Preventing Racist Violence Work with Actual and Potential Perpetrators – Learning from Practice to Policy Change

A Runnymede Report by Sarah Isal rvnigRcs Violence Racist Preventing

About Runnymede The Runnymede Trust is an independent policy research organisation focusing on equality and justice through the promotion of a successful multi-ethnic society. Founded as a Charitable Educational Trust, Runnymede has a long track record in policy research, working in close collaboration with eminent thinkers and policymakers in the public, private and voluntary sectors. We believe that the way ahead lies in building effective partnerships, and we are continually developing these with the voluntary sector, the government, local authorities and companies in the UK and Europe. We stimulate debate and suggest forward-looking strategies in areas of public policy such as education, the criminal justice system, employment and citizenship. Since 1968, the date of Runnymede’s foundation, we have worked to establish and maintain a positive image of what it means to live affirmatively within a society that is both multi-ethnic and culturally diverse. Runnymede continues to speak with a thoughtful and independent public voice on these issues today.

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Foreword word ‘Murder is among the most horrendous of crimes, but any discussion of violent racism must link the extreme to the “everyday”.’ (Ben Bowling 1999: xiii)

Preventing Racist Violence publishes the findings and recommendations of two years of research work at the Runnymede Trust. Runnymede started this project with the absolutely basic idea that something needed to be done to forestall racist violence before it could happen. We end this project and present this report with a similar message – preventative approaches need to be brought to the fore. Support for punitive approaches rather than addressing the root causes of violence has not reduced racist attacks and racist crime. At the time of publishing our first report on this subject,* Dr Richard Stone, Vice-Chair of Runnymede, noted in his foreword that little attention could be paid by the Stephen Lawrence Inquiry to those who apparently carried out the murder of Stephen Lawrence because of the Inquiry’s narrow terms of reference. This also limited the opportunity for discussion about those who had committed countless other racist attacks. Beyond the Stephen Lawrence Inquiry, we examined what others have had to say about preventing racist violence, and what they recommend when particular emphasis is directed towards actual and potential perpetrators. While there appeared to be a significant amount of project activity by researchers and care professionals that focused on the needs and problems of victims, little analysis was to be found on preventative interventions. Throughout this programme of work, we have been identifying the many ways in which community-based organisations and the statutory sector respond to racist violence, particularly amongst the young. By assessing the preventative value of these strategies for devising and developing schemes to combat racist offending, we have developed recommendations on how to promote primary and secondary prevention as a means of combating racist violence and harassment. Case study examples distributed throughout the pages of this report illustrate how these recommendations work in the day-to-day. These illustrations help us share the learning experiences of different real-life projects and interventions. They also promote our contention that good practice can always be improved upon, and that the sharing of experience is one of the best ways to bring what seems intractable within the bounds of achievement. The recommendations go wider than on-the-ground practice, however, to include specific and targeted action. These individual action points are addressed directly to their potential audiences: central and local government, practitioners in the voluntary and statutory sectors and funders – government and independent funding organisations alike. Indeed, the need for a formal strategy and commitment to preventative approaches from within central government, and the delivery of such a strategy through multi-agency actions, is called for here. Likewise, the value of approaching this problem through both crime reduction and community cohesion agendas is strongly advocated. The political and social context we find ourselves facing today – the bombings in London on 7 July and their aftermath, the racist murder of Anthony Walker on 29 July and the intense and often confused public debate on who and what we are as a society – renders the subject of this report even more pertinent than we could have imagined. We * O. Khan (2002) Perpetrators of believe that the findings and recommendations presented in these pages can contribute to Racist Violence and Harassment. effective policy change, and will serve to improve the work we all do to address the root London: Runnymede Trust.The causes of racist violence in their many complexities. Inquiry’s remit was to address matters arising from the death of Stephen Lawrence and to Michelynn Laflèche make recommendations mainly Director of the Runnymede Trust in relation to the policing of October 2005 racist incidents.

i rvnigRcs Violence Racist Preventing

Acknowledgements

This research project was made possible with the generous support of the Amberstone Trust, Bridge House Trust Jubilee Grants Scheme and the City Parochial Foundation. We could not have undertaken this important project otherwise and we are grateful for the opportunity provided by their support. Throughout the course of this research many individuals have also offered us help and contributed to the project in a variety of ways: some as members of the steering group, others as members of the various local reference groups, others still through the provision of general and continuous support and guidance. We would like to express our thanks to all of these people for their help and encouragement, in particular to Ben Bowling, Dave Frame, Roger Hewitt, Vic McLaren, Doug Nicholls, Elena Noel, Aarti Patel, Balkiren Rai, Richard Stone, Keib Thomas, Baroness Whitaker and Aine Woods. Finally, we could not have drafted findings and recommendations unless we had been able to interview and visit the many organisations and individuals who took part in the research process. Thanks to all of you for participating. We hope you can see your work in this report and that the learning you have gone through will benefit others in the future.

Sarah Isal Senior Research and Policy Analyst The Runnymede Trust

ii Contents iii 10 19 9 8 10 8 ddressing Health Inequalitiesddressing 11 eoffending 9 outh Policy 11 Neighbourhood Renewal 10 Citizenship Education 10 Civil Renewal 10 A Y Sentencing and Prison Populations 8 R Anti-social Behaviour 9 Violence Prevention and Racist Crime Reduction 9 ents ts for Our Research 7 Our Research ts for The Community Cohesion Agenda Developments Other Policy Community Cohesion and Racist Violence Prevention Community Cohesion and Racist Legislation Agenda The Crime Reduction Where Most of the Identifiable Work Takes Place Takes Work Most of the Identifiable Where ex ee Phases 14 nt r olicy Context 7 olicy Context olicy Analysis 16 olicy Analysis elf-standing Anti-racist Prevention Projects 19 Prevention elf-standing Anti-racist he Research Literature 6 Literature he Research

rd i enting Racist Violence Racistenting ts iii (1) A Home Office Definition 12 Definition (1) A Home Office within Crime Reduction 12 (2) As Used Agencies Sector 12 Work (3) As Modified by Assumptions 13 (4) Refuting Common Victims 13 Be Also Can (5) Perpetrators Black 13 versus White Seen as (6) Perpetrators Th P Understanding Existing Theory 14 Understanding Existing 15 Violence Racist to Prevent Mapping Initiatives P S Case Study 1 18 Definitions that Shaped Our Work 6 Work Shaped Our Definitions that Co Background 6 Background T wledgements ii o

ev rk with Actual and Potential Perpetrators Actualrk with and Potential he Report in Context 5 kn Main Report in Detail Findings 17 Executive SummaryExecutive 1 T II. Perpetrator’‘Potential on the Six Observations III. Methodology 12 14 I.What’s Being Done and Where in Current Prevention Practice Prevention in Current I.What’sWhere Being Done and 19 I. Framework and Policy Research 6 Ac Conten Forewo Wo Pr Change to Policy Practice from – Learning Cont rvnigRcs Violence Racist Preventing

The Focus is on the Punitive rather than Preventative 19 (1) Punitive 19 Case Study 2 20 Within the mainstream criminal justice system 19 Crime reduction as a government objective 21 Case Study 3 22 (2) Preventative 23 Challenging attitudes requires long-term actions 23 Behaviour is easier to measure than attitudes 23 Case Study 4 24 Racist violence prevention is not given priority 25 Case Study 5 26 II.Working with Potential Perpetrators in the Current Policy Context 27 Understanding the Contextualised Environment 27 Work with Perpetrators versus Victim-focused Work 27 Bringing perpetrator and victim groups together: the Community Cohesion agenda 27 Case Study 6 28 Perpetrator and victim work to prevent racist crime: the Crime Reduction agenda 29 Primary, Secondary and Tertiary Prevention – Linked or Confused? 29 Primary and secondary interventions often operate simultaneously 29 Case Study 7 30 Social approval of racist perpetrating behaviour needs to be neutralised 31 Case Study 8 32 III. How to Support and Sustain Work with Potential Perpetrators 33 Long-term Support 33 Measuring Outcomes: (1) attitudes 33 Measuring Outcomes: (2) prevention 33 Case Study 9 34 Funding policies on secondary intervention 35 Lack of long-term funding 35 Dependence on government priorities 35 Case Study 10 36 Encourage Networks, Multi-agency Work and Cross-sector Partnerships 37 Importance of information-sharing beyond localities 37 Case Study 11 38 Multi-agency work – Models for prevention 39 Understanding the ambivalence of partnership 39 Cross-sector partnerships: crime reduction and community cohesion 40 Cross-sector partnerships: anti-racism and anti-crime 40 An Undervalued Sector that Needs Moral Support and More 41 IV. Areas for Further Research 43 Appendices 45 I. Tabulation of the Report Recommendations 45 II. How Racist Incidents are Recorded 48 III. Bibliography 49 iv Executive Summary 1 ences take you to the to takeences you R28).

indings text and to the tabular indings text and to elevant section of the Mainelevant 1 Page numbered cross- numbered 1 Page refer r F summary of Recommendations R1 in the Appendix (numbered to 1 rime prevention programmes should programmes rime prevention acist violence. (R4+p.25) acist violence. (R5, R6+p.25) acial harassment. acist crime is the need for strong be encouraged to examine how they how to examine be encouraged can successfully impact on preventing r legislation and policy Crime reduction (including anti-social behaviour needs to assess its impact strategy) racist or preventing on reducing and and tackling racism violence, r Crucial to the success of tackling r government central from leadership approach. to focus on a preventative certainly are measures Punitive important for dealing with These violence. of racist perpetrators work must be allied with preventative (R2, R3 with potential perpetrators. +pp.23,25) easons. Some are drawn from examples from drawn are Some easons. and effectiveness aising the profile, • Good crime prevention includes Good crime prevention crime of racist prevention crime prevention Mainstream with potential that work programmes but too often they do exist, perpetrators attitudes and racist fail to address violence. •C community and funders. Some represent Some community and funders. that arise the thinking and conclusions examined; have we practices the from the thoughts and wishes express others in these work whose of practitioners for all the right fields is widely respected r in the encountered of good practice the reflect others of the research; course lessons that should be learnt and the and groups challenges faced by individuals trying to tackle racist with potential work violence through crucial in think, are All, we perpetrators. r success of this work. must also be tough policy Government crime on the causes of racist •

o years of research on projects that projects on of research o years

found many layers of endeavour, layers found many Tw Current work to challenge attitudes to to challenge attitudes work Current contained in The recommendations

acist violence remains a serious acist violence remains ather than finding, as we had ather than finding, as we eduction agendas), the research ecommendations of the report educe racist violence. The violence. educe racist problem within the UK. All violence is a within problem Violence that also matter of concern. of its subjects, denies the humanity between relationships destroys corrupts our ability to and communities, a society is a cause function together as over concern. Last year greater for even our came before four thousand cases a racist deemed to have courts that were to be the tip of This is likely motivation. designed to Activities the iceberg. of the subject are challenge this trend report. this research R Executive Summary Executive anticipated, an existing network of network anticipated, an existing a single aim, towards activities directed we of connectedness degrees with varying of sectors While many and success. or directly are, and policy practice with tackling racist involved indirectly, through violence and harassment their attitudes, changing the perpetrators’ not being maximised or efforts are widely shared. encapsulate where we think schemes to think schemes we encapsulate where violence should be going tackle racist that will be reform and the kind of policy change effective necessary to make happen. violence is surprisingly racist prevent the scale of the problem. given scarce R action that should be address this report local government, central by taken range a (across practitioners authorities, with including those working of sectors, the community cohesion and crime r r take on the challenge of preventing racist on the challenge of preventing take us with some provided violence have insight into what needs to be done to r ention projects that bring together ention projects v orking together to tackle the racist ork with potential perpetrators needs ork with potential perpetrators longside interventions with longside interventions gencies that work primarily with gencies that work re artnerships formed to undertake artnerships acist attitudes of young perpetrators, acist attitudes of young violence, including schools, primary schools, including violence, voluntary/community trusts, care and minority ethnic black sector, as as well organisations, community justice organisations. criminal (R23+p.42) to in relation work collaborative need to be both strategic perpetrators in their presentation and pragmatic should take They and performance. of nature into account the sensitive group the target both the matter and police overt example, For involved. with be sensitive may involvement (R25+p.42) groups. certain target full account of the wider social to take in as the local situation as well context in the to be able to intervene order (R9+p.29) way. most effective should also take work perpetrators, place to challenge the attitudes of wider society when it condones the r or tacitly, and in so doing, explicitly to their support dangerous gives (R11+p.31) intolerance. they should consider how offenders, an impact on potential could have and the wider perpetrators can how example, For community. best engage with a work probation (R12+p.31) strategy? preventative attitudes of potential perpetrators calls for the building of strong sectors, different between partnerships those who work especially between and those with potential perpetrators with black and minority who work (R18+p.42) ethnic communities. potential perpetrator and victim groups potential perpetrator can be particularly successful if they is clear that one of their objectives are (R10+p.29) attitudes. to challenge racist •P should violence racist Preventing the whole community involve •W •A •A •W •P formal structure would encourage would formal structure ulti-agency work needs to take in needs to take work ulti-agency

eople (PAYP) should be encouraged eople (PAYP) outh services and local authorities acist violence. (R20+p.42) For (R20+p.42) acist violence. (R22+p.42) responses. eactive the full range of sectors that are and that are of sectors the full range racist in preventing could be involved should budget positively to provide should budget positively work for youth adequate resources that aims to challenge the racist of attitudes of potential perpetrators r such initiatives government instance, for Young Activities as Positive P to focus on the cohesion dimension on the than only rather of their work, (R7+p.25) aspect. crime diversion on prevention work Multi-agency multi- needs to build on existing such as Crime structures, agency Partnerships Reduction and Disorder incidents panels (CDRPs) and racist within local authorities. operating (R22+p.42) multi- have CDRPs already Where they incident panels, racist agency strategy should include a prevention than only rather within their remit, r the sharing of good practice in the practice the sharing of good exchange cross-sector especially area, (R2+p.23) and information sharing. would This type of structure with potential work more encourage violence. of racist perpetrators encies must work together to encies must work or mainstream crime prevention crime or mainstream Ag violence racist prevent so rely strategies Because prevention much on the sharing of ideas and and networking effective techniques, between exchanges collaborative and agencies need to be encouraged supported. (R2+p.23) • • •M •Y Preventing racist violence should be violence racist Preventing in policy embedded F the on board to take programmes a violence as of racist prevention within a formal structure priority, to provide is needed government and embed policy leadership, strategic (R1+p.23) practice. good share •A

Preventing Racist Violence 2 Executive Summary 3 of work effectiveness enting racist violence enting racist rev aluation and measurement of measurement aluation and cceptable Behaviour Contracts – Contracts cceptable Behaviour dditional research is needed on dditional research esearch that looks at how to that looks at how esearch v urther research on perpetrators is on perpetrators urther research the should explore urther research acist violence, and examine whether and examine acist violence, acist violence between different acist violence between emains difficult. Funding agencies Funding emains difficult. need to know more about what more need to know

Specific and systematic research Specific and systematic CDRPs have way should look at the against racist included the fight strategy, violence in their overall with dealing are they including how challenges and issues of resources, the help raise This would successes. of the importance of profile violence at local combating racist (R24+p.42) level. is a need for research There Anti- of the effectiveness appraising (ASBOs) and Orders Social Behaviour the by other instruments provided agenda (i.e. anti-social behaviour A violence. ABCs) on tackling racist (R6+p.25) the measure that challenges racist attitudes would that challenges racist and be useful for practitioners (R17+p.37) alike. policymakers that challenges needed – research their popular assumptions around and the causes of both motivations and their violent their racist (R26+p.43) behaviours. a typology potential for devising of potential perpetrators around r in such a typology could be effective (R27+p.43) violence. racist preventing r black and minority ethnic violence) or communities (inter-racial migrants arrived recently towards (R28+p.43) and asylum-seekers. outcomes in prevention work in prevention outcomes r of the validity need to recognise and soft evidence anecdotal the success of outcomes in assessing (R16+p.37) initiatives. orks in challenging racist attitudes racist orks in challenging w and p • • •R •F •F •A •E We ent racist rev actitioners (including youth (including actitioners orkers, mediators and community and mediators orkers, r unding for work to bring about unding for work unding should also be used to outh workers feel that although outh workers espond to needs experienced at the espond to needs experienced their work can be effective in can be effective their work it crime, racist or reducing preventing should not be co-opted solely into crime people from young diverting crime). Instead they (including racist as more should define their work and in its objectives aspirational challenging attitudes outcomes (e.g. or increasing based on prejudice, social inclusion). (R8, R21+pp.25,42) Black and minority ethnic and race community organisations should offer equality organisations support to those working greater racist of with potential perpetrators (R18+p.42) violence. attitude change should be long-term for changes in to allow in order sustain To root. attitude to take momentum and affirm long-term to funding must be allowed effects, for longer support successful projects (R15+p.37) periods than at present. of doing the demanding nature Given that challenges racist the work funding agencies should be attitudes, attempts bold in supporting creative violence that racist to prevent r (R13, R14+p.37) roots. grass support officers) should be provided support officers) – vocational, with adequate support and financial – to feel psychological, with to work confident enough of racist potential perpetrators are they where violence in situations and challenging their attitudes (R19+p.42) prejudices. facilitate the sharing of practice (R14+p.37) sectors. across w Effective and innovative work and innovative Effective attitudes needs challenging racist and consistent funding secure •F • • •F •Y violence •P Practitioners need more support in support need more Practitioners p to effectively order et, and that comes if it is made into et, and that comes (A Mediator, London, 2004) (A Mediator, ‘The lack of support comes sometimes of support comes ‘The lack government. local and central from the agenda, it is don’t put it on If they for us to act going to be problematic of the a non-recognition is on. There needs to be intervention fact that there It’s violence] happens. it [racist before to want really we If reactive. all very on need to work we eliminate racism, it hasn’t happened where that soft area, y or government a priority at central people where with education agencies the open and will make will be more with to work time and resources agencies on this…’.

Preventing Racist Violence 4 The Report in Context

The Report in Context

Before going into the detailed findings of the report, it is important to understand the way in which our study fits the wider context of both policy and current research and how we carried out the work.

Section I outlines the policy framework, current research and definitions that have shaped our findings. It explains how our work fits within the wider policy context.

Section II brings together six separate observations on potential perpetrators.These observations draw on both our desk research and policy review findings, as well as our primary research with practitioners, in order to shed some light on the complex and at times controversial notion of the ‘potential perpetrator’.

Section III sets out the methodology we used for conducting our project.

5 ‘The 5 orked with orked w 7 While those actors of deprivation actors 3 F 4 6 orking with society at large to orking with society at large erpetrators of Racist Violence? of erpetrators oung and male, with perhaps half oung and male, educed. acist responses in those who are acist responses these definitions in a study in 2000. and bring environment They us reminding together by motivation that to effect change it is necessary by Primary Prevention to undertake w views held by all kinds of by held views ethnic towards perpetrators the wider by shared minorities are belong’, communities to which they and this wider perpetrator community needs to be confronted is to be harassment if racial r and youth inactivity can encourage and youth r in their or insecure frustrated and social settings. physical Hollin and Palmer P of other often perpetrators are They crimes as well. committing the violence tend to be y the ages of 16 and 25, between may and the old the young females, supportive a in creating be involved and of prejudice context delinquency. efinitions that efinitions that esearch we describe below. we esearch 2. Environment. 3. Intervention. Categories of Three legislate and act against racist violence; racist legislate and act against typologies existing and (III) to examine and their communities of perpetrators around identify groups and thereby violence racist prevent to which work conducted. might usefully be D Work Shaped Our definitions that Some of the key have report this 2002 from emerged of the influenced the shape and nature r 1. the Potential Who are The main 2 . erpetrators of Racist erpetrators P olicy Framework P decided it was time to do some of decided it was Whilst the Inquiry provided the Whilst the Inquiry provided

luable results, the Inquiry was luable results, he Research Literature he Research as not authorised to look into the orth dealing with, the emphasis was outh cultures; (II) by looking at the (II) by outh cultures; emind ourselves of what often emind ourselves esearch report report esearch acist incidents. Although it produced acist incidents. violence and more acially motivated has been carried out esult, little work function of that report was: (I) to was: function of that report summarise what the research social in sociology, literatures tell and criminology could psychology and delinquency us about prejudice, y of minority historical experiences ethnic communities in the UK, to r central formulation by underpins policy in their attempts to government T We began with a and we that work, r Violence and Harassment Background ago, public services in the years Five the from criticism UK faced severe Inquiry for Stephen Lawrence The Inquiry institutional racism. of motivation the racial acknowledged and Stephen Lawrence, of the murder recommendations aimed to make of to the policing mainly in relation r va It terms of reference. narrow bound by w motivated possible causes of racially no significant attention was and crime, the Inquiry to those who paid by of Stephen carried out the murder Lawrence. impetus to consider governmental r issue hate crime as a policy generally w placed primarily on bringing racially and to justice offenders motivated As a enhancing support to the victims. r racist of on the origins and prevention violence. I. and Research NSPCC . Note 4. Routes of The erpetrators of erpetrators P ondon: op cit L otecting from Children Stoke-on-Trent: Pr entham Books. olicy Practice Research Series. olicy Research Practice erpetrators of Racial erpetrators ondon: Home Office; C. Barter ondon: NSPCC. (1999) Racist Violence. Trust. Runnymede 3 Khan (2002: 14). 4 R. Sibbitt (1997) P Violence. and Racial Harassment Study no.Research 176. L Racism and Racial Abuse 5 R. Hewitt (1996) P L Racism. Tr 6 Sibbitt (1997) 2 O. Khan (2002)

Preventing Racist Violence 6 Research and Policy Framework 7 Note 2. 13. Oxford: Violent p. op cit Report Racist Incident Monitoring han, 2002: iii). In light of this K ndon: CPS.

cused on the problems of cused on the problems alker on 29 July 2005, which ffice, March 2000, of University eicester. ommissioned by the Home ommissioned by esearchers and care esearchers eelings of horror and fear’eelings of horror 9 B. (1999) Bowling Racism: Victimization, policing and social context, 7 C. Hollin and E. (2000) Palmer Racially Reducing Reoffending by Offenders: Motivated A review of the evidence. c O L 8 Khan (2002: 44) Clarendon Studies in Clarendon Criminology, OUP. ‘The provoke perpetrators 10 f in his Foreword (Richard Stone to observation it is not surprising, perhaps, that most of the analysis and project activity by r has thus far professionals fo victims than the rather perpetrators. Service Prosecution 11 Crown (2004) Annual Report 2003–2004. Lo attack on Anthony racist The 12 W the similarities to bears so many of Stephen circumstances death,Lawrence’s speaks clearly and ongoing of the obvious be crime to hate need for an end. to brought had some

we 12 set out to map those existing

motivated by the findings of the by motivated

. Similarly, the community . Similarly, We In general, these measures have these measures In general, re 01 olicy Context ork undertaken by government in government by ork undertaken eaching out to and changing the acist violence (see the Methodology esponse to the same catalyst. esponse to the same catalyst. eacted to particular events. We have We eacted to particular events. educing crime in general. Other areas educing crime in general. local and community-based projects of as a means that use prevention r of attitudes of potential perpetrators r section for details). And much as we we preconceptions about the work already the work about preconceptions that was Our initial premise going on. that aimed to work although projects of racist with potential perpetrators mainly were they violence existed, local and very community-based, with limited in isolation operated also It was support and funding. existing from thought that practices been to have unlikely were projects written up and shared. Stephen Lawrence Inquiry we were also were Inquiry we Stephen Lawrence of the context mindful of the policy w r materialised when the government has materialised when the government r for of proposals seen the emergence hatred legislation to tackle religious new the rise in ‘religiously following crime’ since the terrorist aggravated September on 11 York attacks on New 20 The government has taken a number of has taken The government steps since the Stephen Lawrence Inquiry to tackle hate crime and more The violence. specifically racist either focused on are have we measures legislation, through addressed directly part of policies such as community are for cohesion, or part of a wider remit r also offer development of policy racist to prevent support for work challenging attitudes. violence by P the cohesion agenda surfaced following of disturbances in the Northwest and the England in the summer of 2001, from fulfilling that potential for fulfilling that from men of young at the expense violence Lawrence, Stephen like 8 11 ; and In 2003–4 general 10 to working with to working ; identifying and 9 looking at what could be potential perpetrators clusion’. owever, owever, ertiary Prevention, with those who with those ertiary Prevention, xplains his use of the notion of … Subtle forms of racism xplored. in the form of aggression xpressed ntexts for Our Research ntexts for H developing a range of strategies for of strategies a range developing the consistently addressing community’s perpetrator ethnic minorities – attitudes towards as much the backbone of are racist to prevent thinking about how the Primary, violence as are Prevention Secondary and Tertiary This is categorisations noted above. when he Ben Bowling by developed e the because it ‘allows violent racism racist connections between practices, exclusionary discourses, of violence to be and experiences e with racism can thus be reconnected e What unites all of and violence. in the is their root these experiences of racist language and behaviour ex Her three concentric circles – concentric circles Her three against identifying and acting perpetrators diverting offenders was advocated by Sibbitt. by advocated was offenders change racist attitudes; Secondary attitudes; change racist with potential working Prevention, to violence racist of perpetrators and offending; them from prevent T offended, aiming to already have reoffending. them from prevent . Yet these issues are of great these issues are . Yet there were 4179 prosecutions for racially prosecutions 4179 were there were of which 1056 crimes, aggravated This is an increase assaults or harassment. 12.8% since 2002–3. of approximately 4. Approach A Holistic Co conducted work began to examine As we of racially with the perpetrators so more and even violence, motivated aware were we with potential offenders, to come hard was research that reliable by to especially so in response importance, violence in eruptions of street the 2001 of England. the Northwest done to deter potentially violent racists 20 16 set up to called on 17 ecommendations 21 R 19 and enacted in the Criminal 18 mainly geared towards a towards mainly geared

re amine the sentencing process, saw amine the sentencing process, duce crime in a cost-effective way. duce crime in a cost-effective as set up to examine correctional as set up to examine eoffending eoffending, published by the Home eoffending, published by oluntary and private sectors to sectors oluntary and private eduction of the prison population r and wider use of rehabilitative including restorative practices When prisoner numbers justice. than fall, continued to rise rather – – the Carter Review another review w to services and suggest a strategy re we agencies to work more closely more agencies to work to how It explored together. both way, in an effective intervene along nationally and regionally, ‘pathways’ recognised seven (housing and accommodation, This included the establishment of a National Offender Management Prison and Service (NOMS), merging with the Services, Probation with the possibility of contracting v services within the criminal provide justice system. R Plan to Reduce The Action R Office in July 2004, The Halliday Review, The Halliday 2003. Justice Act ex up in of its conclusions taken many All’ ‘Justice For the White Paper (2002) Sentencing and Prison Populations he Crime Reductionhe Crime Agenda eduction Bill provides the Police with the Police Bill provides eduction ears the criminal justice system has criminal justice system the ears • T famous commitment Despite Labour’s on the causes of to be equally tough itself, in the last 8 crime as on crime y of sentences numbers seen increasing the population. Over and a rising prison agenda the crime reduction last 5 years, of legislative has witnessed a number aimed developments and policy the prison principally at reducing and reoffending population, preventing anti-social behaviour. on down cracking • R gun, to in relation powers enhanced violence. alcohol-related knife and 14 15 Examining 13 ct 2001 – added the category of ct 2001 ace Relations (Amendment) Act ace Relations 000 – required the institutions of the 000 – required eligiously aggravated offences, as offences, eligiously aggravated Other recent criminal justice Other recent Public Order Act 1986 – prohibits Act Public Order hatred incitement to racial 1998 – Act Crime and Disorder added the category of racial to basic offences aggravation 2 to the criminal justice system equality in race promote actively their functions Crime and Security Anti-terrorism, A r package part of the December 2001 to counter after 9/11 introduced terrorism. as called in April 2005, the Labour as called in April 2005, gency and extends the powers of the the powers and extends gency acial and Religious Hatred Bill) to Bill) Hatred acial and Religious egislation arious pieces of legislation, some more arious pieces of legislation, olice in a number of areas, and of olice in a number of areas, xistence of ‘parallel lives’. ‘parallel xistence of provisions include the Serious provisions Act, Crime and Police Organised The Act in April 2005. introduced Crime establishes a Serious Organised A P (CSOs). Community Support Officers In addition, the Violent Crime Government that returned to power in to power that returned Government Bill (The a new introduced 2005 May R hatred. incitement to religious outlaw L V designed to support are or less recent, These violence. action against racist include: • • •R • a new proposed the government In 2004 offence of incitement to religious as part of the Serious Organised hatred, into Bill introduced Crime and Police This parliament at the end of that year. intense debate, prompted proposal among civil liberties and community the Although in particular. groups Election clause fell when the General w subsequent reports that indicated the reports subsequent e this policy context shows the intentions shows context this policy and the frameworks of policymakers to operate trying are they within which violence and when tackling racist outcomes. for practical way the paving The t of the A National Making ommunity C Managing .Repor A Report of the ber 2005. er Review. London: Home to tion Plan. London: Home rt rliamentary website fenders – Reducing Crime. ales, London: Home Office. amework for England and for amework ebsite. ffice. ffice. ffice website. ffice ohesion. unishments Work ondon: Home Office. eading by 301 to 229, 301 to eading by Ac O [http://www.homeoffice.gov.uk/ ] docs3/5505reoffending.pdf Ca O 21 Home Office (2004e) Reducing Reoffending. Of W [http://www.homeoffice.gov.uk/ docs/halliday.html] for ‘Justice Paper White The 18 All’ on the Home is available O [http://www.homeoffice.gov.uk/ docs3/justiceforall_whitepaper. html] Act 2003 Criminal Justice The 19 on the Parliamentary is available w [http://www.opsi.gov.uk/acts/ac ts2003/20030044.htm] 20 P.Carter (2003) Review of the Sentencing Fr 13 T. Cantle (2001) 15 Home Office Press release,15 Home Office Press 21 April 2005 [http://www.homeoffice.gov.uk/ n_story.asp?item_id=1298] on the is available Bill The 16 Pa [http://www.publications.parlia ment.uk/pa/cm200506/cmbills/ 010/06010.i-v.html] 17 J. (2001) Halliday 14 The Bill was given a third Bill was given The 14 r majority 72 and at government the stage of drafting this report, in the Lords go to was due to Oc P Independent Review Team. Independent Review L C

Preventing Racist Violence 8 Research and Policy Framework 9 The Future of The Future ondon: Books for Profile .L t 2003 is available on the t 2003 is available rliamentary website. on by a 15-year-old boy on 20 boy a 15-year-old on by his was one of the central 22 The Anti-Social Behaviour The 22 Ac Pa [http://www.opsi.gov.uk/acts/ac ts2003/20030038.htm] 23 A landmark judgment was w July 2005, when a High Court judge ruled that it was illegal for return forcibly to officer a police their home. person to a young T of the Anti-Social provisions Act 2003. Behaviour 24 CFMEB (2000) Multi-Ethnic Britain: The Parekh Report Trust. the Runnymede tend to in which cohesion, owever, theyowever, 24 usts, Probation and Fire and Probation usts, acial harassment panels, for panels, acial harassment authorities. Priorities for CDRPs vary authorities. locality to locality but where from mention the do explicitly strategies they need to tackle hate crime, the use of multi-agency advocate r H instance. giving focus on victim support (i.e. a victims the confidence to report crime) and/or punishing the known perpetrator. service, housing, youth services, housing, youth service, Crime schools etc…). In particular, Partnerships Reduction and Disorder the local (CDRPs) typically involve other and the police, authority, such as Primary Care agencies, Tr which implies working with a working which implies the board agencies across number of probation police, (local authority, ‘… since it would be impossible to devote be impossible ‘… since it would the racist to combating enough resources it potential perpetrator, every of psychology begin by to effective is perhaps more in and delinquency prejudice addressing of the role in mind keeping the community, social disadvantage address to government canvas.’ on the broader and inequality 45) (Khan 2002: he Community Cohesion Agenda Cohesion he Community equality and diversity were identified as were equality and diversity in needing to be kept factors the key equilibrium to support the building of a successful multi-ethnic Britain. After debate about what considerable Community Cohesion actually means the Local purposes, for practical Association, Home Office, Government T Community cohesion came onto the the agenda following government Oldham and disturbances in Bradford, the by presaged It was in 2001. Burnley of emphasis on cohesion in the report of Multi- the Commission on the Future Ethnic Britain, which 22 The legislation 23 Introduced in the Crime and Introduced estrict access to specific areas of a estrict access to specific areas allows for the distribution of Anti- for the distribution of allows (ASBOs), Orders Social Behaviour on an which can be served if he/she has not individual even committed a crime but has been the subject of complaints for anti-social Not only can ASBOs behaviour. r can they or an estate, a street town, of people from groups prevent meeting. It is impossible to ignore – and the anti-social behaviour ASBO – as an instrument with the of potential for tackling perpetrators violence. racist ‘low-level’ and Racist Crime Reduction Violence Prevention constitutes an Crime reduction for framework obvious policy violence. racist preventing at local level programmes Numerous crime, or prevent aim to reduce employment and education, physical and employment health, drugs and and mental debt, benefit and alcohol, finance attitudes). and offender family ties, also called for increased The plan between working partnership agencies. Anti-social Behaviour has fast Anti-social behaviour government’s become one of the responses invoked most frequently crime, to calls for reducing level. particularly at neighbourhood While a definition of anti-social (ranging is still vague behaviour nuisance such as low-level from serious criminal noise to the more it is of harassment), behaviour with a heavy nonetheless endowed framework. legislative 1998, anti-social Act Disorder more then given was behaviour with the Anti-Social prominence 2003, Act Behaviour amended the legislation to extend other of the police and the powers local authorities. • • Involving the Involving 29 28 xpressed their concern at the xpressed oute to challenging racist attitudes oute to challenging racist figure prominently within the brief within prominently figure agenda. cohesion of the community disengagement of citizens from the decline in politics, ‘neighbourliness’, and the importance of making public to the needs of services responsive rather framework A policy citizens. may civil renewal than an initiative, on the enable space for reflection impact of identities on relationships communities, within and between Civil renewal and with the state. aims to tackle the disengagement of individuals and communities from It with civil society. involvement education system could lead to the could lead education system and an of resources development of activity in this area. increase Civil Renewal All the major political parties have e Neighbourhood Renewal Renewal Neighbourhood for strategy As the government’s in the UK’s tackling social exclusion areas, most deprived uses a Neighbourhood Renewal that can approach cross-sector or reduce prevent to include work work Sibbitt’s Rae crime generally. on lack of for the Home Office and identity among perpetrators of racist potential perpetrators violence highlights how with potential interventions fit within the can perpetrators neighbourhood renewal/social inclusion agenda. Citizenship Education citizenship In September 2002 education became part of the national curriculum for secondary of It includes programmes schools. ethnic study on human rights, and conflict resolution. diversity, Citizenship education can be a key r among school pupils. ther Policy Developments ther Policy • O • • 25 26 also gives statutory and also gives 27 ork with potential perpetrators of ork with potential perpetrators acist violence should therefore Community Cohesion and Racist Violence Prevention of this agenda is The development It significant in our research. the impetus for action that increases communities to different encourages ‘get along’, particularly in areas of high levels are there where inter-ethnic violence intolerance, violence Racist and segregation. the success of threatens severely community efforts to promote often cohesion, with reverberations the individuals involved. far beyond W r There is a common vision and a is a common There for all sense of belonging communities different of people’s The diversity is circumstances and backgrounds positively valued and appreciated backgrounds different Those from have similar life opportunities are positive relationships and Strong people from being developed between in the backgrounds different in schools and within workplace, neighbourhoods. Community cohesion is viewed viewing the impact of government viewing legislative force to the promotion of to the promotion force legislative community cohesion. • The CRE’s recent publication of further recent The CRE’s between guidance on ‘good relations’ ethnic groups Interfaith Network, CRE and ODPM CRE Network, Interfaith cohesion. joint guidance on published as community defined a cohesive They one where: • • • • established within A specific unit was the Home Office with the purpose of re communities and on cohesive policy the through sharing good practice establishment of a number of Community Cohesion ‘pathfinder England. across projects’ of race as part and parcel increasingly the by as illustrated equality, on ‘race strategy new government’s equality and community cohesion’. ondon: .L Guidance on Guidance omoting Good Pr Changing ondon: CRE. L ondon: Race, L equality and community

ess. ce aidenhead: Open University ssociation (2002) ohesion, Equality and Faith ommunity Cohesion hese include a lack of identity, GA. ohesion. eel impotent to deal with. to eel impotent Race Relations:Race A guide for public authorities. 28 ‘[F]or perpetrators, potential and other perpetrators individuals within the community, perpetrator often of racism expressions serve the function of distracting – and others’their own – real, from away attention they which underlying concerns f T insecurity and about the future and/or mental health physical problems’ 1997: (Sibbitt viii). further discussion of 29 For education and citizenship see A.antiracism Osler and H. Starkey (2005) L 26 Home Office (2005a) Opportunity, Improving Strengthening Society: The to increase strategy Government’s ra c C Directorate. [www.homeofice.gov.uk] Racial for 27 Commission Equality (2005) Citizenship: Democracy and inclusion in education. M Pr C 25 Local Government 25 Local A

Preventing Racist Violence 10 Research and Policy Framework 11 . don: op cit Report of .Lon outh Matters Y . ndon: Department for ducation and Skills. 30 D. (1998) Acheson the Independent Inquiry into Inequalities in Health HMSO. 31 DfES (2005) Lo E [http://www.dfes.gov.uk/consult ations/downloadableDocs/Yout h%20mattters%20pdf.pdf] 32 Home Office (2005a) Note 26 , outh Y strategy on strategy 32 Improving Opportunity Improving does not mention race treme and abhorrent margin of society margin abhorrent and treme ace equality and community acist violence. Strengthening Society Strengthening serious problems. Although serious problems. Matters the Home violence, equality or racist Office’s r cohesion emphasises the importance people, with young of working to tackling particularly in relation r informed choices about their lives, choices about their informed in active be more them to encourage and provide their communities face for those who better support ‘Rather than being confined to an ‘Rather ex to come mainly appear offenders [racist] and society, fabric of ordinary the from the of in the context incidents occur of daily life...’. unfolding dynamics 50) (Iganski et al. 2005: outh Y has led to the 30 consulting on their new 31 , ould also reduce health ould also reduce ddressing Health Inequalities Health ddressing outh Policy outh strategy. Building on the outh strategy. may offer opportunities to challenge offer opportunities may anti-social, that are attitudes attitudes. racist including A health Inquiry into The Acheson inequalities y it strategy, Child Matters’ ‘Every people make aims to help young inequalities. inequalities. Y the Department for In July 2005, Education and Skills published a on Youth, Paper Green Department of Health and health Department of Health becoming more practitioners Health engaged with communities. the recognised have policymakers of and wellbeing benefits to health levels and lower safer communities noted The Inquiry Report of racism. crime in racist that a reduction w Matters • • detached youth worker detached youth in the working mediator,

elationship with young people elationship with young context of a particular dispute, context will be basing his or her of potential understanding on different perpetrators and evidence. perceptions operates in the context of his/her in the context operates r attitudes racist who can express behaviour, and confess to racist on the use of relying thereby anecdotal evidence. An enforcement agency talks agency An enforcement areas hot spots, about racial of racist high numbers where reported. incidents are •A (3) As Modified Modified (3) As by Work Sector context carried out in the Interviews indicate that of this research with so-called working practitioners a clear have ‘potential perpetrators’ and are of who they understanding the However, operate. they where the of who are understanding depends on potential perpetrators the practitioners the sector of work in. operate • •A 34 Existing youth justice theory Existing youth gencies outh Offending Teams (YOTs) to (YOTs) outh Offending Teams 34 For more information see Youth Justice Board Justice Youth see information more 34 For no. (2001) Note Research 5, November. (2) As Used within Used (2) As Crime Reduction A of the Directorate The Diversity in partnership Police, Metropolitan of hate with academic researchers has violence, crimes including racist to perpetrators focused on known definitions for use with develop projects. prevention suggests using ‘risk and protective some young to indicate why factors’ in people might get involved used by These are criminal activity. and within Justice Board the Youth Y look at the combinations of factors to person that might lead a young illiteracy), drug misuse, offend (e.g. doing so (e.g. from them or prevent bond of attachment with a strong one or both parents). Note 4. This report tried to This report op cit 33 actors which facilitate actors which facilitate actors acial prejudice

‘Potential Perpetrator’ ‘Potential stress and delinquency stress r sets of factors can lead to sets of factors

erpetrators of racist violence of racist erpetrators wo •F committing racist violence: committing racist •F is a need for a holistic There when dealing with approach using behaviour, perpetrating concentric circles three Sibbitt’s identified as of those already identifying and perpetrators, those at risk of diverting and becoming perpetrators, changing the attitudes of those who influence the community that supports the perpetrating behaviours. and harassment are of all ages are and harassment all kinds of held by The views ethnic towards perpetrators the by shared minorities are wider communities to which they belong often serve of racism Expressions the function of distracting real, from attention away underlying concerns which they feel impotent to deal with the Home Office drew on her the Home Office drew ffice Definitionffice

ae Sibbitt’s (1997) report published (1997) report ae Sibbitt’s esearch with practitioners, who are working with potential perpetrators under the umbrella of one or more umbrella under the with potential perpetrators working who are with practitioners, esearch esearch in two London boroughs to London boroughs in two esearch 33 Sibbitt (1997) r of an understanding develop perpetrators. R by (1) A Home O government initiatives or agencies, expanded these first four and prompted two further sets of observations further two prompted four and these first expanded or agencies, initiatives government (5) and (6). – numbers behaviour on perpetrating Observations (1) to (4), as recounted in the Research and Policy Context, originated in our 2002 report. Our report. originated in our 2002 Context, and Policy the Research in to (4), as recounted (1) Observations r II. Observations Six the on - - - -T come up with a ‘typology’ of violence based of racist perpetrators case studies and led to on Sibbitt’s conclusions: general the following -P

Preventing Racist Violence 12 Six Observations on the ‘Potential Perpatrator’ 13 Research Study 223. Research Crime, and Justice: Policing 38 or Asian victims, the offender or Asian victims, In the 2000 BCS Findings report In the 2000 Black victims identified 75% of 22% as as White, offenders Black, and 2% each as Asian or Mixed. figures were 67% white, 14% 67% white, were figures 13% Black and 4% Mixed, Asian. een as White vs White een as ork with us indicated that ondon: Home Office. ecognising that in certain still suggests that the esearch ecent British Crime Survey (2002/3) ecent British Crime Survey other victims of racist esearching esponse to the needs of particular 38 A. Clancy et al. (2001) of ethnic minorities.The experience from Findings the 2000 British Crime Survey. L (6) Perpetrators (6) Perpetrators S Black to a be reduced violence Can racist and black white conflict between In this and victims? perpetrators to focus chose we particular project, white carried out with on work While violence. of racist perpetrators r violence and areas circumstances black communities from between is backgrounds and minority ethnic common as common if not more or black on than white on black and past evidence white violence, r incidents racist majority of reported the victim belonged to a black where had been and minority ethnic group white perpetrators. committed by for example: • •F In addition, figures from the most from In addition, figures r that black and continued to show as ordinary minority ethnic people, are of society, citizens and members to be the victims likely still far more attack and racially of a racist crime than their white motivated This does not preclude counterparts. on the necessity for further work as violence as well inter-racial r arrived recently violence (i.e. etc…). refugees migrants, who discussed their Practitioners w with white decisions to work or with all communities only, in a specific communities involved in made largely conflict, were r setting. local or geographical . 37 victims This implies an an Also be Victims be an Also stems that can detect a acist violence fall within the of ecognises the ambivalence acist violence are often often acist violence are ondon: EFF. Similarly, evidence collected evidence Similarly, suggests that interviews from in people involved young many r in need category of children Act. under the Children’s of the wider understanding in which potential context to operate. likely are perpetrators of the wider context Knowledge violence is important of racist a both in terms of providing an of why better understanding and also the incident occurs opportunity for early-warning sy the it reaches situation before In addition, this point of crime. that finding calls for work r and acknowledges perpetrators, to support ‘vulnerable’ that work an impact will have perpetrators of crime in levels on reducing this Understanding general. will enhance our ambivalence addressing of how understanding of or areas factors different that do not seem to dysfunction links with racist any have or drug illiteracy violence (i.e. an impact on use) could have behaviour. racist preventing (5) Perpetrators (5) Perpetrators C with interviews Evidence from from drawn practitioners crime statistics mainstream who commit suggest that people r is This of crime as well. young particularly true among states report people: a recent is wide agreement that there working amongst practitioners people and young with children of child that tackling the causes at the heart abuse and neglect is dealing with the strategy of any offending. causes of youth L 37 Esmée Fairbairn Foundation (2004) Foundation 37 Esmée Fairbairn Rethinking Crime & Punishment: The Report 36 35 Criminal Note 5. op cit 48 (summer): 5. , These findings imply that it is much Similarly, Sibbitt concluded that Sibbitt Similarly, Motives for getting involved in racist for getting involved Motives While extreme-right parties tend to parties tend While extreme-right ommon Assumptions ommon acerbate tensions between communities acerbate tensions between ather than try to predict a potential ather than try to predict esearch on known perpetrators, as well as as well perpetrators, on known esearch xtreme-right activity, to using racism as an to using racism activity, xtreme-right vidence from practitioners working practitioners vidence from 35 V.35 Kielinger and B.‘What can we Stanko (2002) use of the police?’, people’s learn from Justice Matters Justice 36 Hewitt (1996) more difficult to pinpoint what might lead more of racist the route to go down a person out as it might break abuse and violence, points’ (such as a at particular ‘pressure to neighbourhood dispute). Questions have such racist to prevent about how be asked potential perpetrators. targeting violence by R the solution lies in behaviour, perpetrator’s that allows challenging the society at large In addition, to occur. this behaviour if effectively can only operate prevention in which these incidents the social context occur is examined. perpetrators of racist violence do not of racist perpetrators and their in a social vacuum, operate often attitudes are and racist behaviour the wider community in condoned by neighbourhood, (family, live which they etc.). violence can therefore vary along a vary violence can therefore political continuum that goes from e as in criminal activity or, factor aggravating violence Sibbitt points out, to using racist of their anger towards as an expression feel underlying concerns that they other, be unable to deal with. These concerns can or a failure to their sense of personal linked less being treated are that they perception black and minority ethnic than favourably communities living alongside them. ex R e with them, and indirectly directly that see challenges popular assumptions as and potential perpetrators perpetrators their actions to driven ‘mission offenders’, ideology. racist bigotry and primarily by these in creating and feed off their success and Burnley as seen in Bradford, tensions, of the an analysis Oldham in 2001, on hate crime records Police Metropolitan that, in show research, as Sibbitt’s as well the majority of incidents, a large of the local members are perpetrators to the victims known community and are neighbours, local youths, (i.e. colleagues). In and work schoolchildren found that ‘a addition, this research of incidents start off as so-called proportion and/or criminal incidents, threats ordinary or criminal damage such as altercations neighbour disputes’. arising from (4) Refuting (4) Refuting C rvnigRcs Violence Racist Preventing

III. Methodology

This report presents our analysis of constraints within which the work being undertaken to challenge the practitioners operate and the attitudes of potential perpetrators of approaches they take. The methodology racist violence. we have chosen enables us to Given the lack of research into work encourage further discussion of policy in this area, our approach has been to decisions and interventions that need to ground theoretical understandings in be made in order to respond effectively response to practical experience. to race hate crime and its causes. Though this is a challenging approach for the researcher, it allows for greater Three Phases input from practitioners into shaping Our work on this project divided into both the research and the outcomes. three phases. The findings are a product of the needs 1. Understanding existing theory - We of those involved in this crucial area of first examined existing theories work. around the particular problem of Through desk-based research racist violence, and reviewed the contacting over two hundred work of academics in the field.40 organisations, and interviews with 2. Mapping initiatives to prevent racist more than twenty practitioners and violence - Next we looked at how policymakers, the research investigates practitioners are currently working experiences of working with potential in order (i) to highlight positive perpetrators of racist violence. Having examples of local work with taken a broad view initially, the potential perpetrators of racist research quickly took a closer focus on violence, and (ii) to see how four London boroughs. This focus successful work in progress can allowed us to appreciate the diversity of point to developments for the future. experiences and understandings 3. Policy analysis - Finally, we worked operating in this field of work. Analysis with academics and practitioners to of the data helped us improve our grasp develop policy recommendations of the policy impact of the work. This that aim to challenge and improve analysis was then triangulated through practice, and extend policymakers’ further discussions, involvement of an thinking on the prevention of racist advisory group of practitioners, and the violence. publication of a working paper.39 An account of the types of Understanding challenges we faced in relation to Existing Theory devising and amending our The scarcity of research into methodology, responding to our initial challenging the attitudes of potential findings, and the lessons we learnt perpetrators of racist violence was from this process will, we feel, benefit highlighted through our earlier others in the field, and is worth publications, and is noted above. This sharing. In pursuing accounts of a topic posed a real challenge to the research

39 S. Isal (2004) ‘Preventing as sensitive and as important as the as it meant that the theory would have Racist Violence: Interim prevention of racist violence, the to be developed alongside the research Findings’,a Runnymede Trust Working Paper, June. researcher is unwise to impose a process. Key messages from existing 40 Khan (2002) op cit Note 2. framework, but needs to listen to the research were used to form the focus

14 Methodology

for early conversations with the project led partnerships was impossible in advisory group and informed the some areas. interview schedule that was developed to investigate work in this field. Focusing on four boroughs Our original intention to map projects across the whole of London, whilst it Mapping Initiatives to added breadth did not provide the depth Prevent Racist Violence that, it was becoming evident, would be An early objective of ours was to map crucial to understanding this work. We local, community-based projects in therefore chose a smaller purposive London that worked with potential sample of four boroughs, after perpetrators to challenge their racist consultation with members of the project attitudes. It soon became evident that advisory group. No sample of this size is such projects were not easy to pinpoint. ever representative, but we wanted to be After making contact with individuals able to show a diversity of experience, and organisations (both community and the challenges and opportunities and statutory), it turned out that presented by differing contexts. The four instead of community sector boroughs we chose were: organisations expressly working to challenge racist attitudes in potential Brent • Merton • Southwark perpetrators, the picture was more Tower Hamlets complex. We had to cast our net wider to discover the range of work and Among the reasons for choosing these where it was located. Rather than boroughs were: attempt to map this work right across London, an approach that considered • Black and minority ethnic well-defined areas in more depth was population found to yield a richer understanding of According to the 2001 Census the initiatives being undertaken to figures, Brent and Tower Hamlets prevent racist violence through have a ‘majority’ black and minority changing attitudes. ethnic population, whereas in This meant that we had to examine Merton and Southwark there is a a broad range of expertise, which smaller black and minority ethnic included: population. The largest minority •work in race equality to change ethnic communities also differ in society’s attitudes towards racism each borough. (primary); •preventative work with potential • Reporting of racist incidents perpetrators of racist violence Southwark and Tower Hamlets have (secondary); higher levels of reported racist • and work carried out by probation incidents than Brent and Merton. officers with racist offenders in order to prevent re-offending • Initial contacts with (tertiary). groups or individuals Maintaining a focus exclusively on Given the challenging nature of the community-based projects proved to be topic for research, it was important a limit to our understanding at a time to have access to research sites and when local multi-agency and networks of practitioners, willing partnership work were being embedded and able to participate. Through the as a result of local and central earlier efforts of the research government policy. Isolating process, strong contacts of this type community-based work from statutory- had been established in these areas.

15 rvnigRcs Violence Racist Preventing

Focusing on four boroughs, and indeed describing the work that reflected the on London, enabled the research to be concerns of the practitioners and conducted at the required level of attempt to build a common language depth. Our approach, however, always throughout the course of the project. remained flexible enough to engage The dispersed responsibility for the with interesting projects that emerged work in this area led to a need to speak from other boroughs. Where we have to groups of people in each borough, identified valuable projects taking place and in some cases act as a networking in other parts of London, and resource even within a borough. The elsewhere in the country, we have range of agencies and organisations included them as case studies. involved meant that the research had to be able to marshal a large amount of Policy Analysis information in order to focus on the In order to track down projects that key concerns of the project. would fit within the parameters of this more detailed borough-level Formulating recommendations for assessment, we made contact with the policy development following types of The initiatives that we found were then organisations/institutions within each analysed, highlighting the good practice borough: aspects of each, and distilling from • Crime reduction agencies them a range of practical ideas and (Community Safety Teams within effective responses to working with the Council, Police, Probation, Youth perpetrators of racist violence. Offending Teams, etc.) Examples of good practice were then •Youth agencies and organisations re-contextualised to produce a set of (including Youth Services, Youth policy recommendations that are Centres, detached youth workers) applicable across a range of • Arts and Sports organisations circumstances. In identifying how • Victim support groups existing projects operate within the •Regeneration and social inclusion current maze of funding and policy groups, when appropriate (i.e. when initiatives, we offer some guidance for a particular neighbourhood is part policymakers, funders, and those of the New Deal for Communities hoping to develop projects in the future programme) on how to support similar work. Community-based projects that work When undertaking research on new with potential perpetrators of racist and challenging areas, with issues that violence are scarce. In some areas, an are often sensitive, it is crucial to extensive search would produce just a maintain the flexibility to respond to few interviews and meetings. In others, the evidence. In this project the many promising leads turned out to be involvement of the advisory group of only remotely linked to what we were practitioners, the support of funders looking for. This was largely a problem and the importance of the issue have about terminology and a reflection of enabled us to provide some new insight the dispersed responsibility for work to into this vital area of activity. In the challenge the attitudes of potential following sections, the research findings perpetrators of racism. This posed a are reported and, in response, challenge. Given the innovative nature recommendations for policy reform of the research and the sensitivity of offered. the area, there is little shared language that can be used to access research sites and build networks. Instead, the researchers had to find ways of

16 Findings in Detail 17 and the challenge is taking acist violence r t includes .I interventions with potential perpetrators of interventions with potential perpetrators ork with potential perpetrators to prevent racist to prevent ork with potential perpetrators w suggests where furthersuggests where support, to research develop offers guidance on the factors sustain guidance needed to offers assesses how work with potential perpetrators with potential work assesses how examines how current practices around practices around current examines how might be most usefully directed.

ase studies of successful projects are reproduced alongside projects reproduced ase studies of successful are

wn perpetrators and definitions of who is a potential wn perpetrators tion I tion II tion III tion IV indings in Detail indings C c c c c o ntextualised nature of any work that attempts to to that attempts work ntextualised of any nature ersus prevention), about and on the basis of assumptions acist attitudes through work with potential perpetrators acist attitudes through work acist violence, through challenging their attitudes Se Se perpetrator. Se the relevant analysis.Thesethe relevant tackled successfully projects have with work how that exemplify areas the issues in the respective can be most effective. perpetrators potential with potential perpetrators through work prevention within particularplace policy and directions areas (enforcement v kn r holistic interventions within strong that work this place need to primary,happen across secondary and tertiary work. prevention What follows is our account of what’s going on and where. of what’s is our account What follows Our policymakers, for findings and recommendations both local and national, of fields are and practitioners a wide range from the types in direct to of projectexpressed relationship being described.

F Main ReportMain Se and sustain guidance on funding and the importanceguidance of multi-agency work and cross-sector partnership. violence effective work and work effective r operates within the observedoperates policy contexts highlighted above. It the importance points to the highly of understanding co ANTI-RACISM AS THE CORE OBJECTIVE THE CORE AS ANTI-RACISM ears 2 and 3 were spent engaging the young people, spent engaging the young ears 2 and 3 were take them to on inviting ntext, Aims and Objectives Y ase Study 1: ase rkers,Year on the area,gathering intelligence 1 was spent mostly and building the police. In addition, and systematic, evidence anecdotal continuous ocess and Outputs ocess e outcome of the project,e outcome statistically, measure to although hard a was

en if the anti-racist component is not openly stated, for fear of ‘scaring away’ is not openly stated, component en if the anti-racist ‘scaring of fear for the ood Practice Recommendations ood Practice ell as their ability to take greater social,ell as their ability take to greater of their control political and economic unding ouncil provided funding for a detached youth worker to operate in a larger operate to worker a detached youth funding for ouncil provided he element to replicate is replicate he element to he project received funding from the DfEE Youth Work Development Grant, Development Work Youth the DfEE funding from he project received he project involved working with potential and actual perpetrators of racist working and actual with potential perpetrators he project involved outh workers, both people who were highlighting the difficulties of finding ould engage with and talk to the youth workers was indispensable groundwork was workers the youth ould engage with and talk to olerance towards racism would be tested. would racism towards olerance eduction of racist street crime in the targeted neighbourhood by 40% observed 40% neighbourhood by eduction crime in the targeted street of racist Ev people that the project is working perpetrators), with (potential it was clear in the tackle that the aim was to minds of the workers attitudes. racist Diversionary work achieving this objective.The a means towards was therefore importance to given in other geographical element of the projectthe anti-racist should be replicated ‘hotspots’. identified as racial areas catchment area than the one defined by the project. than the one defined by area catchment G T Outcome and Monitoring Outcome Th r by F T Agency.Youth had the 3 years After the National through which was provided elapsed, the project in its original format; did not continue however, Southwark C Although challenging racism was always on the agenda for the detached youth on the agenda for was always Although challenging racism wo people, young trust with the hard-to-reach direct mention any without necessarily of racism.The they feel people to young of gaining trust and allowing process c views and attitudes. was made at challenging racist attempt any before In addition, of detached stabilise the team needed to a number of months were y and their patience where environment in an unsafe operate willing and able to t activitiesoutdoor talking activities and using these for as tools about issues attitudes. their racist around talking Simply and sharing views and them to in attitudes. a change create enough to was often effective interests briefing sessions through workers youth the detached by of the work evaluation on the nearly 200 young influence that the projectindicated had a positive people it came in contact with. Co In 1993, London, in South violence racist in the context of heightened a including murders,number of racist carry BDYWP in was set up to work out detached youth attacks on the number of racist an alarming rise in where of Bermondsey the area people had been noted. young white black and minority by ethnic communities T violence, people in the young views of white the racist with the aim of challenging views. anti-racist them with alternative providing through area It also looked at as sense of empowerment people’s young the wider picture foster and aimed to w lives. Pr C Project Work Youth DetachedAnti-Racist Bede (BDYWP)

Preventing Racist Violence 18 What’s Being Done and Where in Current Prevention Practice

I.What’s Being Done and Where in Current Prevention Practice

Self-standing Anti-racist projects (see for example Case Studies 2 Prevention Projects and 3). An examination of these projects When we set off to do our London- shows that they fall mainly within one based research, we had in mind an or both of the following policy strands: example of a successful project we’d Crime Reduction and/or Community already encountered, one that tackled Cohesion. the attitudes of potential perpetrators of Within these two agendas can be racist violence (see Case Study 1). Our found a variety of projects that directly initial premise was that we would come or indirectly challenge racist attitudes across more projects similar to this one. through work with potential It was assumed that these projects perpetrators. The variety itself can operated at local level, were mean that examples of good practice community-led, and their conclusions are harder to find, learn from and and potential lessons for policy were share. This led us to an early not yet written up nor relayed. conclusion and recommendation, which In fact, it soon became apparent we tested with our target audience in that we were unable to identify autumn 2004 by publishing a Working community-based, local projects that Paper. Feedback from the readers of the primarily work with potential Working Paper41 reinforced the validity perpetrators to challenge their racist of our findings at this crucial stage, and attitudes. Whilst preventative work produced the first in our lists of with potential perpetrators to challenge Recommendations. their racist attitudes does exist, it does not represent the main or primary objectives of the identified The Focus is on organisations or projects. In addition, the Punitive rather as demonstrated in the case studies we than Preventative are presenting in the body of this Both research and interviews with report, projects that carry out this work practitioners have indicated that policy do so as part of a wider remit. is consistently geared towards a punitive and repressive trend, rather Where Most of the than a preventative one. In addition, Identifiable Work Takes Place projects that were identified as working Groups that identifiably carry out in the preventative field also tended to prevention work through challenging focus on dealing with racist offending racist attitudes often do so as part of a behaviour rather than attitudes. project with broader terms of reference. Reasons for this are numerous: Consequently, this particular point of changing the attitudes of potential (1) Punitive perpetrators of racist violence often Within the mainstream becomes visible as an outcome, rather criminal justice system than as the intent of many of these This focus on repression rather than 41 Isal (2004) op cit Note 39.

19 USING ART AS A TOOL AS A USING ART sing various interactive techniques, interactive sing various of group a small gets together the company ntext, Aims and Objectives U ase Study 2: ase rk focuses on a number of different projects, a number of different on rk focuses has been their issue-based work ocess and Outputs ocess ntacting the ‘hard to reach’ to ‘hard one of the main ntacting people represented the of young groups assess, attendance, such as repeat and number of people reached. forms feedback ood Practice Recommendations ood Practice

does not label itself as an anti-racist projectdoes not label itself as an anti-racist but, its work, through are its outcomes ondon Bubble Theatre Bubble ondon unding

he Company gets its core funding from both the Arts funding from and local government. gets its core Council he Company is replicate he element to he company’s issue-based work operates as follows. operates issue-based work he company’s oung people interested in a particular in a oung people interested issue. crime was one of the issues Hate ondon Bubble was set up over 30 years ago to make and theatre-making ago to theatre 30 years set up over ondon Bubble was ommunities and the victim communities together in a larger forum to watch and watch to forum ommunities and the victim in a larger together communities ould be reversed when they moved off into different settings, different off into moved when they ould be reversed group such as their peer acist attitudes through choosing to focus on specific topics for plays, for on specific topics focus choosing to acist attitudes through such as the elevant to challenging racist attitudes. challenging racist to elevant of the issue-based work One of the outcomes elevant to Londoners, to elevant in particular in South East London, is based.While it where their perpetrators. attitudes among potential challenging racist to elevant Rather than acist dynamic’. F T G T in proved have violence Art racist the objective of reducing towards projects that work and helping be very perpetrators this case to in both engaging with potential successful change their attitudes.While arts an opportunity activities provide bring together to communities,different challenge as an instrument to they can also be used proactively r crime. has been doing with hate Theatre Bubble Outcome and Monitoring Outcome It r the perpetrating people from of young get groups successfully has been to c participate in the play. and difficult that takes is anecdotal Much of the monitoring place to r wo r calling them anti-racist, projects with an anti- ‘art its projects to as refers the company r Challenges Co challenges, not that would in a way market to the work questions of how which raised or who did not want to perpetrators the potential those people who were alienate ‘self- engage.The or most excluded the the point where difficulty get to was to excluding’ engage, people would young make to then to and the performances relevant them. does deal with the fact the Company challenge was to Another that the work in a particular people an effect on young setting, might have effect but that this positive c or their home. L Pr T y examined in this context.Young on the chosen issue: the active researchers people are area, schools in the tour to a play they put together people young it to present and they clubs.This education settings such as youth in other informal a powerful is therefore peer education project, to invited are people viewing the play the young where in the play. the issue(s) represented engage with participate to encouraged and are One can interact and of these techniques,‘forum and the audience the play theatre’,re-runs solutions, the action alternative stop or offer etc.This is particularly approach good at and have themselves can express perpetrators in which potential space a safe providing way. their views challenged in a constructive C L Co

Preventing Racist Violence 20 What’s Being Done and Where in Current Prevention Practice

prevention is characteristic of a long Crime reduction trend in general criminal justice policy. as a government objective The number of people in prison today is Whilst multi-agency working is an 75,000 (June 2005)42 with a projection by important element for a successful government that the prison population strategy to prevent racist violence, the will reach 110,000 by the year 2010. This downside observed by practitioners can be explained by tougher sentencing who do not generally work in crime rather than a rise in crime, with reduction is that they actually get ‘co- magistrates twice as likely to issue opted’ into the crime reduction agenda prison sentences than 10 years ago. by government policy. As a result, This situation has been keeping young people away from crime accompanied by a series of policies that becomes the priority, and is encouraged encourage tougher sentencing, such as by government policy for projects and courts being allowed to take into organisations whose remit is not account previous convictions when primarily crime reduction (i.e. arts and passing sentence or tougher sentences leisure or youth work). for drug offences and burglary.43 In the Important as it is to ensure the same way that drug and alcohol involvement of such groups in crime problems are largely viewed by prevention, this must be done with a policymakers as a law and order issue, wider vision. Investigation of the work of and not sufficiently as a health and interactive theatre groups or detached welfare issue, public policy and racist youth work show that they can have a violence are often examined solely clear impact on the attitudes of the young through the prism of attempts to reduce people they work with, provided they are crime, rather than through examination given the resources to do so. However, of the wider social context in which the when the provision of resources is for violence occurs.44 diversionary work only, it does not make Recent legislation confirms that this full use of the skills and potential of the trend is ongoing through, for example, youth workers. Conversely, diversionary the adoption of legislation to increase work, when advocated, is too often seen enforcement powers by agencies such as an end in itself, rather than as a as the police and to increase the means of achieving a broader-based number of instruments that can be social gain, such as greater social used to punish perpetrators of crime. inclusion, or less prejudice and racism An example of this is the prominence (see Case Study 4). given to anti-social behaviour legislation as a way to tackle crime. (2) Preventative Challenging attitudes requires long-term actions CASE NOTE: A practitioner Whereas a reduction in criminal interviewed explained the lack of behaviour can be measured and work on perpetrators’ attitudes by demonstrated quite rapidly (via a drop stressing that when racist behaviour in reported statistics), prevention work occurs, the most urgent action is assessed over the long term, and is required is to make the racist not so easily quantifiable even when behaviour of the perpetrators stop as visible. Interventions that work on soon as possible, in order to reflect prevention through challenging 42 http://www.hmprisonservice the needs of victims at the receiving .gov.uk/assets/documents/1000 attitudes are therefore more difficult to 0CDAweb_bull_jun05.doc end of the abuse and violence. This fund, when the results of the work 43 Esmée Fairbairn Foundation can mean that offenders will have cannot be seen immediately and it’s not (2004) op cit Note 37. been identified and ‘processed’ before easy to measure the true impact of 44 D.Walker (2005) ‘Don’t any long-term action can be underestimate voters’, Safer something not happening. Difficulty in Society no. 24 (spring): 1. envisaged.

21 BRINGING MEDIATION INTO THE REALM OF RACIST CRIME THE REALM OF RACIST INTO BRINGING MEDIATION he work of the mediator is incident based: of the mediator he work the examine her to it often requires ntext, and Objectives Aims T ase Study 3: ase ocess and Outputs ocess share the veryshare specific skills crimes and to linked mediation in the context of hate to the difficulty in getting mediation recognised as a useful tool for tackling for crime. as a useful tool the difficulty hate in getting mediation recognised e fact a voluntary that some people do not means that mediation remains process er time by long-term mediation, long-term er time by that had of harassment incidences to relating ood Practice Recommendations ood Practice

outhwark Hate Crime Mediation Project Crime Mediation Hate outhwark unding he Hate Crime Mediator first got funding from the Home Office, Crime Mediator first got funding from he Hate the PPACTS through tensions.This racial known in areas for his example should be replicated case study he mediator has noticed that one of the most successful outcomes has been the outcomes that one of the most successful has noticed he mediator he Hate Crime Mediation project started off as part of a Targeted Police Initiative Police Crime Mediationhe Hate project startedTargeted off as part of a in as a neutral, comes he mediator with both works non-judgemental person and onflict. another agency by the mediator (police, to either referred are Cases local F T programme. this project Once ended, funding, alternative including charitable trust Budget) funding, SRB (Single Regeneration funding and now has been obtained Southwark Council. through G replicate: Element to PREVENTION T of is a component conflicts racism of mediation in resolving where the success shows the dispute, in particular victimisation. repeat in preventing In addition, is a need there to Th with it.Without engage wish to intervention, that early it is likely that these young of offending. with the same pattern people will continue added challenge is related An to and Monitoring Outcome T impact of the project victimisation.This on repeat kind of victimisation was addressed ov came in. the time the mediator by 5 years for sometimes persisted the into Research that, of the project showed outcomes a period the use of mediation over to in response of 3 years, 1 in 4. 1 in 12 to victimisation from incidents of repeat had reduced Challenges T Study no. – see Case (PPACTS 7). that point, At it functioned a partnership within ‘hotspot’ in a particularoperating and homophobic racist help reduce ultimately to ended, of Bermondsey.When a specific area crime – in this case PPACTS Southwark the part as operate to continued Mediation.The of Southwark Crime MediationHate Project and to with perpetrators work to aim of the project use mediation as a tool is to attitudes and behaviours. challenge their racist Pr T victims and both parties try to by perpetrators an agreement end the reach to to c housing association, or, etc…) when voluntary reached, are agreements by monitored the mediator. incident,whole context of a racist of the social and family surroundings including how and attitude. affect might his or her behaviour the perpetrator Mediation enables those and their needs and it challenges the beliefs express experiencing the crime to of the perpetrators.stereotypes the cases that the from evidence Based on anecdotal has dealt with in Bermondsey,mediator victims do not wish to across many she comes know want to but and their harassers the underlying cause of the hatred prosecute on their victims.The the impact fully realise to they have want the perpetrators of work the between build that element of empathy to attempts therefore the mediator and the victim. perpetrator C S Co move away from the assumption that mediation is a ‘soft’ the assumption that mediation is a from away move option.

Preventing Racist Violence 22 What’s Being Done and Where in Current Prevention Practice

accessing funds might explain why there have been relatively few projects Recommendations: that tackle attitudes – though this is 1. For all interventions to work effectively and be just speculation at this stage. encouraged, a formal structure within government is The Bede House project manager needed and a strategy to bring it into operation.This (see again Case Study 1) stressed the formal structure would draw from the wide range of practice that has as a common thread the inclusion of need for long-term planning, as a preventative work with potential perpetrators of racist substantial amount of time needs to be violence, by challenging their attitudes. It would spent on groundwork, building encourage the sharing of good practice in the area, relationships, trust and establishing a especially cross-sector exchange and information sharing.

‘safe’ environment before any work can 2. Whilst de facto mainstreaming45 is welcome, it does not begin on attitudes. This project, which satisfy the need for a centrally located formal strategy and ran for 3 years, devoted Year 1 structure to promote preventative work. A strategy would principally to building relationships be beneficial in a variety of ways, as it would: •Send a clear signal, from central government, that between the detached youth worker preventing racist violence is a priority and needs to be and the youngsters. tackled in a holistic, cross-departmental way. •Devise clearly defined strategies that would provide the space to look in particular at prevention of racist Behaviour is easier violence among young people, an area which, as to measure than attitudes illustrated in this research, needs to be developed There is a distinction to be made more explicitly, given better support and delivered between projects that aim to challenge more effectively. •Help to link the wide-ranging sectors that carry out behaviour and those that aim to this type of work. As described in this report, the change attitudes. While it is often most various types of intervention that play a role in urgent to tackle the offending behaviour preventing racist violence come from a variety of first, it is important to acknowledge the sources. Guidance is needed in order to link their work effectively. Although some instances of effective need for a long-term strategy to partnerships have been identified, they struggle both address attitudes in order to prevent to come into existence and to maintain long-term links. the racist behaviour resurfacing. They should also be happening across the board. •Allow for further mainstreaming of work with potential It is easier to measure the impact of perpetrators to challenge their attitudes.This reducing offending behaviour than the mainstreaming would form part of a strategy effect of achieving attitudinal shifts. developed centrally, rather than growing in ad hoc Although statistics relating to racist unstructured ways. •Clarify how responsibility can flow from central incidents always have to be used with government to the localities where the action is caution, due to the high likelihood of needed. A central structure, supported by a well- under-reporting in any situation, there formulated strategy, could be instrumental in is still a way to measure the impact of delivering, at local level, projects to tackle racist violence by working with potential perpetrators. interventions that tackle the offending behaviour. Changing attitudes, however, requires more long-term techniques for preventing racist action of the kind that cannot often, if violence specifically. Initiatives such as at all, be accounted for statistically, as restorative justice, for instance, widely 45 In the interim Working Paper it is difficult to measure something that accepted by government as an effective published by Runnymede, it has been prevented (and therefore has tool for preventing re-offending, should was noted that ‘work with potential perpetrators is de not happened). also be promoted for work with racist facto mainstreamed across a wide range of policy offenders or potential offenders. This frameworks … In parallel, Racist violence prevention may already be going on, but we have central government action is taking place in an unstructured is not given priority on found no evidence of it yet – which way through the work of various departments (i.e. ODPM, the crime reduction agenda perhaps accounts for the apparent Home Office, DfES).There is Some of the known preventative dearth of good practice in this area. currently no formal structure whose remit is to officially methods or interventions used for Similarly, since research shows that promote, guide and support projects working towards the crime reduction purposes don’t perpetrators of racist violence are likely prevention of racist violence’ automatically come to mind as tools or to be condoned by the society around (Isal 2004).

23 A NEED TO FOCUS ON COHESION TO A NEED ntext, Aims and Objectives ase Study 4: ase ocess and Outputs ocess provide a strategic framework for multi-agency for operating. framework a strategic provide It youth funds ntracts with a variety of Lead Delivery (mainly Connexions).ntracts of Lead with a variety Agents Another YP programmes need to develop work that contributes specifically to tackling specifically to that contributes work develop need to YP programmes YP is funded by a number of government departments, a number of government YP is funded by including the YP has brought together various youth diversion programmes (Summer Plus, programmes diversion youth various together YP has brought ood Practice Recommendations ood Practice ositive Activities for Young People (PAYP) People Young for Activities ositive

epartment Culture, for Media and Sport, the DfES, Home Office, Office of the Board. Justice Youth Ministereputy the and Prime unding his is a national programme being delivered through Government Offices via Government through being delivered his is a national programme olunteering and active citizenship. olunteering oung people back into education or training, education oung people back into people from that bring together oung people. project that has In addition, of a PAYP not aware are we ommitting crime. divert people from to young Its therefore objectives are two ohesion. that support include those ountry. the context in of PAYP Activities organised acist violence by challenging racist attitudes.The PAYP objectives include the attitudes.The challenging racist by acist violence PAYP egionally there are variations in the way this scheme has operated across the across has operated this scheme in the way variations are egionally there or young people,or young 19, aged 8 to and of most at risk of social exclusion promotion of community cohesion,promotion be fully activated a dimension that needs to those implementing the programmes. by the fore to and brought PA r G replicate: Element to Outcome and Monitoring Outcome was published in July 2004, on the role but does not focus of PAYP An evaluation attitudes. in challenging racist of PAYPs F PA D D services a series of activities schemes, deliver (holiday to summer activities, etc.) f c behaviour, in crime and anti-social getting involved community promote and to c c y prejudice down help break to and ethnic communities geographical different and misunderstanding, people opportunities young personal self- that give for activities such as arts, various through development sports and other cultural activities, through their communities to contribute them to and that encourage v Challenges is one of the objectives of the programme,Although community cohesion there tackling are attitudes among racist potential PAYPs assessment of how is no real y in particular. undertaken violence racist prevent to PA programme, diversion youth Extra)Splash and Splash one government-led into to Pr T co to Workers important of Key aspect is the recruitment of the programme in particularsupport on the transition the implementation of individual PAYPs, delivered were programmes education or training.back into Because the PAYP r C P Co

Preventing Racist Violence 24 What’s Being Done and Where in Current Prevention Practice

them, one could turn to parenting, CASE NOTE: A Practitioner involved which is used in the context of youth in reducing hate crime in a justice, as a tool to effectively impact particular area stressed that on the racist attitudes of potential changing behaviour was often the perpetrators. However, we’ve as yet first issue dealt with, because it was found no examples of parenting the most urgent. For example, when initiatives being used to tackle racist a shopkeeper is being continually attitudes specifically. racially harassed in his/her shop, the priority is to stop the offending (e.g. by installing CCTV cameras nearby). At the same time, it is important to look at the perpetrators of the harassment and work towards addressing their racist attitudes through longer-term programmes (i.e. youth work, arts or sport).

Recommendations:

3. A firm political commitment to direct work and policy more explicitly towards prevention is needed from central government.This would run alongside existing enforcement and punitive measures, and has potential to reduce the need for them.While punitive measures are certainly important in dealing with perpetrators of racist violence, they should be accompanied by preventative work with potential perpetrators.

4. General crime reduction programmes that work with potential perpetrators should be encouraged, where appropriate, to examine how they can successfully impact on preventing racist violence.

5. General crime reduction legislation and policy, whether punitive or preventative, needs to be assessed against its impact on reducing or preventing racist violence.This is particularly the case with anti-social behaviour and its effects on tackling racism and racial harassment.

6. Further research is needed to assess the effectiveness of Anti-Social Behaviour Orders (ASBOs) and other instruments provided by the anti-social behaviour agenda (e.g. Acceptable Behaviour Contracts – ABCs) on tackling racism and racial harassment.

7. Government initiatives such as Positive Activities for Young People (PAYP) should be encouraged to focus on the cohesion dimension of their work.

8. Youth work should not be co-opted solely into diverting young people from crime (including racist crime), but should be more aspirational in both its objectives and outcomes (challenging attitudes based on prejudice, increasing social inclusion, etc.).

25 ONFLICT RESOLUTION AS AN EFFECTIVE TOOL TO TACKLE RACIST ATTITUDES RACIST TACKLE TO TOOL AS AN EFFECTIVE ONFLICT RESOLUTION C rk with particular people among whom conflict has been identified as a problem. of young groups ase Study 5: ase ntext, and Objectives Aims ik Saath rk 6 months after their intervention, effect. assess its long-term to the challenge of they face too Here ocess and Outputs ocess promote racial harmony and encourage people to understand each other in a positive way. each other in a positive understand people to and encourage harmony racial promote wo e outcome of their work can be best appreciated, of their work e outcome interviewed, organisations many as for in an ood Practice Recommendations ood Practice

wn, Southall. from and a group the local area from a group involving of incidents hit the A number eeks of working with the organisation. the to given of a questionnaire in the form comes Monitoring unding he Big Lottery Fund contributes the majority of Aik Saath’s funding.Whilst the majority project of Aik Saath’s contributes funding doesn’t he Big Lottery Fund he local council responded to the situation by bringing in a peacemaker, the situation by to responded he local council who set up a projectthat he Aik Saath project began in response to racial tension, racial he Aik Saath project to in response began Sikh between in communities and Muslim oung people – visible in their general behaviour or their reactions certain to behaviour oung people – visible in their general things – after just a few oung people, asking them. what the sessions do for Aik Saath also try the impact monitor to of the onstructing a network of ‘peace building’‘peace this drawback.onstructing of resolve a network to organisations is Another challenge onflict resolution training for young people through a programme of peer education.The a programme people through young onflict for training resolution objective is C A present the organisation with too many difficulties, many with too the organisation present of a struggle. funding is more core In addition, as a small organisation, a capacity it faces issue in trying projects on more than it is funded for. deliver to G replicate: Element to F T crime reduction building (as opposed to or anger on conflict and peace resolution By focusing management), can be negotiated, and set of outcomes atmosphere a different in better which can work (i.e. is not obvious those particular communities of the conflicts the nature between where areas one another), versus group social groups. different several and involving complex but more the resistance that the organisation encounters from other institutions that refuse to engage with it. to other institutions that refuse from encounters that the organisation the resistance the right staff, recruit to How people young meet the very needs of the different to and how diverse they engage with is another difficulty. and Monitoring Outcome Th way.There quantitative than a purely rather anecdotal some clear signs of changes in attitude by are y w y wo some schools not making after a time lapse of that length. the effort engage with this process to Challenges Initially, it was doing (conflict resolution, in the work isolated quite felt Saath Aik from is different which a lack of practice-sharing in this area.Theymediation) and felt reported that project are workers have c to brought the perpetrators together for mediation or conflict sessions.The resolution for together the perpetrators brought this interest setting up of Aik Saath, the to led people themselves the young among generated which provides c Pr or schools) Teams of institutions or agencies (i.e.Youth a variety Aik Saath gets called upon by Offending to people themselves, the young from come Sometimes the requests seen the Aik Saath flyers have who get involved.and want to instance, For part people who were of PAYPs, with young worked they have and conflict. discuss issues of racism them to for workshops organising Another example was the of a short team Ground, the peer training production by film called Common causes which examines the booklet. a resource by and is accompanied groups rival two of conflict between Aik Saath uses that people can deal with conflicting relationships. young how illustrate video to A significant factor in its is that it is based in the locality.Thesuccess people can identify with the locations, young with the characters in the film. Most of all, they identify with the conflict, Aik for a major tool been and that’s Saath. Slough, in the mid-1990s. escalated which had occurring within the were violence Incidents of racial to people, images of young negative into newspapers and fed local Muslim and Sikh especially the youths. T Co T

Preventing Racist Violence 26 W orking with Potential Perpetrators in the Current Policy Context II.Working with Potential Perpetrators in the Current Policy Context

Understanding working exclusively with potential the Contextualised perpetrators. In a number of Environment organisations or projects identified, the work is a collaboration with the local Projects we identified as aiming to community, and brings together members prevent racist violence were also projects of the potential victim groups as well as of a highly contextualised type. In general potential perpetrators (as seen in Case they were responding to a wide range of study 6). A number of factors contribute local issues that determined or affected to this trend. the nature, aims, scope and outcomes of (1) First, on a purely practical level, the intervention (see for example, Case practitioners who do target potential Study 5). perpetrators are unlikely to openly Taking the local context into account acknowledge this fact, for fear of is crucial both in understanding the form alienating the very group they wish to taken by prevention work and to ensure work with. Anecdotal evidence that any future work can be effective. suggests that to openly state this Examples of contextual factors include: intention is counter-productive as it • the level of presence of extreme-right leads the target group to refuse to parties or groups in the locality engage. • the socio-economic make-up of a (2) On a policy level, the community particular region cohesion agenda encourages a focus on A ‘one size fits all’ approach does not bringing different communities closer reflect current practice and would have a together, thus leading to projects that negative impact on the overall objective engage both perpetrator and victim of preventing racist violence. This communities, and provide a forum for observation is compounded by the primary prevention work and variety of forms that racism can take. As improving community relations. outlined in the observations on potential Indeed, there are examples of projects perpetrators, a wide range of causes that bring different black and minority underlies why one person might racially ethnic groups together with white groups abuse another, and the complexity of the in a particular setting, such as a music or problems encountered is generally a theatre project, which offers a rare reflected in the complexity of the opportunity for two sometimes solutions brought to it. antagonistic groups to meet and interact in a ‘safe’ environment. Such projects, it Work with can be argued, will impact on secondary Perpetrators versus Victim- prevention as well, as they develop a line focused Work of thought on the attitudes of potential Bringing perpetrator and victim perpetrators of racist violence alongside groups together: the Community their main, primary aim – a better Cohesion agenda understanding of the diversity of the We found little evidence of projects communities living in a particular area.

27 ENGAGING THE LOCAL COMMUNITY THE LOCAL ENGAGING ondary with supporters interventions include work of a particular football c ntext, and Objectives Aims ase Study 6: ase Se tnership with high-profile institutions,tnership with high-profile FC, such as Charlton is one of the er the years, different people from the project together has brought ocess and Outputs ocess r ood Practice Recommendations ood Practice imary interventions people include bringing black and minority ethnic young unding here is a high demand from schools for delivery schools for of such projects, is a high demand from here but lack of he Charlton Athletic Race Equality Athletic was set up as a he Charlton (CARE) Partnership unding is mainly statutory and provided by the various partners. the various unding is mainly statutory by and provided ommunities within the borough. begun to other they have In meeting each eam).This in many provided the training through was enhanced same outcome espect each other, particularly did not such tolerance in contexts where C CARE Partnership Pa Element to replicate: Element to attract this kind to people to ways of project.obvious in other areas Projects fruitful partnership. should seek out similar possibilities for Outcome and Monitoring Outcome Ov c r occur (i.e.previously or amongst supporters FC ground the Charlton at of the t the medium of Arts through schools within the borough projects. F F G Challenges T like. as widely as they would them deliver funding to Another challenging issue is the new to that are adapt projects of communities the needs to to having (i.e.borough communities) Traveller and Gypsy & communities new immigrant T partnership Council, Greenwich between FC, Charlton Police, the Metropolitan College,Greenwich Racial Equalityfor Leisure and Greenwich Council Greenwich runs sports (which Ltd centres). of a wide range It covers and in Greenwich works activities, education, from with engagement to and empowerment training sports people through young disaffected activities. It both on operates secondary and primary levels,community, people in the all young and is open to amongst these young knowledgewith the aim of increasing and tolerance people. Pr Pr coaches, football as potential training for people together and white example, for or, on the arts side, their working in primary with children improve schools to skills,citizenship diversity, help them value respect one another, and so on. Co views, and racist prejudice club that expressed contact bringing them into with skills in coaching training and people for black and minority ethnic young together. match a football attending

Preventing Racist Violence 28 Working with Potential Perpetrators in the Current Policy Context 29 for example. for example. t to assess the most effective intervention. t to assess the most effective ex nt ommendations: perpetrator and victim can be particularly groups perpetrator is one of their objectives clear that are if they successful attitudes,to challenge racist is not if this objective even officially stated. particular area need to take into account its specific account particular into need to take area co c Case Study 8 Indeed, since the disturbances in the 10. projects bring together potential that Prevention Re 9. in a violence racist to prevent intervene Projects that ell), the majority of projects are of projects ell), the majority ertiary interventions are easier to are ertiary interventions xplicable because of the prominence ather than working with one particular ather than working of the disturbances. As highlighted in of the disturbances. of the Community reports the various Programmes Cohesion Pathfinder 14 whilst the government, funded by in nature varied funded programmes w on primary working currently and consequently interventions, society at large. with on work focussing to untangle challenge has been A major in of intervention levels the different identified in the context most projects in London. undertaken of the research T specifically those target isolate as they offended, already individuals that have as in interventions Primary and secondary simultaneously often operate It can be difficult to differentiate on primary that work projects those dealing with from interventions of them Many secondary interventions. is – which at both levels operate e of the community cohesion agenda, aiming to bring communities together, r group. northern cities in the summer of 2001, acknowledges policy while government the so- with the importance of working it also called ‘white’ communities, cross- the need to encourage stresses and to work, cross-community cultural, of the tradition from shift away seen as one of the causes segregation, ) funded work with potential Case Study 7 there is generally no is generally there owever, owever, H the Home Office. This constitutes a the Home Office. imary, Secondary geted Policing Initiative in Initiative geted Policing

r amples of work that looks at victim amples of work and sometimes through ample, amine prevention work in relation to in relation work amine prevention ork to prevent racist crime: racist ork to prevent ould be best placed to devise a ould be best placed to devise ather than look at incidents only in erpetrator and victim erpetrator ears. ears. xpulsion from a particular location for xpulsion from xists, since the funding, as with so xists, eduction agenda also provides eduction agenda also etrospect, a multi-agency panel a multi-agency etrospect, and Tertiary Prevention – Prevention Tertiary and Linked or Confused? While our original investigation gap in secondary identified a research namely prevention, Pr violence racist to prevent perpetrators as research Sibbitt’s (identified by ex It in a holistic way. and perpetrator of in the context place usually takes dealing with panels, multi-agency violence and racist individual cases of occurred. have when they harassment of the victims are the needs There, as what is required as well considered or at least the perpetrator to prosecute tackle his or her offending behaviour Orders, Behaviour Acceptable (through or Orders Anti-Social Behaviour e ex criminal prosecution). the Crime Reduction agenda Reduction the Crime cohesion the community Aside from victim and bringing of projects stream the crime together, groups perpetrator r P w Southwark (see Southwark by prevention strategy. One example where One example strategy. prevention a was did exist such a partnership Ta that should be example good practice disseminated in other local situations. no longer this project Unfortunately, e for only 3 available was projects, many y bringing together practitioners dealing bringing together practitioners with both victims and perpetrators w r developed multi-agency structure to structure multi-agency developed ex both victims and potential perpetrators. R model to tacklemodel to in the and homophobia racism partnership and a TNERSHIP MODEL problem-solving R PA he problem-solving approach involved asking all partners do in involved in the project look at what they could approach to he problem-solving he partnership model involved taking time to build strong linkages between different agencies (in taking linkages build strong different he partnership time to between model involved or instance, it engaged with, people that the young the project found attitudes their racist to in response ase Study 7: ase ntext, Aims and Objectives F T T In addition, working by violence future although the project leaders had a clear objective of preventing rk, it (e.g. to and has added some new elements going borough-wide, on a had focussed whilst PPACTS eiving end of violence, stopped. behaviour offending the have need was to the most urgent By the time ocess and Outputs ocess olice, in Southwark (PPACTS) Together Community and Partners ood Practice Recommendations ood Practice c ffice, in other settings. a sign that this was an example of good practice that should be replicated a As unding etached Anti-Racist Youth Work Project (see Case Study 1). (see Case Project Work Youth etached Anti-Racist he Police recorded a large reduction incidents in the area. of racist a large recorded he Police treated always are Although these figures he setting-up phase took almost a year.he setting-up phase took the funding through project half way this takes a 2-year you For his project both a used elation to three intervention three strands:elation to supporting the victims, dealing with the perpetrators, and impacting esult, components. of the project the profile and its different it raised or victims of racist violence and harassment and their families,or victims and harassment violence of racist in a particular setting, to acted as a deterrent C P G replicate: Element to r on the location. example, For although victim support deal with the victims was called in to principally, it was of intervention.This strands the other two to contribute also asked it could how the for allowed approach and examine the incidents in a wider context. intelligence share to agencies involved different F Demonstration Status,Because the project had achieved the Home Office 6 extended the funding for months, going. keep funding to work the seek alternative giving it time to thereby a result, As the Council, Crime, against Hate its Campaign through project such as the mediation funding parts is now of the PPACTS wo particular area). not just the partnership group – including police/community be replicated model that could it’s Here partnerships as well. approach – but the problem-solving particular black and minority and the in these areas. the police) ethnic communities with caution, as an under-reporting incidents, as they can be interpreted of racist community intelligence the partnership had been a tangible reduction that there by in the conclusion to developed model pointed incidents, of PPACTS. the work thanks to In addition, the Home Demonstration Status from received PPACTS O r area. the stage of directly the problems. get to addressing can really you time before perpetrators, and potential with perpetrators the fact by also affected that, they were victims for at the re and Monitoring Outcome T Challenges T Pr T Co (TPI). Initiative Policing Targeted as a was set up the Home Office,TPIs by Funded PPACTS look at innovative policing. a multi-agency was set up as partnership statutory of both and voluntary with organisations PPACTS crime and incidents in a particular and homophobic racist the aim of reducing that had of Southwark area Force,Victim‘hotspot’.It the local Police together brought as a the police Support,been identified by Youth a and Mediationproject the area Services. from the project Although was primarily victim focused, it included the mediation activity through victim alongside place with perpetrators that took an element of work support intelligence-gathering. and police and behaviours, anti-social crimes and motivated other non-racially for known already the police to were behaviour. working was vital in successfully the perpetrators. with information Such Also, such open support f offenders. and potential perpetrators the project further look at could on challenging attitudes, work Home Office the the funding from had ended, be found. funding needed to and alternative project, Had this been a 4-year could work much more attitudes, been done on challenging racist have a detached intervention through like potentially the Bede D

Preventing Racist Violence 30 W orking with Potential Perpetrators in the Current Policy Context and outputs, ranging from arts projects pupils and teachers, and work with to environmental initiatives, all had in parents as well as pupils, for example. common the objective of ‘breaking Case Study 9 is a good example of down barriers between and within the way in which an agency generally communities’.46 associated with tertiary intervention In this bid to ‘concentrate can have an impact on primary and similarities and commonality rather than difference’,47 projects have largely focused on primary interventions that Recommendations: are directed at all sections of the 11. The 3 levels of intervention should run community and that encourage the alongside one another, to prevent any gaps in bringing together of groups that would the process which could reduce the effectiveness of one or the other approach (i.e. not necessarily meet in other secondary prevention work will be undermined circumstances and enhance by lack of intervention at a wider primary understanding and interaction between level). them. Examples of such activities 12. Agencies that are obviously associated with include the use of public events and one particular area of intervention should look theatre groups to create greater social at how they can impact on other levels of cohesion (through for example the intervention (i.e. how probation work could be celebration of the local carnival or St part of a preventative strategy). George’s Day) or the creation of a multi-faith forum bringing different religious communities together. secondary prevention. A collaborative Most of these projects did not project between secondary school therefore focus their attention on one pupils and their local criminal justice particular group, let alone potential agencies – including the police, perpetrators, but often worked with the criminal court, prison and court whole community. Only one example reporting services – it resulted in a was found, within the Kirklees video, which was then shown widely in Pathfinder, of an anti-racist youth other local schools. The video tracks project that targeted young white the work of the local criminal justice people in particular to challenge board in tackling a perpetrator after ‘underlying issues about their he/she offended, and therefore is an perceptions of other races’.48 example of tertiary intervention. The objective of making the video and of its Social approval of racist perpetrating post-production use (disseminating it to behaviour needs to be neutralised schools, etc.) was clearly, in the mind This observed simultaneous of the South Wales Local Criminal intervention at both primary and Justice Board, that it should be used as secondary levels is consistent with a preventative tool. Sibbitt’s conclusion, which is that a perpetrator does not operate in a social vacuum but is, rather, condoned by his/her social milieu. As a consequence, the effectiveness of secondary interventions with identified 46 Home Office (2004b) potential perpetrators can be Community Cohesion Pathfinder Programme: London and South undermined by a lack of primary Pathfinder Consortium,June,p.1. http://www.homeoffice.gov.uk/ intervention with his/her family, peer docs3/comcoh_revised_london group, neighbours etc. south_booklet.pdf Primary interventions can include 47 Ibid,Foreword. education training in schools with 48 Ibid, p. 3.

31 The Search for Tolerance:The Search for Challenging and Changing Racist ork:The Charitable Foundation Joseph Rowntree .Y IMPORTANCE OF DEVELOPING A SECURE SENSE OF OF DEVELOPING IMPORTANCE ntext, Aims and Objectives ase Study 8: ase ood Practice Recommendations ood Practice wn identity and develop new behaviours and attitudes. new behaviours wn identity and develop one-to- It through operates he programme aims to work with racially motivated offenders to reduce their racist their reduce to offenders motivated with racially work aims to he programme his project, offenders, motivated racially with convicted work although devised to ould be replicated at an earlier level of intervention,earlier level at an ould be replicated with people expressing T and attitudes.behaviours It was devised as a partnership and the probation between or at least offenders prison service motivated challenge the attitudes of racially to and in a YOI behaviour. their racist help them control at Feltham piloted Currently boroughs,number of London the risk of re- reduce objective is to its ultimate perpetrators, the by offending their sense of build up a secure enable them to to o a facilitator, and the offender between one work impartial remain to is trained who process. the and objective throughout G replicate: Element to IDENTITY BEFORE PREJUDICES CAN BE LET GO T c views. racist entrenched Co * Case Study 8 is developed extensively in G. extensively 8 is developed Study * Case (2005) Lemos Attitudes and Behaviour in Young People Young Attitudes and Behaviour in C Offenders’Hate Crime Manual

Preventing Racist Violence 32 How to Support and Sustain Work with Potential Perpetrators 33 do have, i.e. racist incidents racist i.e. do have,

eporting, cannot always be relied on be relied eporting, cannot always in racist eporting. Indeed, a reduction interventions, and the victim groups. interventions, importance of This points to the In listening to community intelligence. all interviewed addition, practitioners mention the importance of long-term assessment to establish if the follow-up impact. Self- has made a durable project (in this group the target assessment by is case the potential perpetrator) the of measuring another useful way part of an but is also distance travelled, as it can lead to intervention effective as an ‘eye- an attitude shift and serve all opener’ for the individual. However, these measuring instruments are in quantitative to be reflected unlikely analysis. Measuring outcomes: (2) prevention that try to impact on prevention Projects of faced with the problems are outcomes to effective demonstrating further funding. It is difficult encourage something that has not yet to measure This is particularly true in the occurred. as not only is it violence, case of racist difficult to come up with quantitative a shift in instruments to measure that statistics but the available attitude, we r under- of due to high levels for accuracy r does not incident reporting in the automatically mean a reduction In addition, crime incidents themselves. statistics do not spot the impact of harassment, on low-level interventions which does not fall within the scope of not always and is therefore the law agencies. enforcement law up by picked ntial Perpetrators

te

A major difficulty is how to make A major difficulty is how ong-term Supportong-term unding agencies most often require ealised that ensuring their Measuring outcomes: (1) attitudes a lack of statistical is currently There shifts in instruments to measure about this issue, When asked attitudes. all mentioned the have practitioners importance of considering the validity coming from of anecdotal evidence, but also on the projects, those working the by those targeted from feedback of this kind, and it can be a project effective how to prove hard in has been, and will continue to be, happening. from something preventing will usually Estimates of effectiveness when one and even be qualitative; back on success rates attempts to report figure it will be a negative often obsolete data by contextualised defined that will have sources from the from differently their criteria very an then, can one make How, project’s. for continued funding and argument the importance of the work? convey sustainability was one of the biggest sustainability was is a faced. There challenges they all strands significant consensus around with potential work of prevention is that their work – which perpetrators lack of difficult by is made more sustainable support in continuous, carrying out their objectives, particularly a lack of long-term funding. than rather convincing quantitative, of outcomes. measurements qualitative, F While examining the projects identified the projects While examining we of our research, in the context r L Po Sustain Work Work Sustain with III. Support to How and AKING WHAT YOU LEARN AT ONE LEVEL OF LEARN AT YOU WHAT AKING T agreed during the planning process,agreed school to the students on their return

he students’ a crime by given case ended with a tutorial in the involvement ntext, and Objectives Aims As T ase Study 9: ase areness on the effects that racist crimes have on victims. crimes have on the effects that racist areness arded prizes of £50 to the two best entries. the two of £50 to prizes arded ocess and Outputs ocess aluation was done with the views of the young people and what they thought of young aluation was done with the views of the ood Practice Recommendations ood Practice outh Wales Local Criminal Justice Board Initiative Board Justice Criminal Local Wales outh ison. porter who explained how racist offences are covered by local newspapers. by covered are porter offences racist who explained how During ales Criminal Justice Board agreed a project enabling young people to visit every people to a project agreed Board young enabling ales Criminal Justice acpherson Report on the Stephen Lawrence Inquiry).acpherson Report Lawrence on the Stephen this, to In response the South unding ffairs,‘best practice’ as recognised subsequently was the National Criminal by ompany Ltd and introduced by Lord Falconer, Lord by and introduced Ltd Secretaryompany Constitutional for of State his project is a good example of an agency with tertiary associated traditionally he Headteacher of Pentre Hafod School in Swansea selected 14 students from School in Swansea Hafod of Pentre he Headteacher unding by the Local Criminal Justice Board. Criminal Justice the Local unding by acism, its impact offenders. on victims for the consequences and * Fuller coverage of this project can be found on the website: of this project can be found coverage * Fuller http://www.lcjb.cjsonline.org/South%20Wales/achievements_new.html#Criminal A Board.Justice the from a national Equality It Award and Diversity has also received Service Prosecution HQ. Crown shared their experiences with others during classroom debates.The with others during classroom their experiences shared whole project video,was filmed and the resulting in conjunction Media with Quadrant produced C Outcome and Monitoring Outcome Ev the project. it helped that most students felt shows the monitoring from Feedback their and raised system of the criminal justice understanding them get a better aw F F G replicate: Element to LEVEL ANOTHER TO PROACTIVELY INTERVENTION T intervention (i.e. working with actual taking apply to offenders) measures proactive their learning and expertise primary to interventions. and secondary (preventative) Pr T start case from to a fictitious aggravated racially follow to backgrounds diverse finish.The students’ participation suite in the project the custody included visits to Station, Police in Swansea Service, Prosecution the Crown the Courts Service Officer) at Swansea the cells and finally with a Probation (including a conversation Pr re draft a newspaper article to on how guidance on the students received the tutorial the case.The a panel, by assessed articles the students were by written who aw C S Co people is young language by has established that the use of racist Research identified in the (an issue Wales in secondary South schools throughout prevalent M W agencycriminal justice the professionals, question to they tackle understand how r

Preventing Racist Violence 34 How to Support and Sustain Work with Potential Perpetrators 35 In the course of our study, we came our study, of In the course licymakers in funding licymakers ASE NOTE: Po across projects that reflected our findings around that reflected projects across a work. In the case of anti-racist funding patterns of the practitioner youth project, particular anti-racist funding confirmed that the work did get renewed the anti-racist however, the local council; from was not supported, and the the work component of youth project. detached became a mainstream project C vidence from which to draw which vidence from Dependence on government priorities Dependence on government the from suffered have projects Many fact that funding depends on the topic organisations need to consider this and organisations for not cut funding in a search has proved when a project innovation a valuable in achieving effective does not just finish, a project objective; will they attitudes don’t just go away, the next be modified by always people needing to of young ‘tranche’ often in identities, establish their own as as well opposition to their peers Cutting the other sections of society. can that works funding of a programme affect the immediate and long- severely term outcomes. conclusions about the extent to which about the extent conclusions such to funding is resistance there or projects. activities funding Lack of long-term is work of prevention The sustainability the lack of by also significantly affected that have Projects long-term funding. specifically working been identified as racist of with potential perpetrators the need to build violence talk about those people, trust with the targeted extremely expressing who are which cannot views, racist entrenched be challenged in the short term. This that for organisations problems creates because of the protracted unable, are to timescale necessary for their work, the time a tangible outcome by present will often need They the funding ends. funding to carry for alternative to search or and complete, out the same work the project. simply continue, e there is no there working with potential Findings from our research suggest our research Findings from will arts organisations In this way about to be asked Questions have An additional challenge in An additional unding policies on unding policies on eduction government programmes if programmes eduction government eceiving their funding on the basis of that funding for organisations that that funding for organisations with work include preventative violence of racist potential perpetrators of governmental a variety comes from often sources, as private as well the sector that these determined by in and sometimes work organisations or of the work the nature guided by choose to that they specific projects undertake. another arts get funding from or the Arts Council, but organisation crime funding from can also receive r people young use the arts to divert they However, for example. crime, from we among all the organisations identified, not one of them was r potential with work doing preventative violence. of racist perpetrators carrying out this type organisations how in their work to present have of work no are to get funding. Since there order funding based on the achieving projects of sole objective F secondary intervention of the difficulty in measuring As a result such as that related the impact of work not been able to have we above, that identify one single funding policy to organisations resources provides whose primary aim is to tackle racist secondary violence through intervention. monitoring the impact of work with the impact of work monitoring difficulty in is the perpetrators potential prevented have what they measuring this Apart from violence). no racist (i.e. significant in relation being particularly funding to attract to funding, and how tangible to measure when it is difficult it is also important in outcomes, are when interventions knowing lessons need to be successful and what them. learned from violence by of racist perpetrators challenging their attitudes, SHARING PRACTICE ACROSS BOROUGHS ACROSS SHARING PRACTICE he Forum’s membership consists of the Metropolitan Police, consists membership Metropolitan Police he Forum’s ntext, and Objectives Aims T oughs, with the Chief Executive a number of meetings organised has the Forum ase Study 10: ase eiving end of the racist violence. eiving end of the racist er carrying out research to ascertain the state of racist incidents in various London er carrying ascertain incidents in various to of racist out research the state ocess and Outputs ocess r erall objective is to prevent race hate crime from occurring, crime from hate race prevent objective is to erall reporting the increase t up by the Metropolitan Police Authority, Police the Metropolitan t up by support aims to this forum the ood Practice Recommendations ood Practice t c enerally a community representative from the borough being scrutinised attends, the borough from a community representative enerally to unding uthority, Authority, London the Greater Service, Prosecution the Crown as as well he fact that the Forum gathers information from across London boroughs makes boroughs it London across from gathers information he fact that the Forum he Forum now intends to monitor the progress made by the boroughs that have the boroughs made by the progress monitor to intends now he Forum seeking and is currently Authority the Metropolitan Police is funded by he Forum ondon boroughs, sharing of good practice and multi-agency through work. Its G replicate: Element to T outside the local setting.This information crucial share to a useful place potentially be verysharing could useful, the develop to intends in particular the Forum since the next 2006. year aspect over of its work prevention Holding local authorities to is put be useful in ensuring that prevention would work on their prevention account on the local authorities’ agenda. Outcome and Monitoring Outcome T the last year. over been approached F T further sustain its work. funding to ov occur, crime that does hate of the race support better victims, provide for and ensure justice. to brought are that perpetrators A and other community and representatives government local authority and central black and minority ethnic groups. Pr Af Bo of each of these boroughs.The Commander and the Borough work objective is to tackle crime to hate of their local strategy race with them on the elaboration effectively. public. and the local authorities are the Forum Meetings between G the community at the from is at least one perspective being offered there ensure re Challenges During its first year, the challenge of looking accurate faced for the Forum scrutinise. it was planning to crime in each borough hate on race information It also picture looking by accurate incidents more a more at racist develop wished to generally, the police.This by than just those recorded rather examining third- involved party reporting its use, and the reporting around and other trends of incidents. of actors engage with the wide variety in the field of Another challenge has been to prevention, in a truly multi-agency work so as to way. Co Se crime within each of the hate deal with race to strategies of effective development L C Authority Policy Metropolitan (MPA) Crime Forum Hate Race

Preventing Racist Violence 36 How to Support and Sustain Work with Potential Perpetrators

heading the governmental agenda at a aspirational level (i.e. youth workers, given time, which means that the arts organisations), trying to build new funding source determines the project, attitudes for the future rather than just rather than the reverse. The community ‘tidy things up’ for the present, are cohesion agenda – a central plank of faced with getting support only if they the government’s priorities over the last incorporate the reduction of crime as a 4 years and currently exemplified by the priority, and prove their effectiveness recent strategy document Improving with statistics. Opportunity, Strengthening Society49 – has provided the policy framework for Encourage Networks, most programmes on the prevention of Multi-agency Work and racist violence. This top-to-bottom approach, as Cross-sector Partnerships Importance of information-sharing applied by the government over the last beyond localities 4 years, has meant that in the first Throughout the research it has been instance grassroots organisations have noticeable that, outside of local settings, found themselves in the role of there is little information-sharing in implementing the government’s vision, relation to preventing racist violence. rather than being encouraged to devise Although Crime and Disorder Reduction projects that respond specifically to the Partnerships (CDRPs) within each needs on the ground. Organisations borough have the same objectives of have had to pitch their work according reducing crime locally, they exhibit to the agenda and approach advocated differences in their approaches to by government policy. Similarly, the tackling racist violence or hate crime focus by successive governments on across the various boroughs. An repression rather than prevention in the organisation such as the Metropolitan criminal justice system helps explain Police Authority Race Hate Crime Forum why there is a shortage of projects that (see Case Study 10) would be a great work to deal with racist violence before instrument if it were to include it occurs. prevention as part of its exchange of As a consequence, it is harder for practice and information. organisations that work on challenging All CDRPs investigated in the attitudes to find adequate resources. context of the research have a strategy Even organisations whose main remit is to tackle hate crime, which includes 49 Home Office (2005a) op cit to work with people at a more Note 26.

Recommendations:

13. Although governmental agendas must set the guidelines for the provision of resources, funding agencies should support creative implementations of this agenda that respond to the needs experienced at the grass roots.

14. Funding agencies should take the lead in developing programmes that explicitly support work with potential perpetrators that aims to prevent racist violence by challenging racist attitudes and facilitate practice sharing across sectors

15. Funding for work to bring about attitude change should be long-term funding in order to allow for the change in attitudes to take root. Similarly, successful intervention projects should be able to access ongoing funding beyond the short term.

16. When assessing the value of work to challenge racist attitudes, especially in an application for repeat funding, the funding agencies need to recognise the validity of anecdotal evidence and soft outcomes.

17. Research that looks at how to measure the effectiveness of work that challenges racist attitudes would be useful for practitioners and policy makers alike.

37 HOLISTIC APPROACH HOLISTIC APPROACH rm groups, groups, year assemblies in primary and secondary schools, and so outh forums and,outh forums importantly, work. detached youth ase Study 11: ase ntext, Aims and Objectives on.They classes. in the context of PSE and citizenship also work such as centre-based, work methods of youth various through music/arts-based y particular people. at those working with young the given are Participants opportunity based on a wider perspective, their existing beliefs reappraise to can impact these beliefs upon practice. examine how and to thus trained Groups of the police, included representatives far have workers, youth teachers, housing staff, health staff, community workers, and so on. fo rk nationally as well. ould provide the appropriate skills required by youth workers when trying workers youth skills by to the appropriate required ould provide ocess and Outputs ocess ood Practice Recommendations ood Practice has developed a ‘REWIND’ a has developed of the work: strands use in all three pack for training c unding udiences need to be clear about the content and objectives of REWIND training, be clear about the content need to udiences i.e.

he ‘philosophy’he action at all 3 (involving approach and the holistic of the training he Neighbourhood Renewal Fund has now agreed to continue funding the project, continue to agreed has now he Neighbourhood Renewal Fund und and through the Home Office’s Community Cohesion Pathfinder Programme. Pathfinder Cohesion Community the Home Office’s und and through C REWIND G replicate: Element to T communities. between of tension in areas of intervention) be replicated could levels It Outcomes and Monitoring Outcomes out of a projectWhat comes of this type evidence, is mainly anecdotal of the kind the people who go by travelled the distance determine to the trainers that allows the training. through F Fund, the Neighbourhood Renewal REWIND the Children’s was initially funded by F T REWIND mainstream within has decided to Partnership Strategic and the Local Sandwell. In addition, Office the Home REWIND carry has commissioned to out its wo with. people they work attitudes among the young of challenging racist devise ways 2.Work: people on issues of racism, with other young work educators Youth Peer 3. organisations, for Training and community groups, professionals directed in Challenges A diversity’‘cultural that it is not training. REWIND is an anti-racism peer education project based in the West Midlands.West REWIND project peer education is an anti-racism the based in Its been created that have myths exposing the by challenge racism objective is to project clearly that the diversity states is not about cultural ‘race’.It of issues around or equal opportunitiestraining training. Significantly, that it is not it also stresses anyone,about blaming or shaming but is, rather, to the arguments providing about views. challenge racist Pr It 1.Work: Schools-based their to sessions the project from deliver educators Peer Co

Preventing Racist Violence 38 How to Support and Sustain Work with Potential Perpetrators 39 ,48 Executive ome Office .H An Investigation into the An Investigation mestic Violence and Crime & Violence mestic hat can we learn from hat can we evention: A collaborative olice. indings from a self completion Online Report 56/04. London: Home Office. 52 P.Sully and K. Greenaway (2004) of Domestic Antecedents View to Its Homicide with a Pr project.research Summary. London: City and Metropolitan University P http://www.city.ac.uk/ippr/dps/ executivesummary041212.doc 50 V.50 Kielinger & E. Stanko (2002) ‘W use of the police?’, people’s Matters Criminal Justice (summer): 5. 51 A. Diamond et al. (2004) Do ReductionDisorder Partnerships: F questionnaire 52 ), which started using the This approach, if proved to be if proved This approach, A multi-agency approach, which approach, A multi-agency also Joined-up intelligence would the Metropolitan Police found that Police the Metropolitan

oided if various care professionals care oided if various ents and incidents that were leading ents and incidents that were gain, a parallel can be drawn between can be drawn gain, a parallel acuum. They often occur in a acuum. They ecommendations for strategic change. for strategic ecommendations mechanisms will then allow eferral intervention). eactive domestic to prevent ecently advocated effective through further research, through effective violence. for racist should be replicated of and the success Anecdotal evidence, of of good practice the isolated example (see again in Southwark the PPACTS Case Study 7 thus calls for an early warning system thus calls for an early warning panels. multi-agency through with to work approach multi-agency actual potential perpetrators, and victims simultaneously, perpetrators a good case for piloting multi- make extensively. more work agency the Understanding of partnership ambivalence the use of Although recommending when dealing with work multi-agency agency work in relation to racist in relation work agency useful provide would and violence, r is information-sharing, encourages and Kielinger & important. Both Sibbitt violence racist that stressed have Stanko in a operate and incidents do not v that must be particular social context work. prevention in any addressed can help identify Information-sharing that organisations the right people or the particular setting or understand Clear violence. racist around context r that both for the identification of people might be at risk of offending and for than (rather early intervention proactive r to be defined by clear remits allow as the police, agencies as various Social Landlords, Registered mediators, and so on. community organisations A these findings and the approach r commissioned research Indeed, murders. by domestic murders could have been could have domestic murders av the information around had shared ev up to the final, fatal attack. The report They focus largely on focus largely They 50 This would usefully raise the usefully raise This would 51 A number of CDRPs surveyed in the A number of CDRPs surveyed CDRPs are the ideal setting for a CDRPs are authorities, and appropriate authorities,

amine individual cases of racist ork when it comes to preventing racist ork when it comes to preventing eporting for victims, proper recording proper eporting for victims, acist violence and harassment, but it is and harassment, acist violence acist violence is part of CDRPs’ similar to that acist violence, profile of the importance of multi- profile violence and harassment, and to decide violence and harassment, mechanisms redress on the appropriate for measures for victims and punitive these incident However, offenders. panels tend to adopt an ‘incident based’ Kielinger & (as put by perspective 2002). Stanko by However, of perpetrators). prosecution of multi-agency examples few are there w the potential targeting violence by perpetrators. that revealed of our research context panels to up multi-agency set have they ex Multi–agency work – work Multi–agency models for prevention in is encouraged Although partnership is not applied it violence, tackling racist Indeed, work. of prevention in respect advocated is already work multi-agency violence after it to deal with racist increased to ensure happens (i.e. r r Some in each borough. different to further steps taken have boroughs of the aspect that the prevention ensure with work account of takes strategy whilst others potential perpetrators, way. in a reactive continue to work benefits be invaluable would There across experiences sharing from of replication to encourage boroughs CDRPs. by good practice how they can work together to hold a can work they how to account or support a perpetrator victim, once the incident has occurred. model to be applied to multi-agency to get a In order strategies. prevention to which of the extent picture clearer r be it would agendas and priorities, research useful to conduct systematic resources, into their strategies, successes and challenges in tackling r to domestic conducted in relation violence. ). Case Study Case Study 4 Cross-sector partnership work, when work, partnership Cross-sector relations the ‘race In this context, the mission When examining ). ork to prevent racist violence by racist ork to prevent white people would orking with racist ork with black and minority ethnic eople, where the diversionary strand of strand the diversionary where eople, outh workers, or theatre or arts or theatre outh workers, eduction agenda than in supporting eduction agenda than aspirational objectives of their work, as their work, of objectives aspirational for Young Activities Positive seen with P sole becomes the the programme cohesion and the community objective, ( get forgotten objectives it occurs, has been employed more been employed has it occurs, of driving the crime often in the service r In this sense, community cohesion. y cases numerous in have organisations, in partnership to work been approached agencies enforcement with the police or people off the young to ‘keep in order has been no such but there streets’, round. the other way partnership partnerships: Cross-sector and anti-crime anti-racism with working Although projects violence of racist potential perpetrators seldom they occur, when they rare, are This sector. sit within the ‘anti-racist’ challenges a popular assumption that w w and would ‘anti-racist’ be considered place itself firmly within the anti-racist agenda. that sector’ is defined as organisations w communities and aim to tackle them and lead to discrimination towards working Agencies their empowerment. attitudes racist with people expressing as wide-ranging sectors coming from are mediation, arts or as crime reduction, therefore: education. The question is, be with white potential racists can work (see ‘anti-racist’? considered 11 researched, statements of organisations do not all officially state that their they Some of these anti-racist. are objectives with black do not work organisations and minority ethnic communities but primarily with white communities. the potential benefits of What then are and work work linking up anti-racist with potential perpetrators? Community cohesion projects, on Community cohesion projects, om the early stages of the research we om the early stages of the research ork with potential perpetrators. When ork with potential perpetrators. ork. A further finding is that there is a ork. A further finding is that there eduction and community cohesion eceived by the community they work they the community by eceived agencies). enforcement (i.e. egarded community cohesion projects have a have community cohesion projects component, it is crime diversionary often to the detriment of the more projects don’t include a sufficiently projects As dimension to their work. aspirational focuses on changing their work a result as opposed to attitudes. behaviour the other hand, home in on bringing without communities together, different taking a line on the ‘hard-to-reach’ w lack of partnership work between these between work lack of partnership Crime reduction strands. different potential perpetrators, our primary perpetrators, potential challenge the encountered findings also public between that partnership and community-based authorities for the latter. can represent groups studies identified case have Indeed, we effect has been to alienate the where those whom the community- precisely trying to target was based organisation of racist (potential perpetrators the outcome violence), thus rendering is a pitfall to avoid, less successful. This to cross-sector with particular reference when some participating partnerships, well been generally agencies have r not so well with, and other agencies are r crime partnerships: Cross-sector r Fr carried out to identified that the work changing the violence by racist prevent comes attitudes of potential perpetrators and fields of sectors of a variety from w In conversation with the manager of a with the manager of In conversation YP funding was distributed only to youth YP funding was distributed only ASE NOTE: youth organisation, the latter expressed concern that the latter expressed youth organisation, PA and crime reduction that did organisations aspirational than more work, rather diversionary long-term the impact ignored work. This approach of work could have on the reduction exploratory also sidelined the community and criminal activities, objectives. the PAYP of cohesion strand C

Preventing Racist Violence 40 How to Support and Sustain Work with Potential Perpetrators 41 k. A National eople: A national study of street- outh Agency Report.York: 53 D. Crimmens et al. (2004) Young Reaching Socially Excluded P wor based youth Y Foundation. Joseph Rowntree 53 A mediator had noted that Somali had noted that A mediator ASE NOTE: amilies were targets of racist abuse and harassment abuse racist of targets amilies were f do what she should In thinking estate. on a particular local number of together a she brought about it, the local authority’s such as the local police, agencies, of representatives most importantly, youth unit and, what could be discussing After the Somali community. it was agreed to the harassment, done to put a stop a series of would organise that the mediator on focussing local youth centre, workshops in the and bullying, and tolerance issues that included had been specifically the young people who targeting She the Somali families. harassing identified as those the victim backing of went into this work with the full the backing made dialogue and moral This groups. effective and has perhaps helped in intervention more the project. gathering support for C These findings echo the views of These findings echo the views The announcement in the oung people’s behaviour’. oung people’s vidence (both policy research and research vidence (both policy elationship to be built outside the usual detached youth workers interviewed in interviewed workers detached youth with potential of work the context The violence. of racist perpetrators e work, that youth anecdotal) shows is a work, especially detached youth to deal with way useful and effective This people. young faced by problems with them on includes working attitudes that might lead them to violence. of racist become perpetrators for a allows work Detached youth r schools). formal education settings (i.e. has to reach worker The detached youth on his/her person out to the young with for work thus allowing territory, people. of young the most excluded support for this sector would More change in the long-term a real make working of those who are effectiveness racist people’s young to address both actual and potential. attitudes, equality and race government’s involvement by the young people the young by involvement found that it also However, themselves. to in relations problems this created fast, expecting funding, with funders and ‘the capacity of quantifiable results to control intervention street-based y or That or That Needs ct There are arguments for coordination arguments are There This problem, one faced by youth one faced by This problem, the Joseph Rowntree Foundation the Joseph Rowntree

orking with potential perpetrators orking with ork. orkers in particular, needs to be in particular, orkers oung people, especially if developed in especially if developed oung people, equires a philosophy, tools, philosophy, a equires importantly it. More to deliver equired acist attitudes, and do not feel acist attitudes, attitudes are esponse when racist ecognition and financial support. between these two lines of work, for work, lines of these two between objective because the overall one thing, Similarly, racism. to reduce is the same: w r be isolated mechanisms that cannot and minority ethnic black from of Members communities themselves. as just as likely are these communities in the to find themselves else anyone victim or an position of either a that member of a society empowered is with potential perpetrators the work These the better. trying to change for are raise questions and the debate they on just one element of the wider debate education and the tools anti-racist r faced by highlight the problems they with wish to work who practitioners violence of racist potential perpetrators backing, and but who lack the moral sometimes the skills to carry out such w found that detached youth work in work found that detached youth to engage way particular is an effective with disaffected, socially excluded y and based on voluntary way a flexible Moral SupportMoral and More in a find themselves often Practitioners challenging situation, when faced with r equipped to deal with them. This lack of confidence and skill can often result in a lack of or an inappropriate r encountered. w of within a wider reframing addressed Indeed the latter work. of youth the role faced with challenges currently are to the fact that it is an linked extremely sector of work, undervalued and in need of more draining, r commissioned research Evidence from by An Undervalued Se rvnigRcs Violence Racist Preventing

not unless there is political leadership and support for the work itself. Recommendations: There is an assumption that, when 18. Partnerships should be developed between agencies/organisations faced with a situation where people that work with potential perpetrators and those working with black express racist views or are identified as and minority ethnic groups to ensure that the latter are involved in potential perpetrators of racist violence, work to challenge racist attitudes. Partnerships that constructively practitioners and youth workers in engage potential victim and perpetrator groups will help devise particular are equipped to deal with it. proper solutions and will provide moral backing to those that are working with people that have entrenched racist views. However, practitioners themselves have expressed the difficulty of dealing with 19. Youth work needs to be provided with adequate support to feel this situation when it occurs. Research confident enough to work with potential perpetrators of racist carried out for the Commission for violence to challenge their attitudes and prejudices.This support should be signalled through strong leadership from central Racial Equality in 1999 corroborated the government and should be filtered down to the local authorities view that carrying out anti-racist and youth services. education with white ‘at risk’ offenders is a delicate task that youth workers do 20. Youth services and local authorities should budget positively to not feel comfortable to undertake. provide adequate resources for youth work that aims to challenge the racist attitudes of potential perpetrators of racist violence. Reasons quoted for not embarking on anti-racist youth work include fear 21. Cross-sector partnerships should be devised in a way that and insecurity in relation to carrying out encourages aspirational activities, rather than purely diversionary the work; lack of knowledge and skills, ones.Youth workers and other practitioners who have proved their ability to work successfully with young people in achieving the denial of the problem altogether, and more aspirational objectives should not be co-opted into working organisational issues, such as lack of only on crime reduction and diversionary activities. support from staff or senior managers, or the worry that their interventions will 22. Multi-agency work is necessary for the successful prevention of racist 55 violence by working with potential perpetrators.At the local level, if not work. At the same time, CDRPs already have multi-agency racial incidents panels, they challenging racist behaviour through should be sure to include a prevention strategy, rather than just a enforcement rules (for instance banning reactive response. some people from entering youth clubs, and so on) is not always the best way 23. Multi-agency work needs to happen across the full range of the different sectors involved in preventing racist violence. to bring about long-term changes of attitude. Also, for racist views to be 24. Specific and systematic research should be carried out into the way challenged, they first need to be that CDRPs included the fight against racist violence in their expressed and heard. That becomes an strategy, including issues related to resources, successes and challenges.This would usefully raise the profile of the importance of issue for a youth worker who feels multi-agency work to tackle racist violence and would provide he/she runs the risk of being seen to useful recommendations for strategic change. condone such attitudes. With no formal structures devoted to supporting this 25. Partnerships in relation to perpetrators need to be strategic and work of prevention of violence through pragmatic, and to take into account the sensitive nature of both the matter and the target group involved. changing racist attitudes, a vacuum exists in relation to the guidance needed by practitioners at the point where they actually encounter the problem. community cohesion strategy54 that it will provide more support to youth work that tackles prejudice among young people is welcome. However, the question remains: how will this support be provided? Guidance for youth workers on how to work with potential 54 Home Office (2005a) op cit Note 26, p. 50. perpetrators of racist violence is 55 Commission for Racial essential to equip them with both Equality (1999) Open Talk, Open Minds. London: CRE. sufficient confidence and instruments, but this alone will not be good enough,

42 Areas for Further Research 43 ther Research Research ther

r ommendations: ould be effective in preventing racist violence. racist in preventing ould be effective minority ethnic communities (inter-racial violence) or the hostility directed violence) (inter-racial minority ethnic communities asylum-seekers. and migrants arrived recently towards assumptions around their motivations and the causes of both their racist and their of both their racist and the causes their motivations assumptions around behaviours. violent violence, of racist perpetrators potential whether such a typology and examine c c

28. black and different between violence racist should examine research Additional Re 26. challenges popular that – research perpetrators is needed into research More 27. a typology around devising for the potential should explore research Further esearch is needed in order to develop in order is needed esearch and sustain work with potential and sustain work violence. racist to prevent perpetrators the These include understanding and of potential perpetrators motivation of perpetrating mapping the complexity of racist in the context behaviour violence. In the section ‘Six Observations on the Observations In the section ‘Six observed we Perpetrator”’, “Potential further where areas three are that there r

Fu IV. for Areas stematically explore and examine stematically explore ddressing the needs of victims of the needs ddressing oluntary and community acist violence must remain acist violence organisations, research esearchers, (Khan 2002: 54) (Khan 2002: organisations, and local and central organisations, begin to – should government sy its violence, the causes of racist and its current permutations, assemble and potential perpetrators, which of interventions the evidence it been successful in preventing have methodology taking hold … Any from of the importance that fails to capture that the communities addressing will miss a the perpetrators surround crucial opportunity to prevent from groups potential perpetrator generation.’ forming amongst the next ‘A r of prevention But the paramount. to drive ought to begin such violence the over and policymaking strategy – academic We decade. next r v

Preventing Racist Violence 44 T abulation of the Report Recommendations Appendix I Tabulation of the Report Recommendations

Tackling racist violence by working with the potential perpetrators is multi- dimensional. When it happens, it happens between and across many sectors of activity in the community. The recommendations contained in this report are summarised as actions that broadly speaking are the responsibility of any or all of the following agencies: Central Government, Local Government, Practitioners, the Research Community and Funders. Column 3 of this Table of Recommendations reminds readers which sector(s) could or should consider taking up any individual action advised.

Recommendations: Directed to:

1For all interventions to work effectively and be encouraged, a formal structure within Central Gov government is needed and a strategy to bring it into operation.This formal structure would draw from the wide range of practice that has as a common thread the inclusion of preventative work with potential perpetrators of racist violence, by challenging their attitudes. It would encourage the sharing of good practice in the area, especially cross-sector exchange and information sharing.

2Whilst de facto mainstreaming is welcome, it does not satisfy the need for a centrally Central Gov located formal strategy and structure to promote preventative work. A strategy Local Gov would be beneficial in a variety of ways, as it would:

•Send a clear signal, from central government, that preventing racist violence is a Central Gov priority and needs to be tackled in a holistic, cross-departmental way. Local Gov Practitioners •Devise clearly defined strategies that would provide the space to look in Central Gov particular at prevention of racist violence among young people, an area which, as Local Gov illustrated in this research, needs to be developed more explicitly, given better Practitioners support and delivered more effectively. Funders

•Help to link the wide-ranging sectors that carry out this type of work. As Central Gov described in this report, the various types of intervention that play a role in Local Gov preventing racist violence come from a variety of sources. Guidance is needed in Practitioners order to link their work effectively. Although some instances of effective partnerships have been identified, they struggle both to come into existence and to maintain long-term links.They should also be happening across the board.

•Allow for further mainstreaming of work with potential perpetrators to challenge Central Gov their attitudes.This mainstreaming would form part of a strategy developed Local Gov centrally, rather than growing in ad hoc unstructured ways. Practitioners

•Clarify how responsibility can flow from central government to the localities Central Gov where the action is needed. A central structure, supported by a well-formulated strategy, could be instrumental in delivering, at local level, projects to tackle racist violence by working with potential perpetrators.

45 al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov actitioners actitioners actitioners actitioners actitioners actitioners unders unders unders unders unders unders unders Centr Loc F F F Centr Loc F Loc Pr Centr Centr Loc Researchers F Centr Loc Pr Researchers F Centr Loc Loc Pr Pr Pr F Loc Pr ernment initiatives such as Positive Activities for Young People (PAYP) should be (PAYP) People Young Activities for such as Positive ernment initiatives eptable Behaviour Contracts – ABCs) on tacklingContracts harassment. racial and racism eptable Behaviour c firm political commitment to direct work and policy direct to work towards explicitly commitment firm political more ojects that intervene to prevent racist violence in a particular violence ojects racist take need to into that intervene area prevent to eneral crime reduction programmes that work with potential perpetrators should perpetrators with potential that work crime reductioneneral programmes crime reductioneneral and policy, legislation or preventative, whether punitive ov

r his is particularly and its effects on tackling the case with anti-social behaviour outh work should not be co-opted solely into diverting young people from crime diverting people from solely into young should not be co-opted outh work urther research is needed to assess the effectiveness of Anti-Social Behaviour Orders of Anti-Social Behaviour urther assess the effectiveness is needed to research acist attitudes, if this objective stated. is not officially even esources, should support funding agencies implementations of this agenda creative acism and racial harassment. acism and racial (ASBOs) and other instruments provided by the anti-social behaviour agenda (e.g. the anti-social behaviour by (ASBOs) and other instruments provided Ac dimension of their work. on the cohesion focus to encouraged crime),(including racist in both its objectives and aspirational but should be more attitudes based on prejudice, (challenging outcomes social inclusion, increasing etc.). intervention. assess the most effective its specific context to account be particularly challenge clear that one of their objectives is to if they are successful r (i.e. of one or the other approach the effectiveness reduce which could the process lack of intervention will be undermined by at a wider secondary work prevention primary level). they can impact of interventionshould look at how (i.e. on other levels how strategy). be part could work probation of a preventative r roots. at the grass the needs experienced to that respond by violence racist prevent that aims to support perpetrators with potential work sectors. practice sharing across attitudes and facilitate challenging racist take the change in attitudes to root. for allow to order Similarly, successful the shortintervention ongoing funding beyond projects access should be able to term. funding, repeat application for of the validity recognise the funding agencies need to and soft evidence outcomes. anecdotal r prevention is needed from central government.This central is needed from prevention existing run alongside would measures, and punitive enforcement them. for the need reduce to and has potential certainly are measures importantWhile punitive of racist with perpetrators in dealing violence, with potential work preventative by they should be accompanied perpetrators. be encouraged, appropriate, where impact can successfully they examine how on to violence. racist preventing violence. racist be assessed against its impactneeds to or preventing on reducing T 7G 8Y 9P 10 and victim can perpetrator groups projects potential that bring together Prevention 11 of intervention should run alongside one another, 3 levels The gaps in any prevent to 12 with one particular associated obviously of intervention that are area Agencies 13 of the provision agendas must set the guidelines for Although governmental 14 that explicitly programmes agencies should take the lead in developing Funding 15 funding in bring about attitude change should be long-term to work for Funding 16 attitudes, challenge racist to of work assessing the value When especially in an 6F 4G 5G 3A

Preventing Racist Violence 46 Tabulation of the Report Recommendations 47 al Gov al Gov al gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov al Gov actitioners actitioners actitioners actitioners acitioners actitioners actitioners actitioners unders unders Loc Pr Centr Loc Researchers Centr Loc Pr Researchers Researchers Researchers Loc Pr Centr Loc Pr Loc Pr Pr Researchers F Centr Loc Pr F Centr Loc Pr l Government (Central Gov), (Central l Government Gov), (Local Government Local (Researchers), Community Research rk with potential perpetrators of racist violence to challenge their attitudes and challenge their attitudes to violence of racist perpetrators rk with potential rking perpetrators. with potential the local level, At multi- have already if CDRPs ther than just a reactive response. ther than just a reactive ra onstructively engage potential victim and perpetrator groups will help devise proper will help devise groups victimonstructively engage potential and perpetrator esources for youth work that aims to challenge the racist attitudes of potential challenge the racist that aims to work youth for esources eduction and diversionary activities. solutions and will provide moral backing working moral that are those with people that have to solutions and will provide views. racist entrenched wo prejudices.This support central leadership from strong should be signalled through services. authorities and youth the local to down and should be filtered government r violence. of racist perpetrators activities, diversionary than purely rather ones.Youth practitioners and other workers people in achieving the young with successfully their ability work to proved who have working into only on crime objectives should not be co-opted aspirational more r wo agency incidents panels, racial strategy, include a prevention to they should be sure ra violence. racist in preventing in their strategy, violence the fight against racist resources, to issues related including and challenges.Thissuccesses importance of the the profile usefully raise of multi- would for useful recommendations agency provide tackle to would and violence work racist change. strategic involved. group and the target of both the matter nature the sensitive account into and their and the causes of both their racist their motivations assumptions around violent behaviours. violence, of racist perpetrators and examine whether such a typology effective be could violence. racist in preventing recently or the hostility violence) directed towards (inter-racial ethnic communities and asylum-seekers. migrants arrived attitudes would be useful for practitioners and policy be useful for would attitudes makers alike. and those workingminority with black and to groups ethnic perpetrators potential attitudes. racist challenge to in work involved are that the latter ensure that Partnerships c nt actitioners and Funders. Recommendations are directed to one or more of five possible agents for change or furtherfor possible agents support: directed of five are to one or more Recommendations Ce Pr 19 support to enough adequate with confident feel be provided to to needs work Youth 20 adequate services provide to and local authorities should budget positively Youth 21 Cross-sector partnerships aspirational that encourages a way should be devised in 22 by violence of racist Multi-agency is necessary prevention the successful work for 23 sectors involved of the different the full range Multi-agency across happen to needs work 24 included that CDRPs the way should be carried out into research and systematic Specific 25 and pragmatic, be strategic need to perpetrators to in relation Partnerships take and to 26 that challenges popular – research perpetrators is needed into research More 27 devising a typology potential around for the potential should explore research Further 28 black and minority different between violence should examine racist research Additional 17 racist that challenges of work effectiveness the measure to looks at how that Research 18 with that work agencies/organisations between be developed should Partnerships rvnigRcs Violence Racist Preventing

Appendix II How Racist Incidents are Recorded

What is the definition its agencies such as Housing and Social of a racist incident? Services. These panels review racist incidents or crimes where a multi- The Stephen Lawrence Inquiry’s agency approach is required. They definition of a racist incident is now work to protect the victim as well as widely accepted and used in reporting deal with the perpetrator. These panels mechanisms. The Inquiry defined a are therefore more reactive than racist incident as ‘any incident which is proactive: they look at ways to repair a perceived to be racist by the victim or situation where racist violence or any other person’. harassment has already occurred. They look at cases individually rather than at How do victims patterns or general trends. report a racist incident? Most victims report a racist incident to Centrally: the police. Each borough has a (a)Metropolitan Police Community Safety Unit (CSU) within The CSUs in each borough feed their the police force to collect data and local information to the Metropolitan tackle racist incidents locally. However, Police’s Diversity Directorate set up to some victims may report incidents to improve the prevention, investigation their housing services, local authorities and review of hate crimes. The aim of and a wide range of third-party the Diversity Directorate is to monitor agencies, such as community hate crime across London, to develop organisations or Citizens’ Advice strategy and policy in relation to Bureau. The various agencies investigation, victim care and use of acknowledge that there are high levels intelligence, to promote good practice of underreporting, which local and to provide appropriate training to authorities attempt to tackle at various officers. levels (i.e. encouraging third-party reporting, increasing confidence in the (b) ODPM Best Value Performance police etc) Indicators The Office of the Deputy Prime Minister What is done with (ODPM) requires local authorities to provide them with Best Value the figures collected Performance Indicators on all aspects of by boroughs? their policy. These include an indication of the number of recorded racist Locally: incidents per 100,000 population (BV174) Most boroughs have a racist incident or and the percentage of racist incidents racial harassment panel, a multi-agency that resulted in further action (BV175). panel usually set up under the Crime These figures are provided mainly as an and Disorder Reduction Partnership, indicator of the local authority’s which includes members of the Police, performance, rather than to inform Victim Support, the Local Council and policy in the field of racist crime.

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