Previous Article
News
Part 2 | Beyond Rehabilitation: The Power of Nervous System Awareness in Probation
In this three-part series, I advocate for greater nervous system awareness by Probation Officers when working with people on Probation. In this article, I provide an overview of attachment, interpersonal neurobiology, polyvagal theory and state-dependent functioning with reference to offending behaviour.
article written by: Jane Mulcahy, PhD, Research Fellow on the Greentown Project, Research Evidence into Policy Programmes and Practice (REPPP) at the University of Limerick.
In this three-part series, I advocate for greater nervous system awareness by Probation Officers when working with people on Probation. In this article, I provide an overview of attachment, interpersonal neurobiology, polyvagal theory and state-dependent functioning with reference to offending behaviour.
I have written elsewhere that the Risk-Needs-Responsivity (RNR) model, discussed in part 1, completely ignores the relevance of “the dose of interpersonal and developmental trauma to which the offender was exposed”, nor does it appreciate “the fact that learning is impaired if a person is in a state of emotional dysregulation caused by toxic stress and fear.”[1] The RNR model, and indeed desistance theory, fail to grapple with the influence of fear, autonomic dysregulation and involuntary survival responses in undermining a person’s desire for a better, non-criminal future.
Interviews with 12 long sentence male prisoners subject to post-release supervision by the Irish Probation Service as part of my PhD revealed how seemingly disconnected matters such as safety, health, relational capacity, self-perception, behaviour, coping strategies, social stressors, criminality, meaning-making and the ability to feel hopeful about the future were all intimately connected.[2]
Interpersonal neurobiology is the term Siegel coined to explain that our brains and minds are shaped by our relationships and environmental experiences.[3] The human brain – a profoundly social organ – develops from the bottom up. Sensory information first enters the lower, survival-oriented parts of the brain. [4] The emotional, attachment-focused limbic system and the rational pre-frontal cortex, which develop after birth, are highly “experience dependent”.[5]

There is insufficient awareness among criminal justice agency staff, including Probation Officers, that an individual’s safety, relational health, learning ability, impulse control and capacity to be a productive member of society in adulthood begins with the quality of their preverbal attachment experiences. Ludy-Dobson and Perry describe relational health as “the presence, quality, and number of relational supports” that a person has. Relational health during childhood is the ultimate protective factor.[6]
Criminological studies have traditionally neglected the importance of attachment and safety in the first 1,000 days of a child’s life. Polyvagal theory is a science of safety, connection and trust.[7] Porges argues that human bodies are on a quest for safety. Humans are biologically programmed to connect and collaborate with others to survive. When we are in a state of physiological safety, we can access higher cortical functions, whereas when we feel endangered involuntary defensive responses dominate. Neuroception is a process whereby our nervous system unconsciously detects safety or threat in our environment.[8]
A “felt sense”[9] of physiological safety is a prerequisite for flourishing, without which we cannot enjoy physical and mental health, develop reciprocal relationships or adopt pro-social behaviours. Our relational ability, openness to learning new things and our behaviour change depending on the state of our nervous system. Perry refers to this as “state-dependent functioning”.[10] As we become swamped with fear and preoccupied with survival, our IQ drops significantly.
A person’s enjoyment of an embodied feeling of safety in the presence of others starts at birth, becoming contingent on the presence or absence of nurturant care and safety they experience within their family. The first unit of the group, or the wider societal pack, is the family. As noted by Andrews and Bonta, “the family is the child’s first socializing agent.”[11] Our first primal human bond is usually with our birth mother.

Secure attachment establishes the building blocks for future relational health.[12] During the first year of life, babies need to be frequently held and cuddled by their mother, or another warm, loving, consistent caregiver. This ensures survival first and foremost, as well as physical health, optimal weight gain and the development of empathy, trust and pleasure in human connection.[13]
The infant’s mother is often their main, or only, source of potential safety and comfort. A major quandary arises for an infant if their only recourse to seeking safety and comfort is from a frightened and/or frightening source.[14] An unsafe, unreliable, relentlessly or traumatically stressed caregiver cannot give an infant what s/he needs to thrive. This is of great relevance to the backgrounds of offenders, since many come from female-headed households with non-existent, or grossly inadequate paternal buffering.[15]
Unless infants get responsive, sensory-enriched care, they are unlikely to experience normal physical or emotional development. In the first year of life pure neglect (meeting physical needs such as feeding and attending to basic hygiene but failing to attend to the baby’s visceral needs for touch and nurturance) leads to serious neurobiological harm, including empathy deficits that are hard to remedy down the road.[16]
The importance of attachment has been bolstered by recent neuroscience developments.[17] In 2019, research found that perinatal developmental experiences (0-2 months) were more strongly associated with impaired child functioning than adverse experiences occurring during later developmental periods. Moreover, impoverished relational experience during the perinatal period – i.e. poor attachment – was a stronger predictor of negative outcomes than adversity.[18]
Attachment theory sheds light on the barriers that people may have coping with stressors or making sense of interpersonal trauma in their lives. Exposure to overwhelming stress in infancy means that the neurons that fire and wire[19] together are those involving the brain’s survival apparatus. The cortex, “whose job it is to censor inappropriate actions – to exercise the ‘free won’t’”[20] will not develop as it would have done if individuals had experienced secure attachment with a safe, loving, “good enough” primary caregiver.[21]
Fear activates the autonomic nervous system, leading to a fight/flight/freeze, fawn or shutdown response (i.e. dissociation where the brain disconnects from the body to survive a threat). Nervous system awareness may help Probation staff to better understand how an addicted trauma survivor in early recovery can easily relapse due to high levels of interpersonal mistrust, a tiny “window of tolerance”,[22] poor executive functioning, along with impaired attachment/rewards and incentives/motivation brain circuits, all of which were impacted by growing up in an adverse community environment.[23]
In the final article, I explain why Probation practice should return to its relational roots, with an emphasis on co-regulation, cultivating strengths and healing-centred engagement.
Watch also this brief with video highlights on the importance of understanding how stress and distress influence the way we think, feel and act. Produced by The ChildTrauma Academy & Bruce D. Perry, M.D., Ph.D. SevenSlideSeries: State-dependent Functioning.
>>read Part 1 | The importance of nervous system awareness when working with people on Probation
>>read Part 3 | Why a heart-centred approach to Probation Practice is smart
[1] J. Mulcahy, “The Evolution of Punishment and Rehabilitation” (2019) 29(2) Irish Criminal Law Journal 39-49, 43.
[2] J. Mulcahy, Connected Corrections and Corrected Connections: post-release supervision of long sentence male prisoners (UCC, PhD, 2019), available at https://www.researchgate.net/publication/344283849_Connected_Corrections_and_Corrected_Connections_post-release_supervision_of_long-sentence_male_prisoners.
[3] D. Siegel, The Developing Mind: How Relationships and the Brain Interact to Shape Who We
Are (The Guilford Press, 2nd edn, 2015).
[4] B. Perry, “Applying Principles of Neurodevelopment to Clinical Work with Maltreated and Traumatized Children”, Working with Traumatized Youth in Child Welfare, N. Boyd Webb ed. (New York: Gilford Press, 2006) 27-52, 30.
[5] B. Perry, Bonding and Attachment in Maltreated Children Consequences of Emotional Neglect in Childhood (Child Trauma Academy, 2013).
[6] C. Ludy-Dobson & B. Perry (2010), “The Role of Healthy Relational Interactions in Buffering the Impact of Childhood Trauma” in Working with Children to Heal Interpersonal Trauma: The Power of Play, E. Gil ed. (New York: The Guilford Press) 26-43, 39.
[7] J. Mulcahy, Law and Justice interview with Dr Stephen Porges: The Science of Safety, available at https://soundcloud.com/jane-mulcahy/law-and-justice-interview-with-dr-stephen-porges-the-science-of-safety
[8] S. Porges cited in J Mulcahy, ‘The human condition: we are all on a quest for safety’ (2020) 1, online at: https://www.researchgate.net/publication/340309690_The_human_condition_we_are_all_on_a_quest_for_safety
[9] N. Friedman, ‘Eugene Gendlin’s Approach to Psychotherapy: An Awareness of “Experiencing”Annals’ (2004) 23-25 online at: http://previous.focusing.org/pdf/friedman_gendlin_annals.pdf
[10] Child Trauma Academy Channel (2014), SevenSlideSeries: State-dependent Functioning at https://www.youtube.com/watch?v=1uCn7VX6BPQ
[11] D. Andrews & J. Bonta, the Psychology of Criminal Conduct, 2nd ed. (Cincinnati: Andersen Publishing, 1998) 197.
[12] E. Hambrick et al., “Beyond the ACE score: Examining relationships between timing of developmental adversity, relational health and developmental outcomes in children” (2019) 33(3) Archives of Psychiatric Nursing 238-247.
[13] B. Perry & M. Szalavitz, The Boy Who Was Raised as a Dog, 3rd ed. (New York: Basic Books, 2017).
[14] M. Main & E. Hesse, “Parents’ unresolved traumatic experiences are related to infant “disorganized attachment status: Is frightened and/or frightening parental behavior the linking mechanism?” Attachment in the preschool years, M. Greenberg et al. eds., Chicago: Chicago University Press, 1990) 161-182.
[15] Department of Children and Youth Affairs, Lifting the Lid on Greentown – Why we should be concerned about the influence criminal networks have on children’s offending behaviour in Ireland (Dublin: Government Publications, 2016) 40 & 46.
[16] M. Szalavitz & B. Perry, Born for Love: Why Empathy Is Essential-and Endangered (New York: Harper Collins, 2010), Chapter 6.
[17] B. Perry & D. Pollard, “Altered brain development following global neglect in early childhood. Society For Neuroscience: Proceedings from Annual Meeting, New Orleans, 1997.
[18] Hambrick, note 12 above, 239.
[19] See J. Calbet, “Hebb’s rule with an analogy. Psychology and neuroscience” 14 March 2018, available at https://neuroquotient.com/en/pshychology-and-neuroscience-hebb-principle-rule/
[20] G. Maté, In the Realm of Hungry Ghosts: Close Encounters with Addiction (London: Vermillion, 2018), at 292-3.
[21] D. Winnicott, Playing and Reality (London: Tavistock/Routledge, 1971) 7.
[22] Siegel, above n. 3, 281-286.
[23] W. Ellis & W. Dietz, “A New Framework for Addressing Adverse Childhood and Community Experiences: The Building Community Resilience Model” (2017) 17 (7S) Acad Pediatr, S86-S93.
Related News
Keep up to date with the latest developments, stories, and updates on probation from across Europe and beyond. Find relevant news and insights shaping the field today.
Recap
Electronic monitoring
Recap: CEP Expert Group meeting at ATGV Antalya
12/03/2026
The CEP Expert Group on Electronic Monitoring, along with representatives of the CEP Office led by Mr. Daniel Danglades, CEP Vice-President, visited the Education and Social Facility of the Ministry of Justice in Türkiye – ATGV Antalya. The host country was represented by a high-level delegation, including Deputy Director General Mr. Fatih Güngör, Head of the Turkish Probation Department Dr. Hüseyin Şık, Member of the CEP EM Expert Group Ms. Elçin Kilecioğlu, as well as the Director and representatives of the ATGV facility, and officials from the courts, prosecution, and probation services in Antalya.
Recap
Education and Training
Recap: CEP Expert Network on Education and Training in Probation meets with the European Commission to discuss the EU Judicial Training Strategy
11/03/2026
On 11 March 2026, the CEP Expert Network on Education and Training in Probation met online with more than 20 participants from Belgium, Denmark, Sweeden, France, Romania, Croatia, Catalonia, Poland, United Kingdom and Türkiye to exchange views with the European Commission on the newly adopted EU Judicial Training Strategy 2025–2030.
The meeting provided a valuable opportunity for representatives of probation training institutions across Europe to engage directly with European Commission officials and discuss how the strategy may impact the training of probation and prison staff in the coming years.
Probation Journal
Women, youth
Understanding the needs of girls and young women in youth justice
10/03/2026
New research highlights the underlying needs that influence girls’ and young women’s contact with youth justice systems and calls for more gender responsive approaches in policy and practice. Drawing on a review of recent studies, the authors identify several factors shaping girls’ pathways into the justice system, including persistent abuse, trauma, gendered expectations, and systemic failures. Girls involved in youth justice are often affected by multiple forms of victimisation, such as sexual abuse, neglect, and domestic violence, with experiences frequently beginning in early childhood.
New
CEP Board
Interview with new CEP board member Ian Barrow
09/03/2026
During the General Assembly in Austria, a new CEP Board got elected for the upcoming three years. In the coming weeks we will publish interviews with all newly-elected board members where they will share information on their professional background, how they would like to contribute, what challenges lie ahead and many more.
Enjoy reading!
New
Gender Equality, Gender-based violence
Women’s Day
09/03/2026
Yesterday was International Women’s Day.
At CEP, this day closely reflects our core values and ongoing commitment to promoting gender equality and addressing gender-based violence within the context of probation and community justice.
Directors General Meetings
Online meeting for Directors General and Senior Managers in Probation
05/03/2026
On Wednesday 4 March CEP organized its annual online meeting for Directors General and Senior Managers in Probation. The session offered a comprehensive look into how CEP Expert Groups function and the value they bring across the organization. Participants gained a clearer understanding of how these groups operate, how they support CEP’s strategic priorities, and how colleagues can engage with their work—either as active members or as stakeholders who rely on their outputs.
Subscribe to our bi-monthly email newsletter!
"*" indicates required fields
- Keep up to date with important probation developments and insights.