceledousubiectepropuseidecenu,sconstituieunpunctdepornirepentrunoiabordrinmediereijustiierestaurativnricaredorescsadopte sau au adoptat dejamedierea i justiia restaurativca i abordri reale nsistemuldejustiie.

Suntem recunosctori, ca de fiecare dat, celor care n continuare ne susin i deaceastdat,caldemulumiriautorilorcareaudatcursinvitaieinoastredeapublica

nacestnumrspecial:domnulLawrenceKershen,consilierregal(QC),mediatorifacilitatornjustiierestaurativ,ifostpreedintealorganizaieiRestorativeJusticeCouncilnMareaBritanie;Dr.TheoGavrielidesfondator idirectoralorganiza ieiIndependentAcademicResearchStudies(IARS),profesoradjunctncadrulCentruluipentru Justiie Restaurativ al Universitii Simon Fraser din Canada; Dr. MartinWright,mediatorifacilitatornjustiierestaurativicercettorncadrulFacultiidetiineUmane,UniversitateaDeMontfort;Kate Jackson,mediatorcomercial icomunitar; Jane Cooksey, mediator comercial i comunitar; lector univ.dr. AnaBlan, vicepreedinte Societatea Romn de Criminologie i Criminalistic imediator; Oana Raluca Ciceu, jurist i masterand n cadrul Universitii BabeBolyaiCluj-Napocanasistensocialnspaiuljustiiei.

Aadar,lansmaceastediiespecialcuunmaterialcareneprovoacsnentrebmDecejustiierestaurativ?.Temeledinacestarticolfacreferirelanevoiaexisten eiuneiorganizaiideansamblucarespromovezejustiiarestaurativlanivelnaional;importanauneiguvernrieficientencadruluneiasemeneaorganizaii;nevoiauneistrategiidecomunicarecaresinformezeisinspirelatoatenivelelesocietii;rolulesenialpecarestandardeleleaunpromovareauneijusti iirestaurativeeficienteinacceptareaacestuifenomendectrepublicullarg.

Celde-aldoileamaterialprezintctevadintreposibileledirec iideviitoralejusti ieirestaurative.Articolulidentific treioportunitialejustiieirestaurative,alertndcmicarea justiiei restaurative, dac nu restaureaz prejudiciul cauzatprin propriileputeri,vafincurndredus.

Un alt subiect interesant prezintlegtura dintre probaiune i justiie restaurativntr-un context britanic.Articolul examineazdocumentulconsultativalguvernuluibritanic,unelementcentralacruiprivatizareasistemuluideprobaiunestlabazapliinfunciederezultate.


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Ceade-adouaparteaprimeinoastreediiispecialeabordeazfenomenulmedierii,ceadinsnulcreiaputemspunecs-anscutjustiiarestaurativ.

ArticolulpatruanalizeazdouformefoartecomunenMareaBritaniealemedierii:

ceacomercialiceadincomunitate.Mediereacomercial /corporatistsereferlanevoiacompaniilordeaajungelaunconsensprivindbanii,iarmediereacomunitarimplic nevoi personale ale unor vecini nemulumii. n realitate ns cazurile,indiferent dac vorbim de corporaii sau de simpli ceteni, au la baz emoiileumane.

Urmtorul articol continu dintr-o perspectiv psihologic s analizeze cele douforme ale medierii. Diferena dintre cele dou forme de mediere, spune autorul,constnabordareapecareoameniioaufademediereispecificulproblemelorpecareledorestrezolvate.Motivpentrucareunmediatorareabordridiferiteatuncicndacioneazncomunitate,ndisputeledintreveciniiatuncicndarede-afacecuunmediucorporatist.

CesentmplnsnRomniaprivindmediereaijustiiarestaurativ?Penultimularticolfaceotrecerenrevistajustiieirestaurativnaceastar,fcndtrimiterela mediere, cea care din 2006 beneficiaz i de un suport legal i care poate fiimplementatincazuriledinjustiiapenal.

Ultimul material din aceast ediie analizeaz suportul legal de care aminteamadineauriicarefaceposibilimplementareamedieriinRomnia.

Sperm ca aceast ediie special dedicat justiiei restaurative i medierii s vtrezeascinteresulpentrulecturidezbatereonline.

Mulumindu-v ncodat pentru interesul i suportul acordat, v dorim lectur

plcut!

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WhyRJ?

LawrenceKERSHENQC18

The use of mediation and Restorative Justice is developing across the world.Experience of these complementary dispute resolution methods has been built forlongerinsomeculturesandjurisdictionsthaninothers.Thisarticleaimstoidentifysome of the benefits and pitfalls inherent in the adoption of these processes, andRestorativeJusticeinparticular.Thearticleisapersonalandsubjectiveaccountoftheauthorsexperienceinthisfieldoverthepast15orsoyears,bothasmediatorandasaBoardmemberoftheRestorativeJusticeCouncil.Itexaminessomeofthekey learnings to be derived from this experience that might be relevant to thoseinterestedindevelopingthefield.Themainthemesthatemergearetheneedforanover-arching body that will promote the RJ agenda nationally, the importance of

effectivegovernanceinsuchanorganisation,theneedforacommunicationsstrategythatwillinformandinspireall levelsof the community,and theessential rolethatstandardsplayinpromotingeffectiveRJanditsacceptancebythepublic.Ithasbeenwritten in the hope not only that it will encourage and guide otherswho see thepotentialofRJbutmaybeatanearlystageofitsimplementation,andalsotohelpthemtoavoidsomeofthewrongturningsthatcanbetakeninanyprocessoftrialanderror,thatislearningbyexperience.IshouldstartwithadisclaimerIamnoacademic,andnotheoretician.IsharethereactionofamediatorcolleagueandfriendwhowasaskedtomakeapresentationonmediationtoanAustralianuniversity.Attheend,oneoftheprofessorspresentleaned

backinhischairandsaidtoher:WellIcanseeitworksinpracticebutdoesitworkintheory?

Itwasyearsofpracticeasabarrister,atriallawyer,inthecourtsofEnglandandWalesthatgaverisetomyenthusiasmandevenpassionformediationandrestorativepracticewasbornof.Andaftermanyyearstoilingatthecoalfaceofthelaw,bothcivilcommercialandcriminal,IfoundmyselfsayingTherehavetobebetterwaysofdoingthis.

1967, the year I was called to the Bar, was a time of upheaval in society, inconsciousnessandformepersonally.TheVietnamWarwasraging,youngpeoplewere outspoken inchallenging the statusquoand the theme formany was MakeLovenotWar.Formetherewerethechallengesoffindingmyplaceasabarristerandyetremainingtruetoprinciplesofindividualfreedom.

18LawrenceKershen has facilitated commercial andothermediations since hewasaccredited as amediatorin1994,andmorerecentlyasarestorativepractitioner.Withabackgroundasabarrister,hewasaboardmemberandlatterlyChairoftheRestorativeJusticeCouncilfrom2003to2012.


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AsImademywayintheadversariallegalsystem,itshoweditselftobeaparticularlyuseful instrument for identifying issues, and sometimes for extracting the truth extractingalsobeingthedescriptionofadentistpullingteeth.Itseemedhowevera

particularly blunt instrument as a way of resolving differences between people,businesses,organisationsandinstitutions,ofmakingpeacebetweenthem.

Sowhenin1994Idiscoveredthatthewordmediationwasdifferentfrommeditation,or even medication, I was intrigued, then inspired. I had become familiar with aprocesswherethewinnertakesall,orworse,wherethewinnercomesoutofcourtsaying:Callthatjustice!Imayhavewonthecasebutwhatgooddoesittome?.Iwas excited by the possibility that the parties could resolve their differencesthemselves,andevenbetterthattheycouldchoosetheelementsofthatresolution.

In criminal work I often saw the frustration and anxiety that victims experiencedwaitingfor,duringandevenaftertheircourtappearance.AndIsawthattheprocessdidlittletochangeindeedwasnotdesignedtochangetheirexperienceofthecrimeofwhichtheywerevictims.

Thesameappliedtotheperpetrators.Iftheywerepleadingguilty,theyneededtodonomorethananswertotheirnamewhenasked,andGuiltywhenthechargewasput.Thengodownthestairstothecellsandstarttodotheirtimeorcomeoutofcourtandjointheirmatesdownthepubtocelebratetheirluckybreak.

Nothinghadchangedformostofthem,andinnowaydidtheyhavetofaceuptotheconsequencesoftheiractions.FrommediationtoRJ

OnceIhadstartedtolearnmediationskills,itseemedobviousthattheymighthaveaplace in the criminal justice system. Some process was needed to connect theoffenderwiththeeffectofhisactionsonhisvictim,Ifelt.Therehadtobeawayforhisconsciencetobeawakenedontheworkinghypothesisthathehadaconscience.And,asIsawwhenIsatasjudge,thereneededtobesomewayinwhichthevictimcould learn that theperpetratorwas not anevilmonster (usually), but a damaged,vulnerableindividualwhowasmostoftenhimselfavictim.

SowhenIheardProfessorHowardZehrgaveatalkonChangingLenses,itwasaprofoundexperiencetolearnthatRestorativeJusticeexistedandwasaliveandwell,even if only in small pockets across the world. I wanted, indeed felt obliged to

supportitsdevelopmentinanywayIcould,andsoIbecameamemberofwhatwasthentheRestorativeJusticeConsortium.

ItstemptingtothinkthattheRJmovementhasarrivedinEnglandandWales,withlegislation for pre-sentence RJ currently before Parliament, moral and financialsupportfortheRJCfromGovernmentandaplannednationalrollout.Thereis,ofcourse,moreworktobedoneand,nodoubt,moreobstaclestoovercome.However


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withthebenefitofhindsightsomegeneralguidelinesandprinciplesstandoutifRJistoflourish.

ARestorativeJusticebodyAbodythatwillpromotetheRJagendanationallywhateveritsnameseemstobeessential.Whethersuchabodyisacharitablecompany(liketheRJC)orsomeotherorganisation,itneedstobethere,andperceivedasthere,forthegoodofallratherthananysectariangroup.

Inaddition,thesupportofchampionsandinfluentialpatronsseemsinretrospecttohavebeenessential.Anumberofindividualsandorganisationsplayedcrucialrolesinpromoting the understanding and credibility of restorative justice in the UK.Champions like the then Chief Constable of Thames Valley Police, Sir CharlesPollard, academics such asMartinWright, civil servants like Lizzie Nelson, then

HomeOfficeleadonRJ,wereallkeyfigures.Therehavebeenotherkeyeventsandsignpostsalongtheway.Publicconfidenceinstandards of good practice has seemed fundamental in such a delicate area ofendeavour.DevelopingBestPracticeguidance,andmovingfrombeingaConsortiumto a Council was integral to maintaining practice standards. Although it was notalwayspoliticallyeasy,thishasbeenakeycontributiontotheacceptanceofRJ.

Andofcourse influencingthemediahasbeen critical.Themore that journalistsinprint andvisual media understand the effectiveness ofRJ, the better embedded itbecomes.AccountsfromvictimsofthebenefitsandthepositiveeffectsoftheRJprocessareparticularlyvaluable.

GovernanceAnotherimportantstepwasencouragingRJCBoardmemberstoactandthinkintermsofwhatisbestfortheorganisation,ratherthantheirowngrouporconstituency.ThosewhosupportRJhaveoftenhadtofighttosustaintheirvisionagainstresistanceand cynicism. Sometimes individuals develop what might be called foundermentality,whereifaproposalwasntinlinewiththeirthinking,itshouldntbedoneatall.

Yet what such a Board needs is not individuals who will represent their ownorganisations or constituencies, but who are dedicated to the best interests of the

Council in driving a national agenda. At times, this may throw up crises ofconscience, yet itis vitalfor thehealthy and effectivefunctioningof theRJC.Thechallengeofcourseistomanagethosedifferencesinarestorativeway!Diversityisahugeassettosuchabody,soitisvitaltoreserve(andevenwriteintotheconstitution)someplacesontheboardforthosewhocomenotfromacriminal


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justicebackground,butwithexperienceine.g.business.IthelpsofcourseiftheyaresympathetictoRJ!

Itisalsovaluabletocarryoutaskillsaudit,analysingwhatskillsarerepresentedin

the current make-up of the Board, and what skills are needed; then encouragingapplicants who will fill those skills gaps such as marketing, fundraising,organisationaldevelopmentetc.TherestorativemeetingWhat has inspired me throughout is the experience of transformation that isinherentlypossibleinanysuchmeeting.Individualsmayapproachitfilledwithfear,dislike,orhatred,maybebuiltupoveralongtimeyetcanemergeontheothersidewith affection or compassion or empathy for the other. How different from theoutcomesoftraditionalcriminaljustice.

Religionexhortsustoforgivethosewhowrongus.Thismaybeverydifficulttofindin our hearts whenwe feel ourselves to have been victimised. Yet the processofmeeting and talking offers a path to find that spiritual element. Thus it is notuncommontofindcontrition,regret,compassion,andempathyatsuchameetinge.g.thevictimwhoafteracoupleofhoursofferstohelptheoffenderfindwork.Ortheoffenderwhowantstostayintouchwiththeirvictimtoletthemknowabouttheirprogress. Many other examples abound, as a brief look at the RJC website www.restorativejustice.org.ukwillreveal.ImplementingRJ-theChallengesTo those ofusbrought up in a retributive legal system thenature ofa restorativeprocessisprettyunfamiliar.SoitshouldnotcomeasasurprisethatRJmaybeseenas dangerous and threatening, and its potential for upset should not beunderestimated.AprincipalsourceofresistancetoRJmaywellbetheapprehensionthatstemsfromthisunfamiliarity.

To address this, an approach is necessary that is to borrow Professor JohnBraithwaites description both top down, ground up and middle out. Acommunication strategy must seek endorsement from Government and policymakers.Itneedstoaddresspublicperceptionandconcerns.Anditmustengagewithprofessionals both in criminal justice e.g. judiciary, lawyers, probation, prison

serviceandbusiness,aswellasthosewhoarealreadyworkingintherestorativefield.

A good starting place however is the recognition that the existing system is notservingusthecommunityaswellasitneedsto.Thereisnoneedforamoralpositiononlythepragmaticandsadfactthat intheUKatleast,victimssatisfactionrateswithcriminaljusticearelowandrecidivismishigh.Ithasbeenhelpfultocitethe


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GovernmentsownresearchwhichshowsthatRJoffers85%victimsatisfactionratesanda27%reductioninreoffending.

Otherchallenges are aroundthe sustainabilityof the bodypromotingRJ.Basically

this means money. Funding crises can sap energy that should be going intodevelopmentwork.Toaverttheseandtheperennialsearchformoney,sustainablesources of funding have to be found. These may be from membership fees andpractitionerregistration,fromgrant-makingtrustsandbusinesssponsorship.Itmaybethatconsultancyoffersarevenuestream,althoughsuchfund-raisingopportunitiesare limited. Ideally committed funding from public bodies e.g. theEU, the State,givesthegreatestmeasureofsustainabilitythoughsuchfundingcanbringwithitparticularchallengesofitsown.StandardsinRJ

Thereareofcourseotherandmorespecificquestionsofpolicyandpracticethathaveto be considered e.g. confidentiality, voluntary nature of participation and so on.However the most important function that a national body can offer I believe isqualityassuranceforthepublic.Attheheartofitistheneedforasafeprocess,wherethoseinvolvedandthecommunityatlargecanfeelconfidentthatattheveryleast,nofurtherharmwillbedone,andatbesttheprocessismanagedwithintegrityinawaythatissecureandeffective.Stepsthathavebeentakentothisendinclude:

- drawingupBestPracticeGuidance

-

anationalPractitionersRegister- anationalTrainersRegister- aCodeofPracticeforPractitioners- aCodeofPracticeforTrainers- AccreditationofPractitioners- aRestorativeServiceQualityMarkforagencies

It has been important that all of these have been created in conjunction with themembership.Indeeditcouldbesaidtobeessentialthatthisbodyactsinarestorativewayineverythingitdoesinotherwordsthatitwalksitstalk.

TheviewbeyondSoRJisnotsomethingtobeimposedindeeditisacontradictionintermsandofthespiritofarestorativeapproach.IfRJisintegratedintothefabricofoursocietyitisbecauseitexpressesaprogression.RevisitingNilsChristie,theStateneednolonger


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takeownershipofourconflicts.Humanityandoursocietyhavegrownupenoughtobemoreresponsibleandresponse-ableforresolvingourdifferencesourselves.

Thosewhoundertakethisgreatworkhowevershouldbeundernoillusionsthisis

about a change of culture. This journey from a retributive to a more restorativesystem,fromthird-partyresolutionofdisputestoself-determination,requiresashiftinattitudesand thattakes time.Itcouldbedescribedasa kindof evolution.Anddespitemymatureage,IhavenotyetoutgrownmytendencytoidealismonlynowIwouldexpresstheidealasMakePeacenotWar.


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Whereisrestorativejusticeheading?

Dr.TheoGAVRIELIDES19

Restorative justice has emerged from communities and through the passion ofdedicated practitioners, victims and offenders. The future is uncertain asgovernmentstakeinterestinatopdownandcontrolledversionofthiscommunityledethos. The paper identifies three opportunities for restorative justice, alerting therestorativejusticemovementthatifitdoesnotrestorethedamagescausedbyitsownpower-interestbattles,itwillsoonbediminished.Opportunityforrestorativejusticeno1:missed?For the past 13 years, I have been a restorative justice student and despite my

enthusiasm with the prospect of instilling something fresh into a broken criminaljustice system, I remained objective. Most of my public speaking and academicarticleswouldstartinthesameway:Thefocusofresearchersshouldnotbeonthesuperiority of restorative justice, but on the development of its processes andprinciples(Gavrielides2007;2008;2012a;2013).

It is true thatwe havemore evidence andwritings on restorative justice than anyother criminal justicepolicy, and yet it is far frombeingused in theway that itsproponentshope.Whetherthisisagoodorabadthingremainstobedebated.Asonepractitioner said tome a few years agoWhen restorative justiceworks, itworksreallywell;butdontexpectit toalwaysbeappropriate (Gavrielides,2007).Howcanwewhenoneof thefundamentalprinciplesofrestorativejusticeisvoluntariness

meaningthatitcannotbeimposedonoffendersandvictimsasifitisanotherformofpunishment.

Wealsohavetoaskwhetherrestorativejusticewasevermeantorconceivedtobemainstreamed.Asabelieverofindividualempowermentandthefounderofacharitythatpromotescommunity-ledsolutionsforabettersociety ,myquestionhasalwaysbeenHowcanrestorativejustice,asacommunitybornethos(DalyandImarrigeon1998; Gavrielides 2012), enable the individual to have a genuine role in bringingfairnesstosociety.Followingfromthis,Whatistheroleofgovernment,academicsand practitioners in facilitating this process; not for their own ends, but for the

19Dr.TheoGavrielides,FounderandDirectorofIndependentAcademicResearchStudies(IARS),AdjunctProfessorattheCentreforRestorativeJusticeofSimonFraserUniversity,VisitingProfessoratBuckinghamshire NewUniversity andPanteionUniversity andVisitingSeniorResearchFellow,SocialSciencesDepartment,OpenUniversity.Email:[email protected]|Website:www.iars.org.uk|Twittter:@TGavrielides


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individual, let that be the victim, the offender, their family, friends and theircommunity.

Although I no longer consider myself to be a junior researcher, I accepted the

invitationtowriteforthisspecialeditionwithgreatpleasure.Mybriefwastowriteaboutwhererestorativejusticeisheading.AlthoughIamnotconfidentthatIwilldojustice to the request to be positive, I will seize the international and nationalmomentumofpolicyreform,andpresentmythoughts,fearsandsuggestionsfortherestorativejusticemovement.

Thereareanumberofdefinitionsofrestorativejustice;Gavrielides(2008)explainsthatthesetendtobedividedintotwobiggroups.Thefirstplacesemphasisonthevarioustypesofrestorativeprocess,whilethesecondhighlightsrestorativeoutcomes.Therearealsothewider,value-baseddefinitionsincludingRestorativejusticeisanethoswithpracticalgoals,amongwhichistorestoreharmbyincludingaffectedparties in a (direct or indirect)encounter and a processof understanding throughvoluntary andhonestdialogue(Gavrielides2007,p.139).Gavrielides argues thatrestorativejusticeadoptsafreshapproachtoconflictsandtheircontrol,retainingatthesametimecertainrehabilitativegoals(ibidem).

Gavrielides understands the term ethos in a broad way. Restorative justice, innature,isnotjustapracticeorjustatheory.Itisboth.Itisanethos;itisawayofliving. It is a new approach to life, interpersonal relationships and a way ofprioritisingwhatis importantintheprocessoflearninghowtocoexist(Gavrielides2007,p.139).ForBraithwaite(1998)andMcCold(1999),theprinciplesunderlyingthisethosare:victimreparation,offenderresponsibilityandcommunitiesofcare.McColdarguesthatifattentionisnotpaidtoallthesethreeconcerns,thentheresult

will only be partially restorative. In a similar vein, Daly (2000, p. 7) said thatrestorativejusticeplacesanemphasisontheroleandexperienceofvictimsinthecriminalprocessandthatitinvolvesallrelevantpartiesinadiscussionabouttheoffence,itsimpactandwhatshouldbedonetorepairit.

ThereflectionsthatIamsharinginthispaperweretriggeredbymyrecentvisittoVancouver,BritishColumbia,whereIwasinvitedtogiveaseriesoflecturesaspartofrestorativejusticeweekheldeveryyearinNovember.AfterbeingwelcomedbytwoofthemostinspiringrestorativistwomenIhaveevermet,Dr.ZellererandProf.Morrison, my week started with meeting a dozen assistant Deputy Ministers,currently workingon a provincial grand plan to reform and improve the criminaljustice system. Following the August 2012 Geoff Cowper QC reportA Criminal

JusticeSystemforthe21stCentury,theMinisterofJusticecommittedtobringingchange.Ileftthemeetingwithastrongsenseofhope,butwithabitteraftertasteofreality.Mostofthequestioningwasaroundsavings,andwhatonewouldcallthebusiness case for restorative justice.After quoting the usual thin evidence, Iwasquickenoughtocomebacktothequestionandaddressitbysaying:Ifwearetryingtoreplaceanapplethatcosts5pwithanorangethatcosts4pandwhichpromisesthe


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muchneededvitaminC,thenwehavealreadylost.Atruecommitmentwillshowwhenweimplementchangesthatwillimprovelongtermoutcomes.Buthownaiveisthisstatement?

Myanswerwasnotevidencebased.ItwasareactionofwhatIamexperiencingfromwhatishappeningbackhomeintheUK.Theworldeconomiccrisisincombinationwith the 2010 change in the UK government brought a number of institutionalrestructuresandashiftinthephilosophyonpublicspending.UnderthesloganofPunishmentandReform,anumberofpublicconsultationswereinitiatedincludingsome that were focused on probation services (Ministry of Justice 2012b). Thereshould be no doubt that substantial changes will occur to criminal justice serviceprovision nationally. The government has been honest about its intentions,acknowledgingthatthecriminaljusticesystemisfailing.Thekeyconcernprincipallystemsfromthehighreoffendingrates(i.e.oneintwooffendersreturntocustody,risingto75%ofyoungoffenders).

AccordingtotheOffenderManagementCaseloadStatistics,in2009,theUKhad151prisonersper100,000population,thesecondhighestrateinWesternEurope,belowSpain (Ministry of Justice 2010a). InEngland andWales, the prisonpopulationisforecasttoriseto94,000beforethenextgeneralelection(Berman2010,p.1).Thesefailings are at an annual cost of 10 billion (National Audit Office 2010). InDecember2010,theUKcoalitiongovernmentpublishedtheGreenPaperBreakingtheCycle, announcing itsintentionsforkey reformsto theadultandyouthjusticesentencingphilosophyandpractice.

ThatiswhytheGovernmenthasembarkedonwholesalereformIsetoutradicalplanstomakesentencesinthecommunitymorecredibleandtoreformprobationso itismore effectivein reducingcrime, byextendingcompetitionandopeningupthemanagementoflowerriskoffenderstotheinnovation and energy of the widest possible range of providers.(MinistryofJustice2010c)

Thisbroughtrestorativejusticebackontothepolicyagenda.Anumberofministerialstatements were made whilemillions of pounds have already been spent, or havebeen committed, for training prison and probation staff and police officers onrestorativejustice.Iexpressedmyscepticism,alertingpeopletothelessonsoftheoldwhen the Labour Government launched its own public consultation, which thenresulted in their 2003 plan for introducing restorative justice in the adult criminal

justicesystem(Gavrielides2003).Billionsofpoundswerespentonvarious researchpilots,arestorativejusticeunitwithintheHomeOffice,conferencesandtraining.Butrestorativejusticewasneverputforwardasaconsistentandavailableoptionforvictims,offendersandtheircommunities.


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Therefore,IwassurprisedwheninSeptember2012Iwasaskedtojoinanationalrestorative justice steering group thatwasput together by our current MinistryofJusticetoconstructastrategythatwillsupportawell-intendedlegislationthatwould

introducerestorativejusticeateverystageof thecriminaljusticesystem.Withmuchhesitation and gratitude, IARS,the researchcentrethat Idirect,participatedin thisproject,whichconcludeditsworkonthefirstdayofrestorativejusticeweek.ThenewstrategyRestorativeJusticeActionPlanfortheCriminalJusticeSystemwasthenannounced.WenowknowthatinEnglandandWales,theinformalapplicationofrestorativejusticebycriminaljusticeagencies,includingprobationtrusts,isabouttobeformalisedandmainstreamed.InthewordsoftheMinistryofJustice:

The Governments plan for a rapid expansion of restorative justice wherevictimsofcrimearegiventheopportunitytoconfronttheiroffenderwasboostedtodaywiththepublicationofanewnationwideactionplan

forthecriminaljusticesystemtocoincidewithInternationalRestorativeJusticeWeek20.Thisincreaseininterestinrestorativejusticewillhavedirectimpactonprobationservices.Forexample,aspart of its commissioning intentions for the2013-14, theNational Offender Management Service (NOMS), the key governmental bodyfundingprobationservicesinEnglandandWalessetoutaspecificintentionforbothprisonsandprobationtruststocontinuetodevelopsustainablecapacityandcapabilitytodelivereffectivefacetofacevictim-offenderconferencing,workingwithpartners.Intheir2012publicationNOMSnoted:

TheGovernments proposals for reforms to the sentencing frameworkandthemanagementofoffendersoutlineacommitmenttoincreasetheuse of restorative justice. Additionally, the reforms on CommunitySentencesincludeextendingtheuseofrestorativejusticeintothepost-conviction/pre-sentence period. NOMS commissioning intentions for2013-14 reflect theministerial andAgency commitment todeliverhighqualityrestorativejusticeforvictimsandoffenders,andaskprisonsandprobation Trusts, working with partners, to continue to develop theircapacitytodelivereffectivevictim-offenderconferencing.Someprisonsand Trusts are already delivering sustainable victim-offenderconferencingwhilstothersarestillintheplanningphaseNOMSaimstohelpTrustsandprisonsdevelopthecapacitytorespondtorequestsforrestorativejusticepost-conviction;ensurethatresourceistargetedwhereevidencesuggeststhatitislikelytohavethebestoutcomes;andensurethattherestorativejusticemodelsdeliveredareeffectiveandsustainable.

20 http://www.justice.gov.uk/news/press-releases/moj/plan-to-give-more-victims-a-voice-restorative-justice(accessedMarch2013).


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Butitisnotall-goodnewsforcelebration.Infact,IhumblyandwithmuchhesitationwithdrewmymembershiptothenationalsteeringgroupasIfeltthattheproposed

structure and action points for the implementation of the strategy and proposedlegislation were top down, ignoring what I consider to be the heart and soul ofrestorativejusticei.e.itscommunitybornandcommunityledethos.Inanopenlettertotheresponsibleminister,Ipublishedmyconcerns21.

GoingbacktomyrestorativejusticeweekinCanada,onmywaybackfromVictoriaImetafamilywhosedaughterwasmurderedandhadagreedtomeetoneofthetwooffenderswhohadbeenconvictedwiththecrime.Themothersaidtome:Toooftenpeopleassumethatvictimswant toseetheiroffenderslockedup inprison,playingvideogamesandlearninghowtobecomebettercriminals.Wewantaccountability,andtounderstandwhathappened;wewanttoseethemdoingsomethinggood.Ialsometanothervictimwhosufferedfromchildsexualabuseandviolencewithingangs.

Hesaid:Toallthosewhohurtmeinmychildhood,Isendthemlotsof loveandIhopetheyhavehadatleastsomeoftheopportunitiestohealthatIhadHowcouldIeverforgivemyselfwithoutseeingthemaswoundedpeopletoo?Bothofthesevictims now practise restorative justice spreading the message and its potentialbenefitstocommunities.

ButwhathasturnedouttobethehighlightofmyrestorativejusticeweekwasmysharingthroughacirclethatDr.ZellererfacilitatedaspartofmypresentationfortheAGMofNorthShoreRestorativeJustice,acommunity-basedserviceforVancouver.Staffedonlywithtwopaidmembers, thecentredealswithover100casesperyearstretching from shop lifting to serious youth violence, complex cases and groupoffending.Withanannualturnoverofjust$100,000andwiththesupportofmanyvolunteers,IwasthinkingthatmaybeitisthemthatthedozenMinistersImetshouldhavelistenedtoforanevidencebasedbusinesscaseforrestorativejustice.Withlessthan$1,000percasemycasewasrested.Butwasit?

Asgovernmentsaroundtheworldtakeinterestinrestorativejusticeandsetupnewstrategies, legislationandfunds topromote it, their rolemust beclear.Restorativejusticeisnotaproductthatcanbemainstreamedandrolledoutnationally.Itexistsinsmall neighborhoods, in homes, churches, schools, tents, humidmediation centresand, yes sometimes, in big fancy offices. Identifying central governmentorganisationsor thegovernmentsusualsuspects,bignationalbodiesandcelebrityrestorativiststhatcanmanageandindeedcontrolhowrestorativejusticeisrolledout

isnotonlyawasteofpublicmoney,butalsoaninsulttotheworkthatsomanypeopledidandwillcontinuetododespitebeingexcludedorrecognised.

Asweweregoingaroundthecircle, Icametorealizethateverysinglepersonwhopractisedrestorativejusticehadastorytoshare.Astoryofpainasavictimorastory

21http://iars.org.uk/sites/default/files/IARSNov2012.doc(accessedMarch2013).


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ofregretasanex-offender.Andthisiswhatmakesrestorativejusticespecial.Itisthecommunityswayofunderstandinganddealingwithconflict.Thisisalsoafeelingthatwassharedamongthe21prisonerswhoattendedacirclewithmeatFerndale

prison.Mostofthemwereservingalifesentence.Restorativejusticeisdonebykids,by volunteers with no money, by everyone who feels responsible enough to dosomethingfortheircommunityHowcanyouexpectthosepeopletoregistersothattheycanpractise?onevolunteerfacilitatorex-offendersaid.

ThisremindedmeofadifferenttypeofworkshopthatIheldinNovember2010onbehalfofOpenUniversityandIARS.TheworkshopwaspartofalargerprojectthatIhave been running aiming to initiate an international debate that will assist thedevelopment of improved practices, better-informed policy and more groundedresearchonrestorativejustice.Over40expertsinrestorativejusticefieldattendedtheworkshop. The Home Office, Youth Justice Board, Victim Support, Ministry ofJustice, Prison Reform Trust, Probation and several universities were among the

organisations represented. The issue of accreditation and standardswasdiscussed.Therewasconsensusthatinnovation,standardsandaccreditationarecomplementary.However,itwasstressedthatrestorativejusticeiscommunitybornandhencethismust beaccommodated. Top down approacheswill fail. It was recommended thatpracticemustbeinvolvedinformulatingqualifications.Itisnotgoodtohavepeoplewithqualificationsbutnopracticalexperiencewhileitwouldbeamistaketoexcludethose with experience but no formal qualifications someone said (Gavrielides2011b).

Braithwaitenotes:Whileitisgoodthatwearenowhavingdebatesonstandardsforrestorativejusticeitisadangerousdebate.AccreditationformediatorsthatraisesthespectreofaWesternaccreditationagencytellinganAboriginalelderthatacenturiesold restorative practice does not comply with the accreditation standards is aprofoundworry(2002).

AndletmestresstheimportanceofstandardsbecauseIhavebeenmisquoted,tomysurprise.Inallmypapers,Ihavestressedtherisksthatrestorativejusticebrings.Itisnotasoftoption.Itentailspain;notjustfortheoffender,butalsothevictimandtheircommunities(Gavrielides2013).ThiswasmykeycontributioninthelecturethatIwasveryhonouredtohavebeenaskedtogiveaspartofrestorativejusticeweekandinmemoryofProf.LizElliott,atruebelieverofthekindnessthatweallhave.Ifeltcompelled to respond to Lizs vision: Restorative Justice must be more than aprogrammewithinthecurrentsystemitmustbeanewparadigmforrespondingto

harmandconflictwithitsownphilosophicaland theoreticalframework.Facilitatingthisshiftrequiresare-thinkingoftheassumptionsaroundpunishmentandjustice,placingemphasisinsteadonvaluesandrelationships.

Bydefinition,anygovernmenthasanexpirydateandthisputsanobligation,butalsopoliticalfears,thatthosechangesmustbedonequicklyandcheaply.Iamfearfulthatas restorative justice is being explored for its potential tobring aboutchange that


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quick, ready-made packages are introduced. These will consequently harm itsdeliveryin the long-term.Mainstreamingrestorativejusticeonthecheapis not theanswer.Providing 1-3 day trainingpackages topolice officers,probationstaffand

prisonguardswillnotdelivertherestorativevision.Fundingtheusualsuspectstocontrolatopdownregisterforpeoplewhoarepractisingrestorativejusticewillnotincreasepublicconfidenceinrestorativejustice;itwilldestroyit.Itwillalsoalienatethebigsocietyofvolunteersgivingtheirtimetokeeplocaljusticebalanced.Opportunityforrestorativejusticeno2:missed?ThesecondwindowofopportunityforrestorativejusticeistobefoundbeyondtheUKboarders.Overthelast10years,theEuropeanCommissionhasdevelopedandindeed shown keen interest in developing and supporting an evidence base forrestorative justice. Through a number of action grants, the Commission funded

hundredsofNGOs,governmentalbodiesandcharitiesacrossEuropetoresearchandimplementrestorativejustice.

TheEUandtheCouncilofEuropescommitmenttorestorativejusticecanbefoundinanumberofdocumentsincluding:

ThePositionoftheVictimintheFrameworkofCriminalLawandProcedureCouncilofEurope1985RecommendationNoR(85)

AssistancetoVictimandthePreventionofVictimisationCouncilofEurope1987RecommendationNoR(87)21

The SocialMission of the Criminal Justice System Restorative Justice CouncilofEurope2005ResolutionNo2.

Mediation inPenalMattersCouncilofEurope1999RecommendationNoR(99) The Standing of Victims in Criminal Proceedings, European Union 2001

FrameworkDecision,Resolution40/431985 EstablishingMinimum Standards on the Rights, Support and Protection of

VictimsofCrime,EUDirective2011/0129 EU Directive and Regulation on the Mutual Recognition of Protection

Measures.Longbattleshavebeen foughtbythevictimsand restorativejusticemovementstomovethevictimfromthemargins toamorecentralpositionin thecriminaljustice

process. Following the new ECVictims Directive22

, European governments nowhavenootheroptionbuttobecomemoreresponsivetovictimsneedsandvoices.

22 http://www.rj4all.info/system/files/rj_library/Directive%202012_29_EU_Victims_of_Crime.pdf(accessedMarch2013).


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Inparticular,theDirectiveestablishesminimumstandardsandsafeguardsthatmustbeenforcedbyallcriminaljusticeserviceproviderstoprotectvictimsofcrimeaswell as family members of victims killed by a crime. Restorative justice and the

development of appropriate standards and protocols feature prominently in theDirectivesarticles.Thedirectivewasdesignedtoensurethat:

Victimsaretreatedwithrespect Police, prosecutors, judges and criminal justice agents are trained in

sensitivitytovictim Victimsareentitledtobekeptinformedoftheircase,inamannerthatisclear

andunderstandabletothem Eachmemberstateshallhaveadesignatedvictimsupportservice Victimscantakepartinproceedingsandwillbehelpedtoattendthetrial States must identify vulnerable victims, such as victims of sexual assault,

disablevictimsorchildren,andmustproperlyprotectthem Victims are protected while police investigate the crime and during court

proceedings.

ThatiswhymyheartjumpedwhentheJusticeMinistersaidthefollowingashewasintroducing his government Restorative Justice Action Plan: I want restorativejusticetobecomesomethingthatvictimsfeelcomfortableandconfidentrequestingatanystageofthecriminaljusticesystem.Butthisprocesshastobeledbythevictimandbeon theirterms.If itdoesntworkforthevictim,thenitshouldnothappen.Thesearenotwordsthatyougettohearoften.Thereisagrowingacknowledgementthattheindividual,thevictim,theirfamilyarethekeytomakingrestorativejustice,

orIshouldjustsayjustice,happen.Andthereisonemorereasonwhytheinterestofcriminaljusticeagenciesinvictimsand restorative justice is increasing. The literature seems to suggest that oftenoffenderswant tomake amends. This can help desistanceand integration (NOMS2012a;2012c).Byworkingwithvictimsandcommunitiesthistargetcanbeachieved.Thisdoesnotnecessarilymeanthatoffendershavetomeettheirvictims.However,theycanbeencouragedtofindarolethattheywishtotakeintherestorationofwhathappened.

Focusing on restorative justice and probation services, the 2012 joint thematicinspectionbyHMIC,HMIProbation,HMIPrisonsandtheHMCPSI23foundthatthe

probationtruststhattheyinspectedforrestorativejusticehadrecognised[restorativejustices]contributiontoimprovedcommunityconfidence.Accordingtothereport,

23Thisresultedinthe inspectoratereportFacingUpToOffending:UseofRestorativeJusticeinthecriminal justice system which can be accessed via http://www.hmic.gov.uk/media/facing-up-to-offending-20120918.pdf(accessedMarch2013).


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applyingrestorativejusticewhereitisappropriatecanalsohelpimproveoutcomesinrelationtoreintegrationandrecidivismofoffenders.

Thereportnotedthateachtrustthattheyinspectedforrestorativejusticerecognised

the multiple outcomes that could be achieved in particular increased victimsatisfactionandreductionsinreoffending(CriminalJusticeJointInspection2012,p.58).Theyalsowenton tosay:Wefound impressiveexamplesof thebenefitsthatrestorative justicecanbringtovictimsandoffendersincomplexordifficult casesdealtwithbyprobationservices.Furtherexampleswhererestorativejusticehasbeenusedsuccessfullybyotherprobationtrustsneedtobeidentified.Forinstance,IARShasbeenworkingwithGreaterManchesterProbationTrust toevaluate the useofrestorative justice with thosewho have been convicted for offences following therecentriotsinEnglandandWales.Inabidtomeetthechangingneedsofsentencersand victims24, GMPT quickly developed a new intervention for courts called theIntensiveCitizenship,ResponsibilityandConsequencesorder(I-CRC).Withinthis,a

restorativejusticeinterventionisprovided(Gavrielides2012b).NOMSpicked up on the potential of restorative justice to improve outcomes forusers. As part of its commissioning intentions for the 2013-14, NOMS set out aspecific intention for both prisons and probation trusts to continue to developsustainablecapacityandcapability todeliver effectiveface to facevictim-offenderconferencing,workingwithpartners.

But Ifearthatthissecondmomentumisalsogoingtobemissedasvictimsvoicesare again ignored. In itsActionPlan, theMinistryof Justice identified onesingleorganisation for creating, enforcing and monitoring standards and quality controlrestorative justice. In March 2013, this organisation announced on behalf of the

governmenttheconsultationonwhattheycalledRestorativeServiceStandardsandRestorative ServiceQuality Mark Framework25. Alongside these documents theyalsoproducedtherestorativejusticemonitoringanddatacollectiontemplatesasarequirementforthequalitymark.Inordertoqualifyforamark,restorativejusticepractitionerswillneedtocompleteanonlineportfoliotoshowhoweachtotheseindicatorsaremet.Thiswillbefollowedbyaformalassessmentbyaconsultant.Inordertoenterintotheprocessofassessment,afeerangingfrom3,000to1,500willhavetobepaid.

Accordingtotheconsultationdocument,thestandardsandqualitymarkweredraftedbyanexpertsteeringgroup.Howandwhoselecteditsmembersremainsunknown.Whatiscertain,however, isthatvictimswerenot included.Whatisalsocertainis

thatorganisationsrepresentingandadvocatingforvictimswerealsoexcludedfromtheprocess.24 Roz Hamilton, GMPT Chief Executive (accessed March 2012) http://www.gm-probation.org.uk/news/default_item.php?id=18825Seehttp://www.restorativejustice.org.uk/news/rsqmconsultation/#.UU7ia7_DpUQ(accessedMarch2013).


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All thisin thebackdropoftheaforementionedECVictimsDirectiveandtwonewEUfundedprogrammesaimingtoconstructanevidencebaseforthedesignofvictimled standards, training material, protocols and safeguards for the delivery of

restorative justice. The first is titled Restorative Justice in Europe: SafeguardingVictims&EmpoweringProfessionals(RJE),andisrunbyIARSwhilethesecondiscoordinatedbytheGermanSchleswig-HolsteinAssociationforSocialResponsibilityinCriminalJustice,VictimandOffenderTreatment26.

Ifgovernmentsaretrulycommittedtopromotingrestorativejustice,thentheyneedtoworkcloserwiththecommunitiesthatcreatethevariousmodelsthroughwhichthisabstract umbrella notion of restorative justice is delivered whether it is calledmediation, circles, conferencingTry tomouldand standardise restorative justiceand all you will achieve is its McDonalisation. Its diversity and ability to deliverequity and fairness at a local level, its creativity and innovation will all die out.Ignoringvictimswhileimposingtopdowncontrolsonrestorativejusticeisnot the

wayforward.Opportunityforrestorativejusticeno3:missed?Thethirdopportunityforrestorativejusticeistobefoundinthevariouscutsandpolicy restructures caused by the world economic downturn. Implementingrestorativejusticeinadifficultfinancialclimateinstantlybringsupthequestionofcost and benefit.Although data on the financialviability of restorative justice areextremelylimited,itsomehowmanagedtoconvincethatitisacheaperoptionforgovernments.

This is mainly because the financial analysis of imprisonment is well developed(JusticeCommittee2010).IntheUK,keepingeachprisonercosts41,000annually(or 112.32 a day).Thismeans that if there are 85,076prisoners at the moment,prisons cost as much as 3.49 bn. According to Home Office statistics, it costs146,000toputsomeonethroughcourtandkeeptheminprisonforayear(PrisonReformTrust 2010).Moreover, accordingto a2010 report bytheNewEconomicsFoundation,apersonthatisoffendingat17afterbeingreleasedfromprisonwillcommit on average about 145 crimes. Out of these crimes about 1.7 are seriouscrimes (homicides, sexual crimes or serious violent offences).Given that a prisonsentenceisestimatedtoincreasethelikelihoodofcontinuingtooffendby3.9percent,thistranslatesintoanaverageofabout5.5crimescaused,outofwhichabout0.06areserious(Knuutila2010,p.40).

InJune2010,theJusticeSecretarysaidthatprisonoftenturnsouttobeacostlyandineffectual approach that fails to turn criminals into law-abiding citizens (Travis

26Forfurtherseehttp://rj4all.info/content/RJE(accessedMarch2013).


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2010,p.1).Healsoindicatedthenewgovernmentsappetiteforseekingnewandmorecosteffectivewaysofreducingreoffendingandservingjustice.

Thescarceevidenceonrestorativejusticesuggeststhatthesavingsthatflowfromthe

contribution made to reducing reoffending rates are impressive; According toShaplandetal.restorativejusticecandelivercostsavingsofupto9forevery1spent (2008). Victim Support also claims that (2010, p.29), if restorative justicewereofferedtoallvictimsofburglary,robberyandviolenceagainstthepersonwheretheoffenderhadpleadedguilty(whichwouldamounttoaround75,000victims),thecostsavingstothecriminaljusticesystemasaresultofareductioninreconvictionrates would amount to at least 185 million over two years. Furthermore,accordingtoMatrixEvidence(2009),restorativejusticepracticeswouldlikelyleadtoanetbenefitofover1billionovertenyears.Thereportconcludesthatdivertingyoung offenders from community orders to a pre-court restorative justiceconferencing schemewould produce a life time saving to society of almost 275

million(7,050peroffender).The costofimplementingthe schemewouldbepaidback in the first year and during the course of two parliaments (10 years) societywouldbenefitbyover1billion(2009).

Timeasaunitcosthasalsobeenrecordedinthescarceavailableliterature.Forinstance,accordingtothe2010AssociationofChiefPoliceOfficers(ACPO)surveyonrestorativejustice,theaveragetimetakenbyHertfordshirepoliceofficersdealingwithminorcrimesthroughstreetrestorativejusticewas36minutesasopposedto5hours38minutesspentonissuingreprimands.Translatingthisintocostmeant15.95forrestorative justice and149.79for a reprimand.SimilarsavingswerefoundforCheshirepolice(20.21vs157.09)(CheshireOperationQuest22009).

The belief that restorative justice can cut down costs had an impact on fundersintentionsandpriorities.Forinstance,the2012-13NOMSBusinessPlanstates:Wewillcompetefairlyinopenmarketsensuringexpansionofworkacrosstheestateatnoadditional cost tothe taxpayer and including financialcontributionstovictimsservices(NOMS2012b).

TheMinistry of Justice also seem to have taken amore cautious approach and adifferentphilosophyonhowfundsarespentoncriminaljustice.OneoftheresultsofthisnewapproachwastheintroductionofwhatisnowcalledPaymentbyResultspolicy.AccordingtotheMinistryofJustice:

Introducingpaymentbyresultsmeansthatwewanttorewardproviders

when they are successful in reducing reoffending levels, rather thanproviding upfront funding regardless of outcomes achieved. Byimplementingapaymentsystembasedonachievingactualreductionsinre-offendingratherthanmeetinginput/outputtargetswethinkwecan


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deliverimprovedpublicservicesatthesameorlesscost.Thisrepresentsaradicaldeparturefromthejusticepoliciesofpreviousgovernments.27

TheMinistryofJusticestatedtheirintentiontocontractoutprobationservicesforlow and medium-risk offenders to private companies and charities. Following atargeted2012 consultationthataimedat bringingtailoredchanges totheprobationservices,280responseswerereceived28.Intheirsubsequent2013paperTransformingRehabilitation: a revolution in the way we manage offenders (Ministry of Justice2013),thegovernmentissaidtohavereflectedontheseresponsesputtingforwardproposalsforreformingthedeliveryofoffenderservicesinthecommunitytoreducereoffending rates whilst delivering improved value for money for the tax payer(MinistryofJustice2013).Oneofthekeyobjectivesofthesereformsisopeningthemajority of probation services to competition, with contracts to be awarded toproviders who can deliver efficient, high quality services and improve value for

money(MinistryofJustice2013).It is expected that 70% of probations core work will be put out to competitivetender29.All35probationtrustsseemtohaveacknowledgedthattheyhavenootherchoice but to accept the shift in government thinking on how public funds aredisposedforcriminaljustice.Inacompetitivemarketwhereprivateorganisationsarewellplacedinpreparingbidsandmaximizingresources,probationtrustsalsoseemtohaveacknowledgedtheneedtodeliveradditionalandbetteroutcomesfortheirusers.

This presents restorative justice with a unique opportunity to establish itself asoutcome focused practice that delivers better justice forall.Making claims that itcostslesshoweverisnottherightwayforward.Furtherresearchisneededtosupportthisthinargument.Whileitappearsthatitiseconomicallyadvantageoustosocietytoadoptarestorativeapproachtocrime,researchsuggeststhatanappealsolelyonthisbasis may undermine restorative justice in the long run. For instance, there wasconsensusamongGavrielides(2007;2012a)interviewedpractitionersthatthiscouldlead to quick fix policies, a lack of a coherent and long term strategy and highexpectations.OnepractitionersaidWhenitcomestoaskingmoney,theproblemisthatrestorativejusticehasaslowtimedeliverythisisespeciallythecasewiththeGovernmentwherethemoneyusuallycomesfrom.Funders,ingeneral,wanttoseeresults now, and treat restorative justice as a quick fix tool; this often leads todisappointments and misunderstanding aboutwhat restorative justice really is andwhatitcanoffer.

27Seehttp://www.justice.gov.uk/offenders/payment-by-results/the-challenge(accessedMarch2013).28 All 35 Probation Trusts of England andWales sent their thoughts including LPT, to read theresponse http://www.london-probation.org.uk/pdf/LPT%20Response%20to%20Effective%20Probation%20Services%20Consultation.pdf(accessedMarch2013)29AsnotedbyNAPO,seehttp://www.napo.org.uk/about/probationunderthreat.cfm(accessedMarch2013).


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The way funding is distributed for restorative justice has already raised concernsamongpractitioners.InGavrielides(2007)onepractitionernoted:So,whenyougetmoney from the Government, then it is likely that you get their agenda, and this

affectshowtomeasurethevalueofrestorativejusticeanditsoutcomes.Someoneelsesaid:Thegovernmenttendstogiveprimeimportancetoreducingre-offending,andalthoughthismightnotbeproblematicassuch,thewayrestorativejusticehassofarbeenusedsuggeststhatisbeentreatedasameanstoanend.

Ifwearetoseizethisthirdopportunity,thenrestorativejusticemustbetreatedasapractice and an ethos that is based on different principles from the ones thatcharacterise the traditional criminal justice system.The literature suggests that theprioritisationoffundingresourcesaccordingtogroupsofpartiesinvolvedinacrimeaffectsthesponsoringofrestorativejusticeschemesastherestorativeprinciplesplaceequalsignificanceonallcommunitiesofinterest.Forexample,fundingspecificallyallocatedtorehabilitatingoffendersmaynotconsiderrestorativejusticeschemesto

befitfor thatpurpose.Likewise, funding forvictimsupportprogrammesmay treatrestorativejusticeassomethingfortheoffenderandindeeddangerousforthevictim.Fundersandstakeholdersneedtoeitherremainopen-mindedwhenassessingfundingapplicationsformoneyallocatedtospecificparties,orintroducenewfundingstreamsforrestorativemethodologiesthatfocusonallcommunitiesofinterests.

And there are further dangers in missing the third opportunity. One practitionernoted:thetermrestorativejusticeiscurrentlybeingusedtolabelthingsthatareinnomeansrestorativeforeitherpartyinvolved.Andtherearealotofreasonsforthis,andoneofthemismoneysomepeoplecamealongwiththeirpunitivepracticesandlabelledthemrestorativejusticeinordertogetthismoneyHijackingfundingbynon-genuinerestorativejusticeprogrammes.

Funding bodies introduce time scales and performance measurement into fundedpractices, and these usually undermine their effectiveness. Moreover, evaluationneeds to be large scale, and conducted at a sufficient length of time following anintervention to accommodate re-offending data. Scheme co-operation must be acondition ofany funding arrangements. Ifprogressistobemadeinassessingtheoutcomesofrestorativejusticeprojectsandinfindinggenuinerestorativepractices,resourceswouldbebetterspentonimplementingwell-designedprojectswithclearlydefinedaimsandmethods,andwithevaluationbuiltinfromthestart.

It appears that most restorative justice practices are run in the community byvoluntaryandcommunitysectororganisationsandgroups(Marshall1996,Johnstone

2002).Althoughthisallowsaconsiderablelevelofflexibilityintothedevelopmentandmanagementoftheseschemes,italsoaddsanumberofchallenges.Voluntaryand community projects are most of the times under-resourced and understaffedwhilemostofthetimesarenotseenbystatisticians,criminaljusticeofficialsandgovernmentalbodiesascontributingtocrimeprevention.


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Commentators have repeatedly stressed the important role of these projects inpromotingafeelingofempowermentandbelongingincommunitygroups.Voluntaryorganisations help maintain a balance between community groups often feeling

isolated and let down by public services and government. They establishcommunication channels between individuals and government bodies, and enablesmall and large minority groups to have a say in policymaking, legislation andregulationofthecountrysaffairs.

Thevastmajorityoftheiractivitytakesplaceatalocallevel,oftenaddressingtheneeds of society'smost disadvantaged groups.Statistics also show that the publictrusts these groups more than other criminal justice services. Charging theseorganisationswitha1,500feetoacquireamarkthatwillallowthemtopractisewhatisrightlytheirsmarksthebeginningoftheendforrestorativejusticeintheUK.Concludingthoughts

Inthispaper,Iidentifiedthreeopportunitiesforrestorativejusticeasthesearecreatedby the current economic climate, the EUs interest in victims aswell as the UKgovernmentsfocusonoutcomes.IntheyearsthatIhavebeenresearchingrestorativejustice, I have witnessed a power-interest battle within the restorative movement,whichincludednotonlydifferentprofessionals(e.g.practitionersvstheoreticians),butalsotypesofpractices(e.g.mediationvsfamilygroupconferencing)aswellasfundamentalrestorativejusticeprinciples(e.g.voluntarinessvscoercion).Althoughconstructive debates are always essential for the advancement of criminal justicedoctrines,itismyconclusionthatiftherestorativemovementdoesnotrestoreitsownpowerstruggles,thediscussedopportunitieswillbemissed.

Backin2003,oneofmyinterviewedpractitionerssaidtome:

Ithinkthechallengerightnowisthattherearelotsofmovementswithintherestorativejusticefield,lotsofresearch,peoplesuchasyourselfthataretryingtoreconcileallthesedifferentaspectsofrestorativejustice,andthis,Ithink,iscrucial.Allthesepeoplearemoving,butnottogether.Peoplearegrapplingwiththeirresearch[tofind]whereandhowrestorativejustice[can]fit in the criminal justice system, what kind of offenders [it can engage],[what]typeofoffences[itcandealwith],periodsoftime[needed]etcandthereneedstobearealjoinedthinkingaboutallthesemattersInfact,weareallgrapplingwithwhere,andwho,andforwhatrestorativejusticeshould

beused,andIthinkthereneedstobeapullingtogether.Westilldonthavealltheanswers,butthisstepshouldhelptobridgethegapBesides,thiswasoneofthereasonsIwasattractedtothisfieldandIthinkthisshouldbethenextstepforrestorativejustice,topullitalltogether(Gavrielides2007).


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Restorative justice was rebornnot out of formal structures and legislation, but ofvoluntaryactionbyenthusiasticanddedicatedpractitionersfromaroundtheworld.Astherestorativetraditionisnowexpandingtodealwithcrimes,agesandsituations

thatithasneveraddressedbeforeatleastinitscontemporaryversionandasitstartstomakesenseinnational,andalsoregionalandinternationalforums,thentheresponsibilities of both restorative practitioners and academics redouble. Bridgesmustbebuiltinordertosynthesise.References

Berman,G.2010,PrisonpopulationstatisticsinHouseofCommonsLibrary.

Braithwaite, J.1998, Restorative Justice, inHandbook of Crime and PunishmenteditedbyM.Tonry,OxfordUniversityPress,Oxford.

Braithwaite,J.2002,RestorativeJustice&ResponsiveRegulation,OxfordUniversityPress,Oxford.

Chambers, M. 2013, Expanding Payment by Results: Strategic choices andrecommendations,ThePolicyExchange,London.

Criminal Justice Joint Inspection2012,Facinguptooffending:Useofrestorativejusticeinthecriminaljusticesystem,CJJI,London.

Daly, K. 2000, Revisiting the Relationship between Retributive and RestorativeJustice, in H. Strang and J. Braithwaite (eds)Restorative Justice: Philosophy toPractice,Aldershot,USA,Singapore,Sydney,Ashgate/Dartmouth.

Daly, K. and Imarrigeon, R. 1998, The Past, Present, and Future of Restorative

Justice:SomeCriticalReflections,inContemporaryJusticeReview1,pp.21-45.Gavrielides,T.2003,RestorativeJustice:Arewethereyet?RespondingtotheHomeOfficesConsultationQuestions,inCriminalLawForum14:4,pp.385-419.

Gavrielides,T.2005,SomeMeta-theoreticalQuestionsforRestorativeJustice,inRatioJuris18:1,pp.84-106.

Gavrielides, T. 2007, Restorative justice theory and practice: addressing thediscrepancy,HEUNI,Helsinki.

Gavrielides,T.2008,Restorativejusticetheperplexingconcept:Conceptualfault-linesandpowerbattleswithintherestorativejusticemovement,inCriminologyand

CriminalJustice,Vol.8(2),pp.165-184.Gavrielides,T.2011a,RestorativePractices:FromtheEarlySocietiestothe1970s,inInternetJournalofCriminology,ISSN2045-6743.

Gavrielides,T.2011b,Drawingtogetherresearch,policyandpracticeforrestorativejustice,IARS,London.


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Gavrielides, T. 2012a, Rights and Restoration within Youth Justice, de SitterPublications,Witby,ON.

Gavrielides, T. 2012b,Waves of Healing:Using Restorative with Street Group

Violence,IARSPublications,London.Gavrielides, T. andV. Artinopoulou 2013,Reconstructing the Restorative JusticePhilosophy,AshgatePublishing,Furnham,UK.

Gavrielides, T. 2012, Rights and Restoration within Youth Justice, de SitterPublications,Witby,ON.

Johnstone,G.2002,Restorativejustice:ideas,values,debates,Devon,Willan.

JusticeCommittee2010,Cuttingcrime:thecaseforjusticereinvestment,HouseofCommons,London.

Marshall, T. 1996, The Evolution ofRestorative Justice inBritain, inEuropean

JournalonCriminalPolicyandResearch(4),p.21.Matrix Evidence 2009, Economic Analysis of interventions for young offenders,BurrowCadburyTrust,London.

McCold,P.1999,TowardaHolisticVisionofRestorativeJuvenileJustice:AReplyto Walgrave in The 4th International Conference on Restorative Justice forJuveniles,Leuven,Belgium.

Ministry of Justice 2005,Reducing Re-Offending Through Skills and Employment,MinistryofJustice,London.

Ministry of Justice 2007, The Governments Response to theHouse ofCommons

HomeAffairsSelectCommitteeReport:YoungBlackPeopleandtheCriminalJusticeSystem,MinistryofJustice,London.

MinistryofJustice2010a,OffenderManagementCaseloadStatistics2009,MinistryofJustice,London.

MinistryofJustice2010b,StatisticsonRaceandtheCriminalJusticeSystem2010,MinistryofJustice,London.

MinistryofJustice2010c,Breaking theCycle:EffectivePunishment,RehabilitationandSentencingofOffenders,MinistryofJustice,London.

Ministry of Justice 2011,National Standards for the Management of Offenders,MinistryofJustice,London.

Ministry of Justice 2012a, Getting it Right for Victims and Witnesses: EqualityImpactAssessment,MinistryofJustice,London.

Ministry of Justice 2012b, Punishment and Reform: Effective Probation Services(consultation paper), Ministry of Justice, London http://www.official-documents.gov.uk/document/cm83/8333/8333.pdf


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MinistryofJustice2012c,PunishmentandReform:EffectiveCommunitySentences(consultationpaper),MinistryofJustice,London.

MinistryofJustice2012d,PunishmentandReform:EffectiveCommunitySentences.

GovernmentResponse,MinistryofJustice,London.MinistryofJustice2013,TransformingRehabilitation:A revolutionin thewaywemanage offenders, Ministry of Justice, London http://www.official-documents.gov.uk/document/cm85/8517/8517.pdf

NOMS2008,A scoping exerciseofoffendermentoring schemes in theSouthWest,NOMS,London.

NOMS 2007,Volunteers Can: Towards a Volunteering Strategy to Reducing Re-offending,NOMS,London.

NOMS2012a,BetterOutcomesThroughVictim-OffenderConferencing (Restorative

Justice),NOMS,London.NOMS 2012b, Business Plan 2012-13, NOMS, London http://www.justice.gov.uk/downloads/publications/corporate-reports/noms/2012/noms-business-plan-2012-2013.pdf

NOMS 2012c, Commissioning Intentions for 2013-14: Discussion Document,NOMS,London.

NAPO 2013, Campaigning in Parliament: Increasing the Pressure, inCampaignBulletinNo7.

NationalAuditOffice2010,ManagingOffendersonshortcustodialsentences,TheStationaryOffice,London.

PrisonReformTrust 2010,PunishingDisadvantage: a profile of young people incustody,PrisonReformTrust,London.

PrisonReformWorkingGroup2009,Lockeduppotential:astrategyforreformingprisonsandrehabilitatingprisoners,TheCentreforSocialJustice.

Shapland, J.,Atkinson,A., Atkinson,H., Dignan, J. et al.2008,Does restorativejusticeaffect reconviction? The fourth report from the evaluationof three schemes(MinistryofJusticeResearchSeries10/08),MinistryofJustice,London.

Travis,A.30June2010,KenClarketoattachbankemupprisonsentencing,inGuardian,accessedon7/1/2011http://www.guardian.co.uk/uk/2010/jun/30/clarke-

prison-sentencing-justice-jailVictimSupport2010, Victims Justice:Whatvictims andwitness reallywant fromsentencing,VictimSupport,London.


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Privatisedprobation:ispaymentbyresultscompatiblewith

restorativejustice?

Dr.MartinWRIGHT30

TheBritishgovernmenthasannounceda'revolution'inrehabilitatingoffenders,totackle some of theproblems which many of them face, but it omits one seriousdisadvantage which many face:imprisonment itself.The article examines theconsultative document, a central feature of which is to privatise much of theprobationserviceonthebasisofpaymentby results.Itarguesthatthenot-for-profitsector will be at a disadvantage, and proposes a network of local voluntaryorganizations,focusedespeciallyonrestorativejustice.Thegovernmentispromotingdeferred sentences;a further step would be deferred prosecution.Thetransformationshouldquestiontherepeatedemphasisontheill-definedconceptof

'punishment' (which is not as popular as often assumed), andreplace it with'consequences',whichmightalsobeunpleasantbutwouldprimarilybeconstructivemeasuresaimedbothatreparationandrehabilitation.Weareaccustomedtogovernmentsadvocatinga'tough'criminaljusticepolicy,soitiswelcometoseeadocumentwith'rehabilitation'inthetitle,andtofindthattheMinistryofJusticeisleadingarevolution.31Shouldthoseworkinginthecriminaljustice field join the uprising? This consultation paper begins with a ministerialforeword drawing attention to the regrettably high level of re-offending, andacknowledgingthechaoticbackgroundwithwhichmanyoffendershavetocontend.TheSecretaryofStaterightlystressesthatprisonersreleasedfromshortsentences

30 Dr. MartinWright has been librarian at the Institute ofCriminology, University of Cambridge;directoroftheHowardLeagueforPenalReform;andpolicyofficerforVictimSupport.HeisaseniorresearchfellowattheFacultyofHealthandLifeSciences,DeMontfortUniversity,Leicester.HewasafoundermemberoftheEuropeanForumRestorativeJusticeanduntil2006amemberoftheboard,anduntil2010wasa boardmemberoftheRestorativeJusticeConsortiumandtheConflictResearchSociety.He is a volunteer mediator with LambethMediation Service in South London, and withCALMMediationServiceinWestLondon.PublicationsincludeMaking good:prisons,punishmentandbeyond(1982,reprinted2008);Justiceforvictimsandoffenders:arestorativeresponsetocrime(2nded.1996);Restoringrespectforjustice(2nded.2008)andTowardsarestorativesociety (2010).Heisanhonoraryfellowof theInstituteofConflictResolution,Sofia,andholdsa diplomafromthePolishCentreforMediation.In2012hereceivedtheEuropeanForum'sEuropeanRestorativeJustice

Award.Email:[email protected] This article is based on a response to the Ministry of Justice consultation: Transformingrehabilitation:arevolutioninthewaywemanageoffenders. February2013.Pagereferencesaretothisdocumentunlessotherwisestated.


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needsupport,andproposestointroduceaprogrammeofmentorswhowillmeetthemat the prison gate and have a package of supportive measures sorted out. Thedocumentgoesontospelloutthere-offendingrates:57.6%ofoffenderssentencedto

less thansixmonthsre-offendwithinoneyear, and72.5%ofalladultswithin fiveyears.'Itisclearthatafreshapproachtorehabilitationisneeded'.(p.7)

Thusfartherewillbewideagreement.Thereis,however,oneseriousomissionfromthe list of factors conducive to re-offending: the unintended side-effects ofimprisonmentitself.Officialfiguresshowthateverytimeapersonissentencedtoimprisonment,theprobabilitythatheorshewillreoffendisincreased.Forexample,amongadultoffenderssentenced inthefirstquarterof2007,25.2percentofthosewith no previous custodial sentence re-offended. When they had one previouscustodialsentence,theproportionjumpsto40.3percent,withtwoprevious,48.9percent,andsoonuntil76.4percentofthosewith11ormoreprisonsentencesoffendagain.Forjuveniles,theratejumpsfrom36.2percentwithnopreviouscustodial

sentence to 80.5per cent with one previous and 89.1per centwithmore than sixpreviouscustodialsentences(AnswerbyMariaEagletoParliamentaryQuestionbyRtHon.KeithHillMP,29October2009,quotedinWright2010,p.7).

Thisisnotsurprising,inthelightoftheknowneffectsofimprisonment,highlightedbythePrisonReformTrustfromofficialsourcesandacademicresearchinBromleyBriefingsPrisonFactfile,November2012.Oneinfourmenandhalfofallwomenonremandreceivenovisitsfromtheirfamily.Manyprisonersareheldatsomedistancefromtheirhomes:anaverageof50milesormore,andover750womenmorethan100milesaway(p.27).30%ofboysand47%ofgirlsincustodyreportedhavingnovisitsinthelastmonthorneverhavinghadvisits.Theoddsofre-offendingwere39%higherforprisonerswhohadnotreceivedvisitscomparedtothosewhohad(p.29).Thesefactorsarenotduetotheregimeinsideprisons(thoughthathasgoodandbadfeatures)buttothefactofimprisonment.Inaddition,rehabilitativeworkinprisonisvery limited: only about one fifth of prisoners with serious literacy or numeracyneedsenrolonacoursethatwouldhelpthem(p.62).Theaverageworkingweekinprisons isabout12hours(p.65).Ofcoursethereareconstructiveprogrammesandactivitiesinprisonaswell,butnotnearlyenough,andthereisnorealisticprospectofincreasingthemsignificantly.Thequestionis,isthis likelytomotivateorevenenablepeopletoavoidre-offending?Itismuchhardertoprovidetheprogrammesinprisonthan in the community, although admittedly prisonputsmorepressure on them toattend.

Rehabilitationshouldmeanmotivatingandenablingapersontochangetheirlifebyundoing theharmful influences that theyhave experiencedpreviously.Toooften ithastobeginbyundoingtheharmfulinfluencesofimprisonmentitself.


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Reducingre-offendingHenceamajorcontributiontotransformingrehabilitationandreducingre-offending

could be made by reducing the use of imprisonment.When politicians are askedaboutthis,theytendtoclaimthatsentencingisamatterforthecourts,notforthem.The consultative document states (twice) that 'It is for the courts to decide on asentenceforanindividualoffender'(pp.8,30).Butthisisatbestahalf-truth.Itisalso stated that 'The public sector probation service [i.e. what is left afterprivatisation]willadvisethecourtonsentencing,andwillneedaclearunderstandingof what rehabilitative services providers can offer, and what sentence will bestfacilitatethese'.(p.22)Probationreportswillnotproposenon-custodialmeasuresandcourtscannotimposethemifthefacilitiesforoverseeingthemdonotexist,anditispoliticianswhodecidewhatresourcestoallocatetothem.AstheHouseofCommonsJusticeCommittee(2011,p.3)hassaid,'Itisunacceptablethatsentencershandsare

tied by the unavailability of certain sentencing options because of inadequateresources'.Morewillbesaidaboutthisbelow.Also,lawsmadebypoliticianssetmaximumsentences,whichhaveaneffectonthewholesentencingtariff;recentlythey have set minimum sentences as well. ['Indeterminate sentences for publicprotection' (i.e. other than life sentences)are fortunatelyno longerbeing imposed,since 3December 2012, butmany prisoners arestill serving IPPs.] Judges cannotignoretherhetoricofpoliticiansandthepopularmedia.

Thereisalackof consistency intheapproachtosentencing: itisassumedthat ifanon-custodialsentencedoesnot'work'thenextstepshouldbeaprisonsentence;butsinceprisonsentencesalsohaveahighfailurerate,itwouldbemorelogicalinmanycasestoarguefortheimprovementofnon-custodialmeasures.

Thegovernment'sproposals

CompetingservicesinthecommunityThe proposals are based on the theory that competition increases efficiency andreduces costs. This assumption is questionable. The basis of the private sector isprimarily tomakeaprofitbydeliveringaservicewhichkeepscosts toaminimumwhilebeinggoodenoughtomeetcertaincriteria.Thereisaninevitabletemptationto'cutcorners'inordertodoso.Thebasisofthenot-for-profitsectorisprimarilytodeliverthebestpossibleservicewithintheavailablebudget.Theprimarymotivation

isjobsatisfactionandevenaltruism,andthereisnoreasontobelievethatthesearelesseffectivethanfinancialincentives.Iftheworkwereoutsourcedbytheprobationservice,ratherthanbyprivate-sectorcompanies,bothcontractorandsub-contractorswould be working to similar, not conflicting, values. Of course voluntaryorganizationsshouldberuninabusiness-likeway,buttheyshouldnotbeturnedintobusinesses,asisimpliedbyterminologysuchas'supplychain'.


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Inrecentyearstheprobationservicesmottohaschangedfromadvise,assistandbefriendtoenforcement,rehabilitationandpublicprotection.Nownotonlyistheprofitmotivetobe superimposed,butanorganizationwitha traditionandethosof

publicserviceistobeparcelledouttoanumberofcommercialorganizationswhoseprimary concern is their balance sheet. It is possible that large not-for-profitorganizationswillwinsomeofthecontracts,sothattheresults-basedpaymentscouldbe recycled into the provision of more services, but all the signs are that largecommercialcompanieswillwinthecontracts,asforexampleinNewYork,whereitisreportedthatGoldmanSachsisinvestingina'socialservicebond',calledaRikersbond'.ItwillbeguaranteedbyBloombergPhilanthropies,thephilanthropicgroupofthemayorofNewYork,whichwillback$7.2millionoftheplanned$9.6millioninvestment.Thefour-yearprogram,inwhichprivatenon-profitgroupswillprovideeducationandintensivetrainingandcounsellingtoat-riskincarceratedyouths,mustreduce the recidivism rate by at least 10 percent for Goldman to recoup the

investment.Iftherecidivismratedropsfurther,Goldmancouldreportedlyprofitupto $2.1 million beyond its original investment. If the program fails to reducerecidivismby10percent,Goldmancouldlose$2.4million.(Goldman2013).Thereportdoesnotmentionwhetherthenon-profitgroupsonwhomtheprofitdependswillbeadequatelyfunded,orwhethertheywillbeabletopreservetheirethosinthefaceofcommercialimperatives.

Itisnotclearwhythisisexpectedtobringimprovements,whenoneafteranotherwehave seen privatised services deliveringmassive failures, forexample with schoolexaminations, court interpreter services, assessment for disability payments, andsecurity for the Olympic games. Indeed it is doubtful whether Transformingrehabilitationshouldbecalledaconsultationdocumentatall,sincethegovernment

had already announceditsintentionof introducingpayment byresults initsGreenPaperBreakingthecycletwoyearspreviously(MinistryofJustice2010,pp.38-48).EffectivepartnershipworkingbetweenprovidersandthepublicsectorElsewhere the document refers to partnership, and it seems clear that partnership,ratherthancompetition,wouldbethebettermodelfordeliveringagoodservice.Itiswelcomethatthedocumentproposestoinvolvethevoluntaryandcommunitysector(VCS);butiftheprocessisbasedoncompetition,voluntaryorganizationswillbeforced to compete with each other instead of collaborating. They will also be incompetitionwiththeprivatesector,whichhas fargreater resourcesfor drawingup

bids,butoftenlittleornoexperienceofdeliveringthisspecializedservice.Theterm'supply chain' implies that commercial organizations would sub-contract work tolocal voluntary organizations. These would then be in a subordinate position,deprivingthemoftheirautonomyandthewillingnesstoexperimentwhicharethegreateststrengthsofthethirdsector.Therehavebeeninstanceswhereacommercial


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organization, having won a contract, poaches staff from voluntary organizations,whichweakensthemandtheirabilitytodotheirwork.

Insocialprogrammes,successdependsmainlyongoodrelationships,andthemajor

expense will inevitably be staff. In commercial organizations, this will lead topressuretoreducestaff,forexamplebyincreasingthenumberofpeoplesupervisedbyoneperson,and/orreducingtheamountoftimespentwitheachclient.Thereisalsopressuretoreducestaffbyusingtechnologicaldevicessuchaselectronictags,combinedwiththethreatofsanctionsforanylapses.Allthesefactorsmakeitmoredifficult to form good relationships. Also, the competitive model is based on theassumptionthatfailuretoreachtargetswillresultinthecontractbeingtransferredtoanotherprovider,whichmeansbreakingoffrelationshipsandhavingtobuildnewones.Efficientstructuraldesignandintegrationwithlocalpartnerships

Theabilityofsentencerstoselectappropriatesentencesdependsontheavailabilityofsuitableprogrammesinthecommunity,ashasbeenmentionedabove.Inthecaseofrestorativejustice,thiscouldbeprovidedbyanationwidenetworkoflocalvoluntaryorganizations,overseenbyanationalbodytoagreeandmaintainstandards,coveringboth the practiceof individual facilitatorsand the governance of the organizations.The national body would work in partnership with local probation services toestablishsuchservices,anditwouldbeakeyperformanceindicatorfortheprobationservicetoensurethattherewasoneoperatingintheirarea.Affordingthereformedsystem

Theearlierinthecriminaljusticeprocessrestorativejusticeisused,thegreaterthesavingoftimeandmoney.Hencethefirstgapintheprovisionofrestorativejusticeisat thepre-trial stage. It isopen to theprosecutor to decidenot to prosecute if thedefendanthasputrightthelossorharmthatwascaused,andinseveralcountriesthemain source of referral to restorative justice is the prosecution service. It is notnecessaryfortheaccusedtoenterafullpleaofguiltatthisstage;inNewZealandand several European countries it is only necessary that he 'does not deny' someinvolvement. This course is obviously only open to the prosecutor if amediationserviceisavailable.Anotherpossiblemethodisreferredtobelow.

Intheory,facilitationcouldbedonebyprobationorpoliceofficers,providedthey

havereceivedadequatetrainingforthisdifferentwayofworking;butatatimeofcut-backsitisdifficulttoseehowtheycoulddoitexceptattheexpenseofotherduties. The involvement of the VCS is desirable for its own sake, as part ofgovernment policy, and has the additional advantage of low costs, since it relieslargelyonvolunteers.


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Howwouldtheproposalswork?

MaximisingtheresultsfromGovernmentandpublicsectorresources?

Given the need to reduce public expenditure, the most effective policy is not torequire cuts across-the-board,but tostrengthen themore cost-effective services, toenable reductions to bemade in themoreexpensiveones. This could be donebyadaptingthepayment-by-resultsbasis:specificcommunity-basedprogrammeswouldreceivefundingdependentonachievingmeasurableresultssuchaseitherareductioninthenumberofcasesbroughttocourt(whichwouldresultfromeitherareductionincrimeoranincreaseindiversiontocommunity-basedprogrammes);orareductioninthenumberofmonths'imprisonmentimposedbythelocalcourt(whichwouldresultinareductionintheprisonpopulation).Programmeswouldbemonitoredtoensurethat the offenders referred to them were suitable, that victim satisfaction was

maintained,andthatthelocalcrimeratedecreased,oratleastdidnotincrease.Voluntaryorganizationsinparticularwillbeabletodeliveramoreeffectiveserviceifsomuchoftheireffortdoesnothavetobedevotedtofund-raisingandtendering;thisisaformofbureaucracy,whichtheMinistryrightlywantstoreduce(p.8).EnhancingoutcomesProgrammesshouldincludeaprocessforfeedbackoffactorsassociatedwithcrimetothe authorities associated with social policy. Restorative justice, with its non-adversarialmethodofdialogue,isespeciallysuitedtothis.Italsoidentifiestheneedsof victims and offenders for serviceswhich are needed to assist their support and

rehabilitation.Itshould,therefore,beincludedinthelistofrequirementsonp.30(para.2).BuildingnewflexibilityintothedeliveryofcommunityordersRestorative justice is especially suitable for this, because it involves victims andoffendersinagreeingthebestwayfortheoffendertomakereparation;thiswilloftenincludetakingpartinarehabilitativeprogrammedesignedtoreducefuturecriminalbehaviour.

The over-reach of the criminal justice system is not only expensive but actuallycounterproductive.Criminalconvictions have a stigmatizing effectwhichmakes it

harderforoffendersto'gostraight';casesshouldthereforebedivertedwherecriminalprosecution is not essential. In New Zealand and several European countries asubstantialnumberofminoroffencesaredivertedinthisway.Restorativejusticeisaneffectivewayofdoingso,becauseitisnota'let-off':itmakesmoredemandsonoffendersthanpunishmentsdo,infacinguptotheeffectsoftheiractionsonvictims.


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Thisisanadditionalreasonforestablishingthelocalmediationservicesmentionedabove.

Wouldthepaymentstructureimproveperformance?The measurement of re-offending is complex, as the consultation documentrecognises(pp.17-18).Abinarymeasureisunsatisfactory;amorerealisticpictureofoutcomeswouldrequirecategoriessuchasthoseusedbyMaxwellandMorris(2001,p.249):thepersistentreconvicted,theimprovingreconvicted(offendedforatimebutthenstopped),theoccasionalreconvicted(2to5offences),theonce-onlyconvicted,andthenotreconvicted.Failingthat,atleastthereshouldbethedistinction,usedinMinistry of Justice research,between preventing any reoffending and reducing thenumberofre-offences(Bewley2012,Shapland etal.2011).Itwouldbeconsiderablysimplerandlessexpensivetouseanindirectmeasurementofre-offendingthatwas

directlylinkedtocostsavings,suchasareductioninthenumberofcasescomingtocourtorareductioninthenumberofmonths'imprisonmentimposed,asproposedabove.Thesewouldbecoupledwithchecksofthecrimeratetoensurethatthesavingincostswasnotaccompaniedbyanincreaseincrime.

Bureaucracycouldbeavoidedinthevoluntarysectorbyminimizingthetimespenton tendering and grant applications; in particular, when a contract was fulfilledsatisfactorily,itshouldberenewedwithoutarepetitionofthetenderingprocess.Thiswouldalsoassistinmaintainingcontinuityofrelationships.

Inspection should include regular meetings with managers, staff, victims andoffenders(andrelativesorguardiansinthecaseofjuveniles),toassesswhethertheprogramme was helpful in supporting victims, holding offenders to account, andenablingthemtofulfiltheiragreements,withaminimumof'tickingboxes'.

The voluntary and community sector should receive assistance in applying forcontracts initsown right,andnot bedependentonsub-contracts fromcommercialorganizations.Whatlegislativechangesareneeded?

Diversion by prosecutors to enable a restorative process to take place is alreadypossible under the Code for Crown Prosecutors (para. 5.10 h), but it would behelpfulifthiswasconfirmedinstatute.Thishastheadvantagethatthesanctionfor

non-compliance would be prosecution, rather than an additional penalty. TheprincipleoftheDeferredProsecutionAgreement(DPA),containedinSchedule16,para.5(3)oftheCrimeandCourtsBill,whichiscurrentlyavailableonlytoabodycorporate, a partnership or an unincorporated association, could be appropriatelyadaptedtoapplytoindividuals,asproposedbyLordMarksofHenley-on-Thames


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(Hansard[HL]13November2012,col.1479)andnotruledoutbytheGovernment.TherequirementsthataDPAmayimposeinclude,forexample: tocompensatevictimsoftheallegedoffence;

todonatemoneytoacharityorotherthirdparty; todisgorgeanyprofitsfromtheallegedoffence; toimplementacomplianceprogramme; toco-operateinanyinvestigationrelatedtotheallegedoffence; topayanyreasonablecostsoftheprosecutor.

TheDPAmayimposetimelimitsforcompliance.Defendantsshouldnot,however,avoidprosecutionsolelybecausetheypaycompensation,astheCoderightlysays.The role of the residual probation service and the new Police and CrimeCommissioners

As proposed above, the probation service should be encouraged, through keyperformance indicators, to promote the establishment of local services for thedeliveryofrestorativejustice.TheavailabilityofrestorativejusticeservicesshouldalsobeoneoftheCommissioners'keyperformanceindicators.MaintainingstandardsTheRestorativeJusticeCouncilisalreadyaccreditingindividualpractitioners,anditsrole shouldbeexpanded to include the promotionof localmediationservices andtheir accreditation and supervision, in partnership with the probation service. AsBaronessLinklaterhassaid:

Theproposal that [restorativejustice]shouldbereadilyavailable tothecourts, victims and offenders is an enormously important move. ItrepresentstheembodimentofthesameprinciplesofeffectivejusticethatI have already discussed-namely awareness, knowledge, understandingandmeaningfulengagementwiththeparticipants,particularlyvictims.IhavesupportedtheseprinciplesandtheworkoftheRestorativeJusticeCouncilforyears.Iwelcometheseproposalsashavingthebestpossiblepotentialforenablingpositiveoutcomesfollowingthedamageofcrime.

However,shewarned:

Mycaveatisthatitwilltakeagreatdealoftimeandlargeinvestmenttoprovideadequatenumbersofsuitablytrainedandaccreditedfacilitators,whoarethekeytotheprocess.Sentencerswhowouldbeinitiatingtheprocess currently have no established tradition in the use ofRJ. Theywould need training aswell as convincing.Thewhole processwill beextremelycomplexandexpensive,anditwillbevitaltoensure thatthe


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qualityofdeliveryisofthebestandnotrolledoutinapiecemealfashion.Itwouldbeadisasterifexpectationswereraisedwithoutadequatequalitydelivery.Thatwoulddestroyconfidenceandsettheprogrammebackfor

alongtime.TheGovernmentmustclarifynotonlyhowmuchtheyareplanningto invest intraining,promotinganddeliverybut the estimatedtimescale for the rollout of RJ. I cannot imagine that it will becomewidely let alone generally available for some considerable time, evenwiththeexpertadviceandsupportoftheRestorativeJusticeCouncilandotheragencies.(Hansard[HL]30Oct2012,Column534-5)

TransformingrehabilitationIfrehabilitationistobetransformed,theemphasisneedstobechanged.Theattempttocontrolbehaviourbyfearonlyworkswhentheindividualperceivesahighriskof

being found out and not always then. It is alsoan unattractive basis for a societybasedonmutualrespect.Motivatingpeopletobehavebybuildingontheindividual'sself-worth and need tobevalued isultimately more effective, although initially itmaybemoredifficult.Controlisobviouslynecessary,butthekeywordsshouldbetopersuadeandenable.

Oneimportantwayofdoingthisisthroughrestorativejustice,whichsurprisinglyisnotmentionedinthedocument.Thisisawayofencouragingempathy,althoughofcourse it cannot guarantee it. It is not easy for the offender, but instead of paininflictedbytheauthorities,whichmakestheoffenderthinkofhimself,hehastofacethepainful realization thathehashurtsomeoneelse. Itis avoluntaryprocess (andsome offenders cannot face it, which contradicts the claim that it is not 'tough'

enough), but for those who do, and undertake to make reparation, they are morelikelytocompleteitbecausetheyhaveagreedtoit.

Reparationisnotlimitedtoanapologyorcompensation:whatmanyvictimswantmostisthattheoffendertakesactionthatwillmakehimlesslikelytooffendagain.Atthispointthereisaresponsibilityontherestofthecommunitytoenablehimtodoso.Ifheneedsworkskills,literacyornumeracy,ortreatmentforaddiction,suitableprogrammesneedtobeavailable.Theywillofcoursealsoberequiredinthosecaseswherearestorativeconferenceisnotpossible,forexamplewherethevictimdoesnotchoosetotakepart.Ispunishmenttheanswer?

Are-thinkisneededoftheassumptionthatpunishment,inthesenseofdeliberateinflictionofpain,iseffectiveincontrollingbehaviourordesiredbyamajorityofthepublic.An ICM survey of 1,085 victims of non-violent crime for theMinistry ofJustice(16November2007)foundthatalthoughvictimsofnon-violentcrimesintheUK want offenders to be punished, they do not believe that prison is always the


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answer.81%wouldpreferanoffendertoreceiveaneffectivesentenceratherthanaharshonewithnearlytwothirds(63%)disagreeingthatprisonisalwaysthebestwaytopunishsomeone.Anoverwhelmingmajorityofrespondents(94%)saidthemost

important thingto themwasthat theoffenderdidnotdoitagain,whilefewe

Mediere Vol.iv No.2 2013

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Transcript of Mediere Vol.iv No.2 2013