Emphasis is placed on the need for structural change that promotes participatory justice and self-reliance and that responds to the needs of the consumers of legal services. Action is needed to change the negative images held of lawyers and courts and to improve access to justice for all. Structural changes in dealing with minor criminal offending also are needed to relieve pressure on police, courts, and legal services. In addition, a Maori legal service should be established to provide advice, research, information, and education and to further promote the transition to a truly bicultural system. Also needed is wide-ranging legal education and a comprehensive network of community-based legal services. Free legal services also should be provided for civil cases. Under these proposals, legal services are viewed as an essential social service. Taken together, recommendations aim to combine effective short-, medium-, and long-term legal services; a rational nonbureaucratic structure, and cost efficiency. 3 tables and 73 references.