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Section II - Analysis of Program Activities by Strategic Outcome

Strategic Outcome

The Parole Board of Canada has a single strategic outcome:

Conditional release and pardon decisions and decision processes that safeguard Canadian communities.

Program Activity by Strategic Outcome

PBC program activities and priorities are designed to support continuous progress in achieving the strategic outcome. To support this outcome, PBC has four program activities:

• Conditional release decisions;
• Conditional release openness and accountability;
• Pardon decisions/clemency recommendations; and,
• Internal services.

The following section describes the PBC's program activities and identifies the expected results, performance indicators and targets for each of them. This section also explains how the PBC plans on meeting the expected results and presents the financial and non-financial resources that will be dedicated to each activity.

Program Activity 1.1: Conditional Release Decisions

2010-11 Financial Resources ($ thousands)			2010-11 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
33,887	36,305	33,780	346	297	49

Program Activity Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Quality conditional release decisions that contribute to public safety	Multi-year information on the number and % of releases on parole that result in a new offence or a new violent offence	Zero (0) re-offending by parolees prior to warrant expiry	Mostly Met	Over the last ten years, 94% of parole supervision periods were completed without the offender being convicted of a new offence. Over a ten year period, 99% of releases on parole did not result in a conviction for a new violent offence prior to warrant expiry.
	Multi-year information on the number and % of offenders who complete their sentence on full parole and do not re-offend and return to a federal penitentiary	Zero (0) re-offending after warrant expiry by offenders who reach the end of their sentence on full parole	Mostly Met	Over the long-term (10 to 15 years after sentence completion), 90% of offenders who completed their sentences on full parole have not re-offended and returned to a federal penitentiary.

Program Activity Description and Benefits to Canadians: Conditional release is based on the principle that gradual release to the community, in conjunction with effective programs and treatment, quality assessments of the risk of re-offending and effective community supervision enhances community safety. This program activity supports public safety by providing quality decisions on the timing and conditions of release of offenders into the community. Through this program activity, PBC staff provide timely, and accurate information for Board member decision-making, and develop effective training and policies that are essential tools for quality risk assessment and decision-making. Effectiveness is assessed through monitoring of the outcomes of release on parole. This program activity is directly supported by the following priorities identified for 2010-11:

• Effectively fulfilling legislative responsibilities related to quality conditional release decision-making;
• Strengthening stakeholder and community partnerships;
• Pursuing strategic excellence in PBC governance; and,
• Investing in our people.

Performance Analysis

Information on performance demonstrates that the Board achieved the priorities and commitments identified in its Plans and Priorities for 2010-11. In 2010-11, the Board completed almost 17,000 conditional release reviews for federal and provincial offenders.

Multi-year data continues to confirm that parole contributes to public safety. Ninety-four percent (94%) of all parole releases do not result in a new offence, and ninety-nine percent (99%) do not result in a new violent offence.

Information on re-offending after completion of sentence illustrates that 9 of 10 offenders who reach the end of their sentences on full parole do not return to a federal penitentiary.

For more information, please access the Board's Performance Monitoring Reports at: http://pbc-clcc.gc.ca/rprts/rprt-eng.shtml.

Program Activity 1.2: Conditional Release Openness and Accountability

2010-11 Financial Resources ($ thousands)			2010-11 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
6,071	6,537	5,693	65	57	8

Program Activity Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Conditional release processes that ensure that the PBC operates in an open and accountable manner, consistent with the CCRA	Average time required to respond to: requests for information and assistance from victims, requests to observe hearings; and requests for access to PBC's decision registry	Response to requests for information and assistance within 15 working days, on average	Met All	The PBC responded to all requests within an average of less than 15 days.
	Levels of satisfaction of victims, observers, and those who seek access to the decision registry with quality and timeliness of information and assistance provided by PBC	90% rate of client satisfaction	Met All	During the spring of 2009, the PBC and CSC developed and conducted a victim's questionnaire in order to examine the extent to which we are currently meeting the information needs of victims. Participants were asked to provide an overall rating for their level of satisfaction with PBC staff. In the questionnaire conducted in 2009-10, 11% of respondents said that they were not satisfied with the services they received. Results of surveys conducted of those who observe hearings, request access to the decision registry as well as victims who contact the PBC indicate that PBC response times are within acceptable ranges.

Program Activity Description and Benefits to Canadians: This program activity ensures that the PBC operates in an open and accountable manner, consistent with the provisions of the CCRA. This program activity consists of the provision of information for victims of crime; assistance for observers at hearings and those who seek access to the Board's registry of decisions; encouragement of citizen engagement; and performance monitoring and reporting on the release process. Results for this program activity are assessed by monitoring the timeliness of information shared and by selected surveys of those who receive information and assistance from the PBC. Work in this area recognizes that the PBC operates in a difficult environment in which timely sharing of accurate information is fundamental for effective partnerships and public trust.

This program activity is supported directly by PBC's priorities for:

• Effectively fulfilling legislative responsibilities related to open and accountable conditional release processes;
• Strengthening stakeholder and community partnerships;
• Improving information services for victims;
• Pursuing strategic excellence in PBC governance; and,
• Investing in our people.

Performance Analysis

The openness and accountability provisions of the CCRA continue to present important challenges for the Board with respect to: sharing information with victims of crime; provision of information and assistance for those who wish to observe PBC hearings or gain access to the Board's registry of decisions; and delivery of a program of public information. Workloads in these areas have grown exponentially since the introduction of the CCRA in 1992.

In 2010-11, for example, the Board had more than 22,500 contacts with victims, reflecting a 2% increase from 2009-10. As with conditional release decision-making, the need for quality program delivery in this area is critical, given its implications for public confidence in corrections and conditional release. Intense public scrutiny and extensive media interest in this area make program effectiveness crucial. Most of the over 22,500 contacts were with victims of violence, such as sexual assault or with the families of murder victims.

The Board had over 2,300 observers at its hearings in 2010-11, reflecting a 12% increase over the last five years and in 2010-11 victims made 237 presentations at 137 hearings. Most of these were family members of victims of murder (45%) or manslaughter (15%), or the victims of sexual assault (11%). Most of the presentations were made in person (89%), while the rest were on either by audio or video tape, or video conference.

The CCRA permits access to specific decisions and to decisions for research purposes through the Board's registry of decisions. For more information, please see http://pbc-clcc.gc.ca/media/dec-eng.shtml.

In 2010-11, the Board released over 5,700 decisions from its registry of decisions. Victims were the most frequent requestors of decisions (approximately 49%), followed by the media (approximately 33%).

For more information, please access the Board's Performance Monitoring Reports at: http://pbc-clcc.gc.ca/rprts/rprt-eng.shtml.

Program Activity 1.3: Pardon Decisions/Clemency Recommendations

2010-11 Financial Resources ($ thousands)			2010-11 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
1,449	1,853	2,095	24	38	(14)

Program Activity Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Quality pardon decisions that support rehabilitation and community reintegration	The numbers and rates of revocation/ cessation of pardons	96% of all pardons awarded remain in force	Met All	Since the inception of the pardon program, 96% of all pardons awarded remain in force.
	The average time required to process pardon applications for cases involving summary convictions and convictions for indictable offences	Adherence to established service standards for processing pardon applications	Somewhat Met	The pardon program adhered to the established service standards for the first quarter of 2010-11. The established service standards were based on the following average processing times for pardon applications: Indictable offences (3.5 months); Summary convictions (1.2 months); and, Proposal to deny/denials (14.7 months). As a result of the amendments brought to the CRA in June 2010, the service standards in place prior to the amendments were no longer valid. New service standards, as required under the UFA, will be implemented once a fee reflecting the current costs of processing a pardon application is approved and implemented. While the Board has trained staff and is developing training for Board members, it remains under resourced to fully deliver the Pardons and Clemency programs. Consequently, the Board is facing a backlog of approximately 10,000 pardon applications. Until a new cost recovery user fee is tabled and in force the pardons program remains unsustainable.

Program Activity Description and Benefits to Canadians: A pardon is designed to recognize the successful reintegration of an individual into society. It is a formal attempt to remove the stigma of a criminal record for people found guilty of a federal offence and who, after satisfying their sentence and a specified waiting period, have shown themselves to be responsible law abiding citizens. Through this program activity, the PBC screens applications for eligibility and completeness, collects information for decision-making and develops policy to guide decision processes. The results of this program are assessed through ongoing review of the average time required to process pardon applications, and the rates of revocation of pardons granted. This program activity is supported by the following priorities:

• Effectively fulfilling legislative responsibilities related to the processing of pardon applications and clemency requests;
• Pursuing strategic excellence in PBC governance; and,
• Investing in our people.

This program activity is designed to support rehabilitation and community reintegration by providing quality pardon decisions. The benefits of the program include:

• Ensuring careful consideration is given to issues of public safety;
• Providing an opportunity for pardon recipients to contribute to their communities as law-abiding citizens;
• Those who receive a pardon have increased opportunities for employment, housing, insurance, and travel, allowing them to generate revenue, capital and contribute to economic growth; and,
• Most individuals (over 96%) who receive a pardon remain crime free, demonstrating the value of a pardon as a long-term measure of community reintegration.

The Royal Prerogative of Mercy (RPM) or Clemency is a largely unfettered, discretionary power vested in the Office of the Governor General by virtue of the Letters Patent and the Governor in Council, under sections 748, 748.1 of the Criminal Code of Canada, who may apply exceptional remedies under exceptional circumstances to deserving cases.

The benefit of the program addresses instances of substantial injustice and instances of undue hardship.

Performance Analysis

During the reporting period, the Pardons Division received a total of 31,965 pardon applications and accepted 15,311 for processing. The low acceptance rate was because the majority of these applications did not meet the new requirement to provide information clearly demonstrating how receiving a pardon would provide the applicants with a measurable benefit and sustain their rehabilitation into society as a law abiding citizen.

The Board also had to contend with processing pardon applications received both prior to and after the coming into force of amendments to the CRA. This required that staff move between different statutory requirements, as pardon applications received by the Board before the coming into force of Bill C23-A on June 30, 2010, deemed eligible and complete, were processed under the requirements of the former CRA.

Staff familiar with a legacy system, also had to adapt to processing applications based on new and different methodologies, which caused delays in the processing of pardon applications. The absence of sufficient resources to manage the legislative changes compounded the overall pressures on the Board, and caused delays in the processing of pardon applications. During 2010-11, the government announced its intent to move to a full cost recovery approach for pardon applications.  The PBC has commenced the process to increase the user fee which, if approved, will alleviate this pressure.  Furthermore, the amended CRA made demonstrating merit on the applicant's part a fundamental component of assessing an application, and also provided more discretion to Board members in their decision-making. As Board staff required training to assess more complex cases according to the new requirements of the CRA, these applications were put aside to be processed once staff had received the necessary training. This resulted in a backlog of approximately 10,000 pardon applications.

During 2010-11, the Clemency program received 31 requests for the RPM and now has 58 active files. The increase in requests is largely attributable to the changes made to the CRA. Most requests are discontinued either because the applicant does not provide sufficient information or proof of excessive hardship to proceed with the request, or the Minister determines that the clemency request does not warrant investigation as the criteria have not been met. Nonetheless, unlike the CRA, the RPM is not based on timelines set in statute but rather on various remedies sought for very exceptional cases. Consequently, an exhaustive assessment of each request is essential in order to provide the Minister with a recommendation. The Clemency program has seen its volumes increase substantially with a corresponding increase in resource demand.

For more information, please access the Board's Performance Monitoring Reports at: http://pbc-clcc.gc.ca/rprts/rprt-eng.shtml.

Program Activity 1.4: Internal Services

2010-11 Financial Resources ($ thousands)			2010-11 Human Resources (FTEs)
Planned Spending	Total Authorities	Actual Spending	Planned	Actual	Difference
5,000	4,970	4,427	37	46	(9)

Program Activity Expected Results	Performance Indicators	Targets	Performance Status	Performance Summary
Efficient and effective internal services that support quality program delivery	Performance indicators in this area are under consideration	Performance targets in this area are under consideration	Mostly Met	Progress made towards formalizing and strengthening performance indicators and targets. Mechanisms are in place but work continues to integrate and enhance the use of indicators and targets into the business reporting structure and the PAA.

Program Activity Description and Benefits to Canadians: This program activity includes the provision of financial, human resource, administration, security and modern management services and provides the basic operational services that enable the Board to function while ensuring compliance to new and existing central agency policies. This program activity is supported by the following priorities:

• Pursuing strategic excellence in PBC governance; and,
• Investing in our people.

Internal Services benefits Canadians by enabling the Board to deliver its program activities. Internal Services strives to:

• Ensure that the Board's governance structure facilitates the most effective and flexible decision making possible;
• Communicate information about the PBC to target audiences in an effective manner;
• Provide the right human and financial resources to advance the Board's key and ongoing priorities;
• Generate the most effective, results-based planning to ensure logic and cohesion in all PBC activities;
• Conduct reviews, monitoring and investigations to ensure that operations are transparent and accountable;
• Ensure that the technological tools that are essential to the Board's operations are in place; and,
• Maintain a culture of continuous innovation and improvement.

Reporting internal services through a common government-wide approach to planning, designing, budgeting, and reporting allows Canadians to see the full cost and proportion of resources spent at the Board and across the federal government for support activities.

Performance Analysis

Highlights of performance during the year include the following:

• A Strategic Operating Concept (SOC) and Investment Plan (IP) was developed to set out the Board's plans and priorities for achieving business and operational goals. The SOC/IP depicts and communicates the Board's overall strategic management (e.g., governance structure and planning framework). It supports: roles and responsibilities, including key points of accountability; effective and efficient allocation and reallocation of resources (financial and human); processes for integrating enabler functions (e.g., human resources, information technology, corporate services, etc); and, risk and performance management strategies. As a communication tool, it provides for greater flexibility and transparency.
• Considerable effort is dedicated to the budget management process to ensure PBC's funds are used to maximum advantage. A rigorous internal review and forecasting exercise begins in August and continues for the remainder of the fiscal year to facilitate this. In December 2010, PBC was required to provide a forecast of annual expenditures which would be used as a basis of comparison with final results. The difference between PBC's forecast and actual expenditures was less than 5%.
• The national office finance branch monitors, on a cyclical basis, regional Finance and Procurement operations, which are decentralized, to ensure consistency of procedures and compliance with the Financial Administration Act (FAA) and applicable Treasury Board policies. The second cycle began in 2010-11, and considerable improvement has been noted since the monitoring exercise began. Lessons learned from each year's monitoring exercise also lead to refinement of the monitoring procedures to make the exercise itself more effective and efficient.
• The Board conducted case reviews of Board member decisions to ensure that the conditional release decisions taken respect the law, policy, as well as the duty to act fairly. The Board also conducted statistical analysis to identify trends and inform decision-makers of any changes in the profile of the offender population. The PBC is in the process of building a more robust program monitoring function so that it can more fully demonstrate transparency and accountability to Parliament and the public by reporting on activities that support the key activities outlined in the Board's PAA.
• The PBC results on the Staffing Management Accountability Framework improved considerably in the areas of planning for staffing, HR support systems and accountability for results.

For more information, please access the Board's Performance Monitoring Reports at: http://pbc-clcc.gc.ca/rprts/rprt-eng.shtml.

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