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A Civil and Ecclesiastical Union? the Development of Prison Chaplaincy in Aotearoa-New Zealand

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A Civil and Ecclesiastical Union? the Development of Prison Chaplaincy in Aotearoa-New Zealand A Civil and Ecclesiastical Union? The Development of Prison Chaplaincy in Aotearoa-New Zealand Douglas B Mansill A thesis submitted to Auckland University of Technology In fulfilment of the requirements for the degree of Master of Philosophy (MPhil) 2008 Institute for Public Policy Primary Supervisor: Dr. Love Chile Table of Contents Attestation of Authorship Page 4 Acknowledgements Page 5 List of Abbreviations Page 6 Abstract Page 7 CHAPTER ONE: INTRODUCING THE STUDY Page 8-16 The Role of the Prison Chaplain Prison Chaplaincy: 1840–2006 Justification for this Study Scope and limitations of this study Emergent themes and structure of this study CHAPTER TWO: METHODOLOGY: THE CHALLENGES OF DATA COLLECTION AND INTERPRETATION Page 17-24 Literature Reviewed Data Collection Underpinning Methodological Approaches CHAPTER THREE: THE ORIGINS OF PRISON CHAPLAINCY IN NEW ZEALAND 1840 – 1880 Page 25-50 The Development of the Prison System in New Zealand 1840-1952 Prison Chaplaincy in New Zealand under the Provincial Government Prison Chaplaincy and Maori Spiritual Issues 1840-1880 CHAPTER FOUR: LEARNING TO LIVE WITH A CENTRALISED PRISON SYSTEM 1880 – 1949 . Page 51-70 Prison Chaplaincy under the Hume Administration: 1880–1909 Prison Chaplaincy in the Post Hume Era: 1909–1949 CHAPTER FIVE: CHURCH STATE AND PRISONS: A NEW PARTNERSHIP 1949 – 1954 Page 71-88 Social, Economic and Religious Factors 1951-1954 The Catholic Chaplaincy 1951-1954 A reluctant Bride and an avid Suitor? CHAPTER SIX: CHURCH, AND STATE: DEVELOPING THE NEW PARTNERSHIP 1954–1980 Page 89-123 Developing Ministry to Maori Prisoners’ The Catholic - Protestant Relationship Training and Theological Development The Prison Chaplains’ Association Two Crises A Golden Age or Seed Bed for future difficulties? CHAPTER SEVEN: RELATIONSHIPS UNDER STRAIN: 1980–1989 Page 124-160 The Penal Policy Review: 1981 A Fraught Relationship: Prison Chaplains, the NCC and CCANZ 1980 – 89 Pentecostalism and Prison Fellowship The Resurgence of Maori Consciousness Public Service Administration and Government Economic Policy 2 CHAPTER EIGHT: ROPER AND PERRY: RE-THINKING THE RELATIONSHIP Page 161-177 Background to the Roper Enquiry The Roper Report: Terms of Reference and Findings Prisons in Change The Perry Report CHAPTER NINE: RELATIONSHIP DIFFICULTIES AND A NEW PARTNER 1990–1998 Page 178-211 Legislative and Restructuring Influences The Interim Advisory Board The New Job Description: Re-configuring the Role of Prison Chaplains The Catholic Response to the Perry Report Accountabilities and Matters of Principle The Department of Corrections CHAPTER TEN: CONTRACTING THE UNION: 1998–2006 Page 212-241 Department of Corrections Developments 1995 – 2006 Negotiating the Contract Contracting Partners: the PCSANZ and Department of Corrections, 2000 – 2006 The Catholic Church and the Contract Prison Chaplaincy at ACRP Postscript CHAPTER ELEVEN: PRISON CHAPLAINCY AND CAPITAL PUNISHMENT Page 242-267 Capital Punishment in New Zealand 1840-1961 The Moral Dilemmas The Impact of Executions Ministry to the Condemned Prisoner Postscript: A Time for Healing? CHAPTER TWELVE: A CIVIL AND ECCLESIASTICAL UNION? Page 268-277 The Nature of the Church-State Interface The Impact of Biculturalism The influence of theological and Ecclesiastical Trends The Impact of Inter-Church Politics The Impact of Socio Economic Trends and Developments Changes in Government Policy A Civil and Ecclesiastical Union? Areas for further Research REFERENCES Page 278-287 APPENDICES: Ethics Approval Page 288-289 3 Attestation of Authorship I hereby declare that this submission is my own work and that, to the best of my knowledge and belief, it contains no material previously published or written by another person (except where explicitly defined in the acknowledgements), nor material which to a substantial extent has been submitted for the award of any other degree or diploma of a university or other institution of higher learning. Signed: Name: Douglas Mansill Date: 03 December 2008 4 Acknowledgements I gratefully acknowledge the support and encouragement of the following people who have assisted with the writing of this thesis. • Staff of the Departments of Corrections and Justice • Board members, chaplains and other employees of the PCSANZ. • All of those people who participated in oral interviews. • My supervisors Dr Love Chile and Dr Allan Davidson. • Staff of church and other archival repositories. • All of those people who have provided data from their own personal collections. • My wife Elizabeth, her father Hugh Livingston, my parents Vern and Jean Mansill and my daughters Jean and Morag. • David and Elie Connor who provided paid assistance for formatting and word processing of this thesis. • Any other people who have assisted in any way with the completion of this project, Without their support, advice and encouragement to commence this research, completion of this study would not have been possible. I hope that the information provided by this study will assist Church and State administrators to enhance the spiritual well being of the men and women who are incarcerated in the penal institutions of New Zealand. Douglas Mansill. 5 List of Abbreviations ACRP Auckland Central Remand Prison AJHR Appendix to the Journal of the House of Representatives ATL Alexander Turnbull Library CCANZ Conference of Churches in Aotearoa New Zealand CCAW Catholic Church Archives, Wellington COG Corrections Operations Group CPCG Catholic Prison Chaplains’ Group DNZB Dictionary New Zealand Biography DoC Department of Corrections DSC Daily Southern Cross ECA Employment Contracts Act FTE Full Time Equivalent Chaplain ICAB Interim Chaplaincy Advisory Board ICCoP Inter-church Council on Public Affairs LDO Legal Deposit Office NCC National Council of Churches NZH New Zealand Hearald NZPC New Zealand Prison Chaplains NZPCA New Zealand Prison Chaplains’ Association PCAB Prison Chaplaincy Advisory Board PCACF Prison Chaplains’ Association Correspondence File PCSANZ Prison Chaplaincy Service of Aotearoa New Zealand PFA Public Finance Act PPR Penal Policy Review PPS Public Prisons Service Roper Report Prison Review - Te Ara Hou: The New Way Perry Report Prison Chaplaincy Review SPC RC Catholic Senior Prison Chaplain SPC Senior Prison Chaplain TGC The Gaols Committee 6 ABSTRACT New Zealand prisons were a colonial construct established by early colonial administrations to deal with criminal behaviour occurring at the time of European settlement. Like the prison system, prison chaplaincy also had its origins in colonial experiences from the United Kingdom where chaplains were employed to meet the spiritual needs of those in institutions such as schools, hospitals, colleges, the military and legations. This thesis addressed the question of how the partnership between Church and State administrators in New Zealand for the provision of chaplaincy services developed between 1840 and 2006. Four phases were identified in the evolution of prison chaplaincy: phase one 1840-to-1950, characterised by ad hoc arrangements between clergy and local prison management; phase two 1951-to-1989 when Secretary for Justice Samuel Barnett established a formal relationship with the National Council of Churches and the Roman Catholic Church to provide chaplains for penal institutions; phase three identified as ‘prisons in change’ 1990-1999, when the Interim Chaplaincy Advisory Board and Prison Chaplaincy Advisory Board worked in tandem with the Departments of Justice and Corrections to administer the Prison Chaplaincy Service, arising from the recommendations of the Roper and Perry Reports; and phase four 2000-to-2006, a period when the Prison Chaplaincy Service of Aotearoa New Zealand was contracted to the Department of Corrections to employ prison chaplains. The research adopted a multi-faceted approach, consisting of phenomenology, ethno- methodology and hermeneutics to understand attitudes and experiences of key players and institutions in the evolution of Prison Chaplaincy. Data was collected through interviews of key informants, critical evaluation of published and unpublished material in public and private collections. The study identified six key factors that influenced the development of Prison Chaplaincy in New Zealand. These were: the nature of the Church-State interface, the impact of biculturalism, the influence of theological and ecclesiastical trends, the impact of inter-church politics, the influence of socio economic trends and developments, and changes in Government policy. It also found that while there were tensions, the Church-State partnership had positive benefits for the spiritual outcomes for prisoners. 7 CHAPTER ONE INTRODUCING THE STUDY This study asks: “how did Church and State administrators manage the relationship for the provision of chaplaincy services in New Zealand prisons between 1840 and 2006?” Consideration of this issue is important because evidence shows that there were tensions and misunderstandings in this Church-State partnership, hence the title of this thesis. By examining available literature, documentary data and the views of key informants, this enquiry seeks to address this question as well as identify developmental trends in the evolution of chaplaincy services in New Zealand penal institutions. The Role of the Prison Chaplain Understanding the role and function of a chaplain is a prerequisite for considering the Church-State partnership that evolved in the provision of chaplaincy services to New Zealand penal institutions. Prisons in New Zealand
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