C a r d iff UNIVERSITY PRIFYSGOL C a eRDY[§> ‘Attitudes, Values, Beliefs and Practices in Probation: Continuity or Change?’ Thesis Submitted in Fulfilment of the Requirements for the Degree of Doctor of Philosophy John Graham Deering December 2008 UMI Number: U584329 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U584329 Published by ProQuest LLC 2013. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 John Peering - PhD December 2008 CANDIDATE’S ID NUMBER 0331555 CANDIDATE’S SURNAME Deering CANDIDATE’S FULL FORENAMES John Graham DECLARATION This work has not previously been accepted in substance for any degree and is not concurrently candidature for any degree. 9>c> ■ I • OCj Signed (candidate) Date STATEMEI This }is 45 being submitted in partial fulfilment of the requirements for the degree of , . 0 . ^ . (insert MCh, MD, tyPhil, PhD etc, as appropriate) Signed (candidate) Date i STATEMENT 2 This thesis is the result of my own independent work/investigation, except where otherwise stated. Other sources are acknowledged by footnotes giving explicit references. Signed (candidate) Date . .?>.C? ... f. .* ° STATEMENTS I hereby give consent for my thesis, if accepted, to be available for photocopying and for inter- library loan, and for the title and summary to be made available to outside organisations. Signed (candidate) Date ?..:A * o C L 7 2 John Deering - PhD December 2008 Contents: Page Dedications & Acknowledgements: 7 List of Abbreviations: 8 List of Tables: 9 Abstract: 10 Chapter One: Introduction 11 Chapter Two: Literature Review (1) - Late Modernity and the New Penality 18 1. Introduction.............................................................................................18 2. The Rise of Punitiveness and the New Penality .....................................18 a) The Modern Era ............................................................................... 19 b) Towards Late Modernity ...................................................................23 c) The Decline of the State ........................ 25 3. The Emergence of Risk ......................................................................... 26 a) Actuarial Risk....................................................................................26 b) Risk and Control ............................................................................... 28 4. Late Modernity and Custody.................................................................. 29 5. The Continuing Role of Agency ..............................................................30 6. The Rise of Managerialism, the New Public Management and Modernisation .................................................................................. 32 a) NPMand the New Right ....................................... 34 b) Criticisms of NPM .............................................................................36 c) NPM and Professional Groups..........................................................37 d) NPM and New Labour .......................................................................38 7. The Culture of Organisations and Change ............................................. 41 a) The Scope of Organisational Change ............................................... 42 b) Changes in Organisational Culture ................................................... 43 c) Resistance to Change .......................................................................44 Chapter Three: Literature Review (2) - The Development of Penal and Correctional Policy 46 1. Introduction.............................................................................................46 2. The New Penality ................................................................................ 46 a) Legislation and Related Government Policy ...................................... 46 b) Impact upon Probation ...................................................................... 52 3. The Assessment and Management of Risk .............................................57 a) Legislation and Related Government Policy ...................................... 57 b) Impact upon Probation ...................................................................... 58 4. Modernisation and the New Public Management .................................... 60 a) Economic Efficiency and Central Control ........................................... 60 b) New Labour and the National Probation Service ............................... 61 c) The National Offender Management Service .....................................62 3 John Peering - PhD December 2008 5. Culture in Organisations and the Values and Attitudes of Practitioners ..................................................................65 a) Early Debates ....................................................................................... 65 b) The Values Debate from the Mid-1990s ..................................... 66 c) Values and Practice................................................................... 68 d) Values, the NPS and NOMS ...................................................... 70 e) Culture and Resistance?.............................................................72 Chapter Four: Methods 75 1. Introduction and Aims of the Study .........................................................75 2. Methods .................................................................................................. 76 a) The Role of Theory ........................................................................... 76 b) Rationale for the Methods Adopted ...................................................80 c) Access and Samples ........................................................................ 82 d) Piloting ...............................................................................................84 e) Design and Instruments Employed ....................................................86 f) Development of Interview Schedules ................................................ 88 3. Analysis .................................................................................................. 92 4. Ethical Issues ......................................................................................... 94 5. Limitations of the Study ..........................................................................96 Chapter Five: The Attitudes, Values and Beliefs of Practitioners, Trainees and Managers 98 1. Introduction............................................................................................ 98 2. Attitudes and Values of Practitioners, Trainees and Managers ........................................................................ 101 a) Underpinning Attitudes of Practitioners and Trainees ....................................................................................... 101 Data from Focus Groups, Case Files and PSRs Summary b) Attitudes to Risk ..................................................................................107 Data from Case Files and PSRs Summary c) Attitudes to Enforcement..................................................................... 114 Data from Case Files and Focus Groups Summary d) Attitudes to Managerialism .................................................................. 119 Data from Focus Groups Summary e) The Views of Trainees ........................................................................ 123 Values and Attitudes Attitudes to Risk Attitudes to Enforcement Attitudes to Managerialism f) The Range of Respondents’ Views ........................................................128 Further Significance Testing Summary 3. Conclusion............................................................................................. 131 John Deering - PhD December 2008 Chapter Six: Reflections on Practice (1) The Assessment of Offenders 134 1. Introduction............................................................................................134 2. The Assessment of Individuals Pre-Sentence ....................................... 137 a) The Aims and Purposes of Pre-Sentence Assessment ....................... 138 Data from PSRs and Likert Scales Summary b) The Practice of Pre-Court Assessment and Making Proposals to Courts .........................................................146 Data from PSRs Summary c) The Purpose and Usefulness of OASys .............................................. 159 Summary d) The Range of Respondents’ View s .................................................... 162 Summary 3. Conclusion...............................................................................................163 Chapter Seven: Reflections on Practice (2) The Enforcement of Community Orders and Post-Custody Licences 166 1. Introduction........................................................................................... 166 2. The Attitudes and Practices of Practitioners .......................................... 169 a) The Purpose of Enforcement ..............................................................170 Data from PSRs Summary