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ARCHIVED - RPP 2006-2007
Correctional Service Canada


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SECTION II: STRATEGIC PRIORITIES

2.1 Strategic Context

Correctional operations and policies are influenced by the broader criminal justice and socio-economic environment. Canada experienced the first reported increase in overall crime in ten years in 2003, followed by a slight decline (-1%) in 2004. The violent crime rate decreased by 2% while the homicide rate increased by 12% in 2004. 9

Research shows that for every 100 offenders:

  • 78 have no high school diploma
  • 73 have unstable job histories
  • 80 have abused drugs or alcohol
  • 80 are impulsive

CSC has experienced a 12% decrease in the men offender population since 1997. 10 Despite this decrease, CSC is currently facing a number of internal and external challenges flowing largely from the changing offender profile:

  • Offenders now have more extensive histories of involvement with the court system. 11
  • The percentage of maximum security classifications at admission has increased from 6% to 13% since 1996-97. 12
  • Changes in legislation have resulted, for example, in requirements for CSC to manage more offenders associated with gangs and organized crime (an increase from 12% to 16% of the incarcerated population) . 13
  • There are more offenders under Long Term Supervision Orders (an increase from 31 to 120 cases since 2002-03).
  • More than one out of ten men offenders and one out of four women offenders are identified at admission as presenting mental health problems. These proportions have risen since 1997 (from 7% to 12% for men offenders, or an increase of 71% and from 13% to 21% for women offenders, or an increase of 67%). 14
  • There is continued prevalence of learning disabilities among offenders, as well as offenders with a low functioning capacity.
  • Offenders continue to exhibit a high prevalence of substance abuse (80% overall, 95% for Aboriginal men and 77% for women offenders).
  • Offenders have much poorer health compared to the general Canadian population. 15
  • Furthermore, offenders are about thirty times more likely to have been infected with the Hepatitis C virus and ten times more likely to have been infected with HIV. 16

9 Crime Statistics in Canada , 2004, Juristat, Canadian Centre for Justice Statistics, July 2005 [ violent crime includes homicide, attempted murder, assault, sexual assault, abduction and robbery].

10 The Changing Federal Offender Population, Profiles and Forecasts, 2005, CSC Research, October 2005 [ The federal population of women in custody, however, increased by 6% since 1997, the Aboriginal male offender population increased by 11% and the Aboriginal women offender population by 85%].

11 Source: Climate Indicator and Profile System (CIPS).

12 Source: CIPS. The increase for Aboriginal men is from 9% to 13% and for women offenders from 4% to 7%.

13 Source: CIPS. The corresponding increase for Aboriginal and women offenders is from 14% to 25% and from 7% to 9%, respectively.

14 Source: CIPS. For Aboriginal men, this rate has increased from 6% to 13% over the same period.

15 Health Care Needs Assessment of Federal Inmates in Canada , published in the Canadian Journal of Public Health (Volume 95, Supplement 1, March/April, 2004).

16 Source: CSC Infectious Diseases Surveillance System.

Aboriginal offenders continue to be disproportionately represented:

  • Account for 16.7% of offenders who are serving federal sentences while Aboriginal peoples comprise only 2.7% of the Canadian adult population. 17
    • Aboriginal offenders a ccount for 18.7% of the incarcerated population and 13.6% of the community population.
    • Aboriginal women offenders account for a higher proportion of the overall women offender population at 25.1% and 31.4% of incarcerated women. 18

As well, CSC's population is becoming increasingly polarized. 19

  • Over 55% of all new men offender admissions (almost identical for new women and Aboriginal men offenders) are receiving sentences of less than three years, an increase from 34% to 55% (a 61% increase) since 1997. This translates into one out of four men offenders and one out of three women offenders serving sentences of less than three years. As a result, there is limited time to prepare an increasing proportion of offenders for release to the community.
  • Meanwhile, the proportion of offenders serving life or indeterminate sentences is 23%, 22%, and 19%, respectively, for men, Aboriginal men and women offenders.

17 Source: CRS. March 31, 2006 .

18 Source: CRS. May 14, 2006 .

19 Source: CIPS.

To sustain correctional results and to contribute to the safe reintegration of offenders in the community, CSC needs to adapt its approaches to better meet the needs of the changing offender profile. Responding to these changes in innovative ways is particularly difficult given that most of CSC's resources are used to cover non-discretionary or fixed costs, leaving very limited flexibility for policy and program changes or investments that could yield longer-term results. Resources must be targeted where the needs, risks and impacts are the greatest.

Informed and engaged citizens and communities are integral to safe offender reintegration. CSC has always been dependent on the communities it serves to provide support to offenders in their reintegration, but community capacity is varied and often limited.  While CSC can bridge some gaps in the short term, an investment in longer-term community capacity building to deliver programs and to provide support services is critical to assist offenders' safe reintegration efforts and contribute to public safety. 

Creating such capacity requires the trust and confidence of the community. Building public confidence in the justice system is key to establishing successful correctional policy. In today's society, there is an increased demand for greater transparency, accountability and performance. CSC must demonstrate, in all that it does, a commitment to continuous improvement in its contribution to public safety.

The Government's commitment to tackling crime, as set out in the 2006 Speech from the Throne, arises from the recognition that the protection of the public must be the paramount consideration in the justice system. Two pieces of legislation were introduced on May 4, 2006: Bill C-9, which would end the use of conditional sentences for serious offences (those for which the maximum term of imprisonment is 10 years or more); and Bill C-10, which is aimed at increasing mandatory minimum terms of imprisonment for individuals who commit serious or repeat firearm offences, and creating the new offences of breaking and entering to steal a firearm and robbery to steal a firearm. Funding has recently been set aside by the Government of Canada to expand correctional facilities (a new medium security institution and additional maximum-security capacity) to address increases in the federal inmate population expected as a result of proposed changes to sentencing rules as stipulated in the 2006 federal budget.

2.2 Public Safety Results for Canadians - An Overview

In response to requirements to manage a changing offender profile, and contribute to public safety, CSC will focus, over the next three years, on four strategic priorities:

  • Safe transition of offenders into the community;
  • Safety and security for staff and offenders in our institutions;
  • Enhanced capacities to provide effective interventions for First Nations, Métis and Inuit offenders; and
  • Improved capacities to address mental health needs of offenders.

2.2.1 Safe Transition of Offenders into the Community

Every crime committed by an offender, either while incarcerated or in the community under supervision, is of significant concern to CSC.

Of greatest concern are violent crimes in the community. While the three-year moving average of federal offenders supervised in the community convicted of, or charged with, a violent crime has not changed significantly since 2001-02, the level of violent crime committed by offenders (notably 236 offenders convicted/charged in 2005-06) must be significantly reduced.

SUPERVISED FEDERAL OFFENDERS IN COMMUNITIES CONVICTED OF, OR CHARGED WITH, A VIOLENT OFFENCE 20

 

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

Offenders convicted/ charged

344

343

324

292

299

236

Supervised population in communities

15,137

14,745

14,224

14,224

13,926

13,956

% of supervised population

2.3%

2.3%

2.3%

2.1%

2.1%

1.7%

Three-year moving average 21

 

 

2.3%

2.3%

2.2%

2.0%

20  Source: Criminal Justice Information Library (CJIL/OMS), April 9, 2006 . This table shows the total number of offenders who were convicted of, or charged with, at least one violent offence while on supervision. The percentage is based on the flow-through population and includes all federal offenders who have been supervised by CSC (excluding deported offenders) for at least one day during the year. A violent crime is considered to be a murder or Schedule I offence in the Criminal Code.

21 A three-year moving average is expected to provide a more robust indicator of the long-term trend.

Effective corrections means reintegrating those offenders judged to be making satisfactory progress while also ensuring that criminals who may still pose a threat to Canadians and their communities are retained in custody. Furthermore, CSC is also concerned with the commission of crimes by offenders after the end of their sentences.

FEDERAL OFFENDERS CONVICTED OF A VIOLENT OFFENCE AND RETURNING TO CSC WITHIN TWO YEARS OF THE END OF THEIR SENTENCE 22

 

1998-99

1999-00

2000-01

2001-02

2002-03

2003-04

# of offenders reaching the end of their sentence

4,406

4,230

4,456

4,534

4,485

4,355

# returning to CSC for a violent offence within 2 years

235

197

224

212

226

219

% returning to CSC for a violent offence within 2 years

5.3%

4.7%

5.0%

4.7%

5.0%

5.0%

Three-year moving average

 

 

5.0%

4.8%

4.9%

4.9%

Source: Corporate Reporting System (CRS) April 9, 2006.

22 This table includes offenders returning to CSC within two years of the end of their sentence who had at least one conviction for a violent criminal offence as part of their new sentence.

In this context, a key strategic priority for CSC is to reduce violent re-offending by offenders both while they are in communities under CSC's supervision and after the end of their sentence.


2.2.2 Safety and Security for Staff and Offenders in Our Institutions

CSC is committed to reducing institutional violence of all forms, in order to create an environment that is safe for staff and inmates, and establish the right conditions for maximizing correctional results.

In striving to reduce violence in institutions, CSC is faced with the challenge of managing a changing offender population. As shown in the table below, major security incidents in institutions have remained relatively stable. The exception was in 2004-05, when the annual rate of major institutional incidents was significantly lower than in previous years. Results for 2005-06 indicate a return to previous levels.

Major security incidents in Institutions 23

 

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

Major security incidents

79

66

85

78

53

68

Incarcerated population

18,704

18,575

18,579

18,525

18,621

18,988

Rate per 100 incarcerated offenders

0.42

0.36

0.46

0.42

0.28

0.36

Three-year moving average

 

 

0.41

0.41

0.39

0.35

Source: CRS/Security, March 31, 2006.

23 The rate is calculated using as the denominator the flow-through population of offenders incarcerated. Incidents must include a serious injury (see definition in footnote on next page). This does not apply in the case of hostage takings/forcible confinements and major disturbances. Note that this table includes major assaults on staff and inmates (involving serious injury) that are included in separate tables below.

On a typical day, CSC must deal, on average, with two assaults on staff or offenders. While there has been slight improvement over the last few years, the rate of assaults has risen in 2005-06 and remains a major preoccupation. Many of these assaults on staff and inmates result in injuries.

ASSAULTS* ON STAFF AND OFFENDERS

 

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

# of assaults on staff

463

508

465

367

293

376

# of assaults on offenders

542

510

540

468

463

557

Total

1,005

1,018

1,005

835

756

933

Rate per 100 offenders incarcerated

5.4

5.5

5.4

4.5

4.1

4.9

Three- year moving average

 

 

5.4

5.1

4.7

4.5

Data includes "Commit", "Attempt to Commit", "Threaten to Commit", "Suspected of Committing", "Conspire to Commit", and so on.

Source: Security Branch, CJIL, July 9, 2006.

STAFF AND OFFENDERS INJURED* DURING ASSAULTS

 

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

# of staff injured

302

331

292

244

207

243

# of offenders injured

533

491

513

451

444

521

Total 24

835

822

805

695

651

764

Rate per 100 offenders incarcerated

4.5

4.4

4.3

3.8

3.5

4.0

Three- year moving average

 

 

4.4

4.2

3.9

3.8

* Data includes "Minor", "Major", and "No [physical] Injuries"

Source: Security Branch, CJIL, July 9, 2006.

24 This includes both major and minor injuries. A major injury is an injury of a serious nature that results in hospitalization or treatment and that prohibits the victim's return to normal routine for any period of time, for example, cuts requiring sutures, unconsciousness depending on the severity, or broken bones. A minor injury is an injury that does not prevent the continuation of the victim's normal routine, nor involves treatment in a hospital; for example, minor abrasions, bruises, superficial cuts, or sprains.

The above tables tell only one part of the story. Front-line staff has identified the climate in institutions to be changing, with assaultive behaviour becoming more pronounced and with more incidents of behaviour that is problematic but short of reportable assaults.

Increases in instances of bodily fluids and waste being thrown on officers and verbal assaults such as threats to harm family members, are only recently being fully appreciated for their impact. Previously, these attacks were fewer and may have been taken as an occasional "part of the job". However, they are now better understood as precursors to physical violence, indicative of an ingrained lack of respect for others, and are appreciated as having lasting and significant impact on staff and offenders' sense of safety and security.

This is an ongoing concern, especially since intake assessment information indicates that the offender population has a higher propensity for violence in the future.

In identifying this gap in our understanding of the dynamics at play, CSC is committed to furthering its understanding of the dynamics of aggressive behaviour in institutions, and implementing effective measures to address it. CSC is engaged in ongoing consultation with UCCO-SACC-CSN on ways to reduce assaults and injury to staff, including enhancing protective equipment for staff and providing specialized training for correctional officers and other staff who deal with violent inmates. Areas of focus include enhancing security and self-defence awareness around inmate movement; increasing awareness of violent tendencies of specific offenders, and applying more effective communication techniques in interacting with violent offenders.

Other measures include developing a more comprehensive gang management strategy, more effective risk assessment tools for violent offenders; and intensive programs that target violent offenders.

A major contributor to institutional violence is drug trafficking. Illicit drugs are a problem for correctional organizations throughout the world. They are not only illegal and have a negative impact on institutional security, they also contribute to further criminal behaviour and the spread of infectious disease, and are detrimental to reintegration efforts.

In 2005-2006, CSC seized the following contraband: 25 5,179 assorted pills, 226 grams of amphetamines, 313 grams of cocaine, 8,155 grams of THC, a further 623 THC items, 762 grams of opiates, 6267 litres of alcohol/brew and 1,851 items of drug paraphernalia.

25 Source: Offender Management System (OMS), April 9, 2006 .

But despite these efforts, the offender population continues to exhibit substance abuse.

Random Urinalysis Results 26

 

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

Total number of tests

6,845

6,905

6,862

6,681

6,874

7,437

Positive

860

721

771

767

739

767

Refused

932

991

932

836

806

894

% of positive or refused

26.2%

24.8%

24.8%

24.0%

22.5%

22.3%

Three-year moving average

 

 

25.3%

24.5%

23.8%

22.9%

Source: CRS as of May 14, 2006.

26 Offenders that refuse to provide a sample are considered to have tested positive.

A key part of the effort to provide better safety and security for both staff and offenders will be to reduce the entry, use and impacts of illicit drugs.

CSC will take the following actions in order to further reduce the entry, trafficking and demand for drugs in its institutions:

  • Increase its measures and efforts to inform Canadians of the hazards and repercussions of smuggling drugs into any of the country's federal correctional institutions.
  • Enhance searching procedures for visitors, contractors and staff entering institutions;
  • Conduct increased urinalysis and routine searching of inmates;
  • Manage more closely inmates involved in institutional drug trade, which could include closed/restrictive visits;
  • Increase disciplinary action to deal with inmates involved in the smuggling and trafficking of drugs; and,
  • Broaden awareness to inmates of substance abuse programs.

CSC will also work more closely with local police forces and Crown prosecutors to develop a more proactive approach for dealing with cases where drugs are seized.

In the longer term, anti-drug smuggling efforts may include:

  • Purchasing new technology to detect illicit drugs hidden within inmate mail;
  • Increasing the number of drug detection dog teams;
  • Continuing to build CSC's Security and Intelligence capacity; and,
  • Looking for new technologies and practices proven successful in other jurisdictions.

2.2.3 Enhanced Capacities to Provide Effective Interventions for First Nations, Métis and Inuit Offenders

CSC has improved its capacity to provide Aboriginal-specific interventions. However, it has not closed the gap between results for Aboriginal and non-Aboriginal offenders, as shown in the table below. Aboriginal offenders have a higher rate of both violent and non-violent re-offending while they are in communities under CSC supervision.

Supervised federal offenders in communities convicted of, or charged with, an offence 27

Aboriginal vs. non-Aboriginal Offenders

Aboriginal offenders 2000-01 2001-02 2002-03 2003-04 2004-05 2005-06

% of supervised population: violent offence

4.1%

5.6%

4.7%

4.0%

4.2%

3.6%

% of supervised population: non-violent offence

10.3%

9.2%

9.3%

9.0%

8.0%

8.2%

% of supervised population: any offence

14.4%

14.8%

14.0%

12.9%

12.3%

11.8%

Non-Aboriginal offenders

2000-01

2001-02

2002-03

2003-04

2004-05

2005-06

% of supervised population: violent offence

2.0%

1.8%

1.9%

1.8%

1.8%

1.3%

% of supervised population: non-violent offence

6.6%

6.3%

6.1%

5.8%

6.1%

5.7%

% of supervised population: any offence

8.6%

8.1%

7.9%

7.5%

7.9%

7.0%

Gap in re-offending 2000-01 2001-02 2002-03 2003-04 2004-05 2005-06

% of supervised population: violent offence

2.1%

3.8%

2.8%

2.2%

2.5%

2.2%

% of supervised population: non-violent offence

3.7%

3.0%

3.3%

3.2%

1.9%

2.5%

% of supervised population: any offence

5.9%

6.8%

6.1%

5.4%

4.4%

4.8%

Three-year moving average

 

 

6.3%

6.1%

5.3%

4.8%

Source: OMS as of April 9, 2006. Percentage might not add up due to rounding.

27 This table shows the total number of offenders whose parole has been revoked and who were convicted of, or charged with, at least one criminal offence while under supervision comparing the non-Aboriginal population with the Aboriginal offenders. A violent crime is considered to be murder or a Schedule I offence. Offenders are classified according the most serious crime that they have been convicted of, or charged with.

Aboriginal offenders are also more likely to return to CSC after the end of their sentence. Clearly, the gap in the rate of re-offending by Aboriginal offenders must be narrowed, both while they are in the community and after the end of their sentence, if CSC is to achieve its broader rehabilitation objectives.

Federal offenders returning to federal custody for any offence within two years after the end of their sentence

Aboriginal vs. non-Aboriginal Offenders

Aboriginal offenders

1998-99

1999-00

2000-01

2001-02

2002-03

2003-04

% returning to CSC within 2 years

10.2%

13.1%

11.9%

9.2%

13.3%

13.6%

Three-year moving average

 

 

11.8%

11.4%

11.5%

12.1%

Non-Aboriginal offenders

1998-99

1999-00

2000-01

2001-02

2002-03

2003-04

% returning to CSC within 2 years

9.4%

8.3%

8.8%

9.1%

9.9%

10.0%

Three-year moving average

 

 

8.8%

8.7%

9.3%

9.7%

Gap in re-offending

 

 

2.9%

2.7%

2.2%

2.4%

Source: CRS as of April 9, 2006. Percentage might not add up due to rounding.

Given these gaps, the third strategic priority for CSC is to continue to enhance its capacities to provide effective interventions for First Nations, Métis, and Inuit offenders and strive to narrow the gap in correctional results. In addition, CSC must work horizontally with other government departments to address the challenges that contribute to the disproportionate representation of Aboriginal peoples in the criminal justice system.

2.2.4 Improved Capacities to Address Mental Health Needs of Offenders

CSC must also improve the way it addresses the needs of offenders with mental health disorders. Over the last few years, CSC has witnessed an increase in the number of offenders with diagnosed mental health disorders at admission.

Incarcerated Offenders
with a current diagnosed mental health disorder on admission

 

March 1997

March 2006

Growth rate
(%)

% of incarcerated men offenders

7%

12%

71.4%

% of incarcerated Aboriginal men offenders

6%

13%

116.7%

% of incarcerated women offenders

13%

21%

66.7%

Source: Climate Indicator and Profile System (CIPS)

As a result of these clear trends, the fourth strategic priority for CSC is to improve its capacities to address the mental health needs of offenders. This is needed to improve correctional results and will be achieved by providing a full-spectrum response to their broad and multidimensional mental health needs.

2.2.5 Strategic Priorities and Results Commitments

To summarize, with respect to operations, CSC has identified four strategic priorities:

  • Community transition - Safe transition of offenders into the community;
  • Safety and Security in Institutions - Safety and security for staff and offenders in our institutions;
  • Aboriginal offenders - Enhanced capacities to provide effective interventions for First Nations, Métis and Inuit offenders; and
  • Mental health - Improved capacities to address mental health needs of offenders.

Within these areas of strategic priorities, CSC is committed to achieving the following results:

  • A reduction in the rate of violent re-offending by offenders, both while they are in communities under CSC supervision and following the end of their sentence;
  • A reduction in violent behaviour within CSC institutions;
  • A narrowing of the gap in the rate of re-offending between Aboriginal and non-Aboriginal offenders, both while they are in communities under CSC supervision and following the end of their sentence; and
  • An improvement in correctional results for federal offenders with mental disorders.

CSC will also pursue a fifth strategic priority, strengthening management practices, to improve the way it delivers on these key strategic priorities, and more generally, on all aspects of its mandate.

Each of these strategic priorities, the associated results commitments and measures, and the strategies and plans developed to achieve the desired results are further described in the section that follows. 28 Results and progress achieved on CSC's stated plans will be monitored and reported in the Departmental Performance Report (DPR).

28 To bring clarity to these notions, the following definitions have been adopted:

  • Strategic priority is an a rea of attention that is given priority over the medium term (i.e. 3 years) in support of improved results. A strategic priority identifies the need for focused senior management attention and, as necessary, for realigned financial support from CSC, in order to achieve intended results.
  • Result commitments serve to align the strategic priorities, strategies and plans based on achieving measurable outcomes that matter to Canadians. While CSC will do everything within its capacity to achieve these outcomes, many factors, besides our interventions and beyond our direct control, may impact on these outcomes.
  • S trategy is a purposive, integrated approach to achieve the desired outcome.
  • Plan is a specific, concrete action supporting a strategy. It is monitored with milestones.

 

2.3 Community Transition

Priority:

Safe transition of offenders into the community

2.3.1 Introduction

Enhanced public safety through reduced re-offending is CSC's ultimate objective. The majority of offenders will one day return to the community. CSC plays an essential role in preparing offenders for a safe transition to the community. As well, it provides comprehensive information to the National Parole Board, which makes discretionary release decisions.

The success of the federal correctional system is based on collaborative partnerships and the application of research-based approaches. The likelihood of an offender leading a law-abiding life on release is greater if the offender is properly prepared for release, having benefited from targeted interventions and correctional programs and is supervised in a supportive community. Community-based residential facilities operated by non-governmental agencies and Community Correctional Centres operated by CSC, play an important role in the reintegration of offenders who require structure and support on release.

2.3.2 The Challenges

STAFF SAFETY

On October 6, 2004 , a CSC parole officer, Louise Pargeter, was found murdered in the home of an offender while conducting a home visit. CSC is committed to ensuring the safety of its community front-line workers. In the aftermath of this tragic loss, CSC has taken additional steps to strengthen both physical and personal security.

CSC is facing a number of challenges in preparing offenders for a safe transition to the community. Offenders pose a variety of risks and have increasingly diverse needs, requiring more targeted development of correctional programs and interventions and monitoring of correctional plans .  For example, a n increase in the number of offenders admitted with sentences under three years requires more rapid interventions that focus on their specific needs. 29

There is an i ncreasing proportion of offenders with more pronounced criminogenic needs being released to the community and an increasing proportion of offenders receiving Statutory Release (SR) as their first release. 30 In addition, in 2004-05, over 25% of offenders being released on SR were required, as a condition of their release, to reside in a community-based residential facility. While the majorit y of offenders on SR do not re-offend violently upon release, they are nevertheless responsible for the majority of violent incidents by federal offenders in the community. 31 In this context, the Government is determined to address the problems associated with SR.

As well, the population of offenders receiving Long Term Supervision Orders (LTSOs) is increasing, signalling a need to place focused attention on this category of offenders. Since 2002-03, the number of offenders in the community who are actively serving their LTSO has increased from 31 to 100. 32 Of these, 14 are Aboriginal and one is a woman. An additional 258 offenders have an LTSO designation but have not yet reached sentence expiry.

Therefore, in this context, a major challenge for CSC will be to enhance its capacity to protect the public.

29 The sentence length at admission for Aboriginal men has been relatively constant. It has increased from 47% to 55% for women offenders.

30 By law, offenders who are serving sentences of fixed length and who have not been granted parole or had their parole revoked are released on statutory release after serving two-thirds of their sentence, unless the NPB, following referral from CSC, orders detention beyond the statutory release date. The NPB may do so if it is determined that the offender is likely to commit, before the end of the sentence: an offence causing death or serious harm to another person; a sexual offence involving a child; or a serious drug offence.

31 Crimes committed by federal offenders while in the community under CSC supervision account for a very small percentage of all violent crimes committed in Canada , i.e. less than 0.07%.

32 Source: CRS, December 31, 2005.

2.3.3 Intended Public Safety Results

Although the rate of offenders convicted of, or charged with, violent crimes in communities while under supervision has been relatively constant over the last three years, CSC is striving to improve these results.

CSC's programs and interventions assist offenders to remain as law-abiding citizens after the end of their sentence. CSC is closely monitoring results in this area, recognizing that many other factors are at play, such as the capacity of communities to provide support to offenders. Over the last few years, and despite the changing offender profile, the rate of offenders convicted of violent crimes after the end of their sentence has remained stable (based on offenders returning to federal custody within two years of the end of their sentence).

CSC will aim to contribute to the following key result:

RESULT COMMITMENT 33

A reduction in the rate of re-offending by federal offenders returning to the community , as measured by:

  • A reduction in the percentage of federal offenders in communities convicted of, or charged with, a violent offence while under CSC supervision.
  • A reduction in the percentage of federal offenders convicted of a violent offence and returning to federal custody within two years of the end of their sentence.
  • A reduction in the percentage of federal offenders convicted of a violent offence within five years of the end of their sentence.

33 Since they provide a more reliable indicator, the three-year moving averages will be the primary method used by CSC to measure improvements in performance. At the same time, annual objectives will be established and annual results will be closely monitored to provide early indications of potential shifts in trends. CSC is committed to achieving improvements in its results, as reflected in both the annual results and the three-year moving averages.
Re-offending results based on long, fixed follow-up periods ? i.e. whether offenders re-offend within two or five years of the end of their sentence ? can be observed only after a significant time lag. Hence, the two-year and five-year re-offending rates that will be reported by CSC in the 2007 Departmental Performance Report will reflect the results for offenders that were released two or five years prior . It will take a minimum of five years to assess the impacts of the future actions of CSC on five-year re-offending rates.

While these results will be monitored closely and will be the primary focus of CSC's interventions, results on non-violent offences will also be monitored and reported.

The seriousness of violent offences covers a wide spectrum. Accordingly, CSC will also be reporting further details on the nature of the violent offences committed by federal offenders, both while in communities under CSC's supervision and after the end of their sentence. More refined information on the nature of the offences committed will assist CSC in developing more effective correctional approaches.

2.3.4 Strategies and Plans

To contribute to public safety results, CSC will develop and implement integrated strategies that focus on purposeful intervention, correctional programs and effective supervision, as well as improved monitoring of the offenders' progress. A key focus will be on better assessing the potential of offenders to re-offend violently, designing tools and interventions to better identify and address those factors earlier and, where serious problems persist, providing a sounder basis for detention referrals. Four strategies have been developed to achieve this strategic priority.

Strategy 1: Enhance supervision and monitoring tools for higher-risk offenders in the community

This strategy will foster closer supervision for certain groups of offenders and the provision of targeted programs and services, in partnership with community organizations, provincial and territorial jurisdictions and police services, in order to enhance the potential of offenders for a safe reintegration. Targeted groups may include: offenders with a propensity for violence, offenders on statutory release with or without residency conditions, those under an LTSO, or offenders with significant mental health disorders.

Plans in support of this strategy include:

  • Community Supervision: Enhance intervention and monitoring tools for certain groups of offenders by parole officers, in collaboration with police services.
  • Electronic Monitoring : Study the feasibility, develop and implement a pilot program and assess results of using electronic monitoring devices with higher risk offenders.
  • Partnerships: Continue the development of partnerships to improve community readiness to support offenders, especially those with higher needs.
  • Employment Continuum: Ensure the full implementation and integration of the Employment Continuum,34 including the identification and implementation of effective practices through the newly established Managers of Employment and Employability; and f ully implement the National Employability Skills Program.
  • Community Programs: Enhance community programs to improve the potential for safe reintegration.

34 The Employment Continuum includes the identification of offenders' employment needs, building and enhancement of vocational skills and, upon release, supporting and enabling offenders to secure and retain employment.

The remaining three strategies focus on improving offender preparation for release during the term of incarceration:

Strategy 2: Adapt the assessment process at reception (intake) for shorter sentences

This strategy is aimed at adapting the intake assessment process for offenders with shorter sentences, in particular for those who have a propensity for violence, so that a correctional plan can be rapidly established and the offenders' criminogenic factors addressed in a timely manner.

Plans in support of this strategy include the following:

  • Offender Intake Assessment: Develop and pilot an accelerated intake assessment of offenders with short-term sentences.
  • Security Classification Tools: Continue the development of the initial security classification tool that is based on the specific characteristics of women.

Strategy 3: Amend case management and programming approaches to provide timely and purposeful interventions for shorter sentences

This strategy is aimed at modifying the case management approach for offenders serving shorter sentences. Timely and appropriate interventions are critical to safe reintegration into the community.

Plans in support of this strategy include the following:

  • Targeted Interventions: Develop and implement programs and interventions to address the changing offender profile and, in particular, the propensity for violence.
  • Violence Prevention Program for Women Offenders : Develop a program to address the needs of women offenders who have committed violent offences or who are considered at high risk to commit violent crimes.

Strategy 4: Enhance the role of Community Correctional Centres (CCCs) in managing the transition to the community

This strategy includes comprehensively analyzing the role and capacity of CCCs in addressing the changing offender profile, in particular, higher-needs offenders.

The plan in support of this strategy includes:

  • Role of CCCs : Develop a service delivery model and assess the infrastructure (resourcing indicators) to enhance the capacity of CCCs to address the needs of challenging populations.

2.3.5 Measuring Progress

The table below provides a summary of the strategies as well as the associated plans and milestones to support safe transition into the community.

PLANS

MILESTONES FOR FISCAL YEAR 2006-07

Strategy 1: Enhance supervision and monitoring tools for higher-risk offenders in the community

Community Supervision

  • Assess the results of the evaluation of the Vancouver Reporting Centre35 (Completed June 2006)
  • Review the results with the Community Council and develop an action plan (Completed June 2006)
  • Fully deploy Community Correctional Liaison Officers (October 2006)
  • Implement one Reporting Centre per Region (December 2006)

Electronic Monitoring

  • Report on the results of the feasibility study (Completed June 2006)
  • Complete framework for pilot: Target group, technology, policy framework, agreement with the NPB (Completed July 2006)
  • Conduct pilot (September 2006)
  • Provide assessment (March 2007 )

Partnerships

  • Approve new standards for Community Residential Facilities (Completed April 2006)
  • Conduct consultation sessions with non-governmental organizations on the future of community corrections (Completed May 2006)
  • Provide Citizen Advisory Committee report on community operations (Completed July 2006)

Employment Continuum

  • Identify and implement effective practices through the newly established Managers of Employment and Employability (one in each of the five Regions) (March 2007)
  • Fully implement the National Employability Skills Program (March 2007)
  • Work toward full implementation and integration of the Employment Continuum in subsequent years

Employment Strategy for Women Offenders

  • Finalize strategy (including consultations) (October 2006)

Adaptation of Community Programs

  • Revise and increase the Counterpoint Program in the community for offenders experiencing reintegration difficulties (July 2007)
  • Work toward increasing the use of the Community Maintenance Program in the Community in subsequent fiscal year(s)

35 A Reporting Centre is where offenders can report many times a week, be met by a Parole Officer or other staff and receive some services, support or referrals.

Strategy 2: Adapt the assessment process at reception (intake) for shorter sentences

Offender Intake Assessment

  • Review the intake assessment process to identify areas that can be streamlined or eliminated (Completed June 2006)
  • Pilot the D ynamic Factor Identification and Analysis component of the Offender Intake Assessment Project (December 2006)
  • Assess the feasibility of separately centralizing the functions of intake assessment and case preparation for offenders with short-term sentences in either a designated institution or a unit within an institution (March 2007)

Initial Security Classification Tool for Women Offenders

  • Draft Instrument/Coding Guide/Database (October 2006)
  • Complete the Field Testing Plan and Training Plan (includes train-the-trainers) (December 2006)
  • Work towards full implementation in subsequent fiscal year(s)

Strategy 3: Amend case management and programming approaches to provide timely and purposeful interventions for shorter sentences

Targeted interventions

 

 

 

  • Pilot the delivery of Violence Prevention and Substance Abuse Programs to offenders who are going through intake assessment (March 2007)
  • Provide Parole Officers with the skills to motivate resistant offenders and reinforce the behavioural gains of offenders (March 2007)
  • Work toward the development and implementation of a Moderate Intensity Violence Prevention Program in subsequent fiscal year(s)
  • Work toward implementing the Institutional Maintenance Program to provide a continuum of program interventions in subsequent fiscal year(s)

Violence Prevention Program for Women Offenders

  • Develop program (December 2006)
  • Develop training package (March 2007)
  • Work toward program implementation in subsequent year(s)

Strategy 4: Enhance the role of Community Correctional Centres (CCCs) in managing the transition to the community

Role of CCCs

  • Comprehensive report from the working group providing recommendations on service delivery model and resourcing indicators (March 2007)

2.3.6 Resources

The table below provides a summary of the resources associated with each of the strategies to support safe transition into the community.

Strategy

Financial resources
associated with strategy ($M)

2006-07

2007-08

2008-09

Enhance supervision and monitoring tools for higher-risk offenders in the community

7.9

3.6

3.6

Adapt the assessment process at reception (intake) for shorter sentences

0.2

0.2

0.2

Amend case management and programming approaches to provide timely and purposeful interventions for shorter sentences

0.4

2.9

2.8

Enhance the role of Community Correctional Centres (CCCs) in managing the transition to the community

5.0

1.8

1.8

TOTAL

13.5

8.5

8.4

Note: Depicted resources account for these specific plans and represent a small proportion of resources supporting ongoing activities with respect to a safe transition of offenders into the community (see Section 2.8).

 

2.4 Safe and Secure Institutions

Priority:
Safety and security for staff and offenders in our institutions

 2.4.1 Introduction

One of CSC's fundamental responsibilities is to ensure that its institutions are safe for staff and offenders. Violence and illicit drugs are not tolerated. Offenders involved in violent incidents or found in possession of, or using, illicit drugs face disciplinary actions or criminal charges.

CSC has implemented a number of measures in an effort to reduce both violence and illicit drugs in institutions.

Currently, CSC monitors illicit activities of offenders on an ongoing basis, including those offenders belonging to organized criminal groups, in order to prevent incidents and thus enhance safety. Furthermore, CSC is working toward increasing its security intelligence capacity. For some years, CSC has also been committed to working toward a drug-free environment. Illicit drugs in institutions are not compatible with secure environments nor are they conducive to the safe reintegration of offenders into communities.

Ongoing concerns by front-line staff about assaultive behaviour by offenders, coupled with the changing offender profile, point to the need for additional efforts to reduce violence of all forms to create the right environment for maximizing correctional results. A critical component of this effort to provide better safety and security within institutions will be to reduce the entry, use and impact of illicit drugs. To maintain safe and secure institutions, staff members need appropriate training, tools and equipment for their own safety and to provide appropriate assistance to offenders, while also exercising control.

2.4.2 The Challenges

The changing offender population has a direct impact on the safety and security of institutions. Approximately one-sixth36 of men offenders report having gang affiliations during their initial assessment, a proportion that has increased since 1997 (from 12% to 16%).37 There has been an increase in offenders demonstrating poor institutional adjustment, more anti-social behaviour as well as an increase in the proportion of offenders assessed as requiring maximum security at intake.38

36 Source: CIPS. Gang Affiliations: 25% for Aboriginal men and 9% for women.
37 The Changing Federal Offender Population, Profiles and Forecasts, October 2005, CSC Research Branch.
38 Source: CIPS. Since 2001, CSC 's initial placement policy requires that offenders charged with murder spend at least two years in a maximum-security institution. There has been an increasing trend for maximum designations since 1996-97 (6% to 13%, or a 117% increase). Aboriginal men have increased from 9% to 13% (or a 44% increase) and women have increased from 4% to 7% (or a 75% increase).

Furthermore, the high prevalence of offenders having substance abuse problems means that institutions are potentially at a high risk of violence associated with drugs. CSC's approach to combating substance abuse is comprehensive. It includes interdiction measures such as the non-intrusive searching of all visitors entering institutions using tools such as metal detectors, ion scanners and drug detection dogs to detect the presence of drugs; searches of cells, buildings and grounds; physical searches of offenders; regular monitoring of offender activity and random urinalysis testing. In addition to interdiction, CSC also emphasizes education, prevention, treatment and harm reduction. CSC continues to look at ways of improving current practices and exploring new and innovative strategies.

Maintaining a climate of respect in institutions is essential to the safety of staff and offenders. Offender behaviour in institutions must be subject to the same social norms as those prevailing in the community. Consequences for unacceptable behaviour must be consistently applied. While all disrespectful behaviour is of concern to CSC, it is of particular concern when the physical safety of staff or offenders is jeopardized.

In this context, a major challenge for CSC will be to enhance the safety and security of staff and offenders in a way that is consistent with its rehabilitation objectives.

2.4.3 Intended Public Safety Results

As indicated earlier, over the last few years the rate of major security incidents in institutions has remained relatively stable, with 2004-05 being the exception. Replicating the results for that year may be very challenging given the changing offender profile and preliminary data from 2005-06.

However, CSC remains committed to achieving the following key result:

RESULT COMMITMENT 39

A reduction in violent behaviour within institutions, as measured by a reduction in the rate of major security incidents.

39 CSC's performance monitoring approach is identified in the first Result Commitment in section 2.3.3, and has been adopted throughout the document.

To contribute to further developing a culture of respect between offenders and staff, CSC also needs to continue working with union representatives on the issue of staff assaults. At the same time, offenders must also be provided with an environment that is secure and conducive to their rehabilitation. CSC must work towards reducing all forms of violence, whether directed at staff or at offenders, and whether it results in a major or a minor injury.

CSC will therefore work toward the following key result:

RESULT COMMITMENT

A reduction in disrespectful and assaultive behaviour within institutions, as measured by:

  • A reduction in the rate of assaults on staff and offenders.
  • A reduction in the rate of injuries to staff and offenders caused by offenders.

In support of these commitments, CSC must also continue working vigorously toward a drug-free environment and further the following key result:

RESULT COMMITMENT

A reduction in illicit drugs within institutions, as measured by a reduction in the percentage of offenders testing positive during random urinalysis tests.

2.4.4 Strategies and Plans

To achieve these results, CSC will bring forward enhanced new strategies to protect the safety of staff and offenders. This will also create a better climate and conditions for successful behavioural changes and rehabilitation of offenders. Specifically, three strategies are proposed:

Strategy 1: Develop and implement measures to reduce violence in institutions

The increasingly complex offender population presents significant new challenges requiring significant enhancements to security intelligence capacity. This increased capacity will enhance the ability of CSC to mitigate risks posed by offenders and contribute to providing a safer environment for their effective rehabilitation.

The plan in support of this strategy includes the following:

  • Strategic Intelligence: Enhance strategic intelligence capacity to mitigate safety and security risks in institutions.

Strategy 2: Develop and implement additional measures to reduce illicit drugs in institutions

As indicated earlier, the availability and use of illicit drugs are not compatible with secure environments and effective and safe reintegration. This strategy is aimed at curtailing the supply, use and impacts of drugs in institutions.

Plans in support of this strategy include the following:

  • Drug Interdiction : Implement an enhanced Drug Interdiction Plan, building upon the experience to date and the recommendations of the Internal Audit on Drug Interdiction.
  • Strategic Plan: Develop and implement a Strategic Plan to reduce drugs in institutions, recognizing that efforts will be required in the areas of prevention, treatment, enforcement and harm reduction.

Strategy 3: Enhance Staff Safety

This strategy is aimed at ensuring the protection of staff, which will require ongoing adjustments to security and interventions to address the changing offender profile.

Plans in support of this strategy include the following:

  • Front-line Roles and Responsibilities: Implement strategies to ensure roles and responsibilities are consistent and clear for all front-line managers and staff.
  • Assaultive behaviour : Work with union representatives on improving reporting of all assaultive behaviour against staff. Develop and implement a more consistent approach for dealing with unacceptable behaviour in institutions.
  • Staff Safety : Enhance safety measures such as the provision of protective equipment, specialized training for Correctional Officers (for example, gang identification and management) and review measures such as access to OC spray and firearms.

2.4.5 Measuring Progress

The table below provides a summary of the strategies as well as the associated plans and milestones to enhance the safety and security of staff and offenders in our institutions.

PLAN

MILESTONES FOR FISCAL YEAR 2006-07

Strategy 1: Develop and implement measures to reduce violence in our institutions

Strategic Intelligence

  • Develop a more comprehensive Gang Management Strategy (September 2006)

Strategy 2: Develop and implement additional measures to reduce illicit drugs in our institutions

Drug Interdiction

  • Implement enhanced Drug Interdiction Plan (November 2006)

Strategic Plan

  • Develop Strategic Plan (November 2006)
  • Commence implementation of Strategic Plan (December 2006)

Strategy 3: Enhance Staff Safety

Front-line Roles and Responsibilities

  • Commence implementing decisions arising from Correctional Officer Deployment Study (October 2006)

Assaultive Behaviour

  • Consult with union on definition of staff assaults, reporting strategies, and consistent approach for dealing with unacceptable behaviour (Completed June 2006)
  • Implement new framework (August 2006)
  • Establish reporting strategies with new definitions in 2007-08 RPP (March 2007)

Staff Safety

  • Acquire and distribute stab-proof vests (commencing in 2006-07 over a 2-year period)
  • Develop and deliver specialized training modules for Correctional Officers relating to gangs and safety measures (first module will be delivered during fiscal year 2006-07)
  • Complete assessment of access to OC spray and firearms (September 2006) and implement recommendations (December 2006)

2.4.6 Resources

The table below provides a summary of the resources associated with each of the strategies to enhance the safety and security of staff and offenders in our institutions.

Strategy

Financial resources
associated with strategy ($M)

2006-07

2007-08

2008-09

Develop and implement measures to reduce violence in our institutions

0.1

0.1

0.1

Develop and implement additional measures to reduce illicit drugs in our institutions

0.2

0.2

0.2

Enhance staff safety

2.8

1.5

0.8

TOTAL

3.1

1.8

1.1

Note: Depicted resources account for these specific plans and represent a small proportion of resources supporting ongoing activities with respect to safety and security in our institutions (see Section 2.8).

 

2.5 Aboriginal Offenders

Priority

Enhanced capacities to provide effective interventions for First Nations, Métis and Inuit offenders

 2.5.1 Introduction

The federal government's unique relationship with Aboriginal peoples is expressed in the Constitution Act, 1982 . This relationship is further articulated in the Corrections and Conditional Release Act which requires CSC to provide programs designed to specifically address the needs of Aboriginal offenders and engage Aboriginal peoples in the development and delivery of correctional programs and services. Specific provisions allow Aboriginal communities to assume direct responsibility for custody (section 81) and supervision (section 84) of Aboriginal offenders.

Within this legislative framework, CSC began laying the foundation for a new approach to Aboriginal corrections, focused on enhancing the role of Aboriginal communities in corrections, developing expertise and piloting new programs. The Aboriginal corrections "continuum of care" model, developed in 2003, is an integrated strategy which begins at intake assessment, is followed by institutional paths of healing (including enhanced programs and correctional interventions) and ends with the safe and successful reintegration of Aboriginal offenders into the community. The medicine wheel, found at the centre of the continuum, reflects research findings that culture, teachings and ceremonies (core aspects of Aboriginal identity) appear critical to the healing process.40

40 Trevethan , S.D. (2004). " Is there a need for Aboriginal-specific programming for Aboriginal offenders", in Newhouse, D. and Peters, D. (eds.), Not Strangers in These Parts: Urban Aboriginal Peoples . Policy Research Initiative.

2.5.2 The Challenges

Aboriginal peoples continue to be disproportionately represented in the correctional system. They comprise approximately 16.2% of offenders serving federal sentences (in institutions and communities) but only 2.7% of the Canadian adult population.41   Specifically, Aboriginal offenders account for 18.8% of the incarcerated population and 13.1% of the community population. Aboriginal women offenders account for an even higher proportion of the overall women offender population at 24.6% and 31.9% of incarcerated women.

41 Source: CRS, December 2005.

Addressing the gap in re-offending results between Aboriginal and non-Aboriginal offenders and ensuring ongoing support beyond warrant expiry is a major challenge for CSC. This challenge is due, in part, to differences in the profile of the two populations. Aboriginal people admitted to federal custody are increasingly younger and are more likely to be incarcerated for a violent offence, have affiliations with gangs and have much higher needs (relating to substance abuse, health, employment and education, for example). While many needs of Aboriginal men and women are similar, they require different types of interventions to address those needs. Furthermore, research highlights unique background, offence patterns and need characteristics among First Nations on reserve, First Nations off reserve, Métis and Inuit offenders.

Another challenge for CSC is to fully develop and implement each of the components of the continuum of care model (assessment, intervention, reintegration, and prevention) for offenders. Particular emphasis is needed on developing capacities in communities to support Aboriginal offenders under supervision and beyond warrant expiry, in order to reduce re-offending rates and to close the gap in correctional results between Aboriginal and non-Aboriginal offenders. Continued engagement of Aboriginal communities is critical to developing this capacity.

There is early evidence available that initiatives implemented within the continuum of care model work with an Aboriginal offender population, which has higher initial risk and needs than the non-Aboriginal population. For example, initial results for Aboriginal offenders who participated in Pathways healing units showed a lower rate of re-offending than those who did not participate. The fundamental challenge is to expand the provision of these types of interventions across CSC, where there are positive results, in order to address the specific needs of all Aboriginal offenders in a timelier manner.

CSC must also prepare for anticipated growth in the Aboriginal offender population and potential shifts in geographic distribution. Statistics Canada projections to 201742 suggest that the disproportionate representation of Aboriginal peoples among newly sentenced offenders will continue to grow in federal and provincial/territorial correctional systems, particularly in the West and in the North. Of particular relevance is the projection that the 20-29 age group - the age group that has the greatest potential for criminal activity - will increase by over 40%. This is more than four times the projected growth rate of 9% for non-Aboriginal people. New population management strategies will be required to address the anticipated growth in these populations.

42 Projections of the Aboriginal populations, Canada , provinces and territories : 2001 to 2017, Statistics Canada (Catalogue number 91-547-XIE), 2005.

2.5.3 Intended Public Safety Results

CSC has made progress on correctional interventions for Aboriginal offenders. However, despite these efforts, there remains a significant gap in correctional results compared to non-Aboriginal offenders. Given the persistence of that gap, targeted efforts for the Aboriginal population will continue to be a priority.

CSC will aim to achieve the following key result:

RESULT COMMITMENT

Closing of the gap in the rate of violent and non-violent re-offending of Aboriginal and non-Aboriginal federal offenders, as measured by:

  • A reduction in the gap between the percentage of Aboriginal and non-Aboriginal federal offenders convicted of, or charged with, violent or non-violent offences in communities while under CSC supervision.
  • A reduction in the gap between the percentage of Aboriginal and non-Aboriginal federal offenders convicted of a violent or non-violent offence and returning to federal custody within two years of the end of their sentence.
  • A reduction in the gap between the percentage of Aboriginal and non-Aboriginal federal offenders convicted of violent or non-violent offences within five years of the end of their sentence.

CSC will report in the Departmental Performance Report on the effectiveness of its Aboriginal-specific interventions and the development of its capacities. This will include assessments regarding the success of Aboriginal offenders who have benefited from Aboriginal programs, healing lodges, Pathways units, section 81 agreements, section 84 release plans and other specifically designed interventions.

2.5.4 Strategies and Plans

CSC has developed and is implementing an overarching "Strategic Plan" for Aboriginal corrections that will contribute to safe and healthy communities by being more responsive to the needs of Aboriginal offenders. The details of the implementation schedule and associated resource requirements will be included in regional and national actions plans which will be finalized by June 2006.

Four specific strategies will be advanced to further this Strategic Plan, the first three being internal to CSC and the last one addressing CSC's capacity to develop collaborative partnerships and assist Aboriginal communities in strengthening their capacities to assist and support Aboriginal offenders returning to the community.

Strategy 1: Develop and implement culturally appropriate interventions

This strategy is aimed at addressing the specific criminogenic needs of Aboriginal offenders through the development and implementation of actions at both the national and regional levels based on the continuum of care model.

Plans in support of this strategy include:

  • Aboriginal Correctional Programs: Enhance the delivery of Aboriginal correctional programs to meet the specific criminogenic needs of Aboriginal offenders.
  • Population Management : Expand Pathways healing units to all regions in both men's and women's institutions; complete the implementation of the Healing Lodge Action Plan; develop a strategy to address the needs of Northern offenders, including the Inuit.
  • Aboriginal Reintegration : Integrate urban Aboriginal community involvement into the continuum of care and continue Aboriginal community development initiatives through nine existing Aboriginal community development officers.

Strategy 2: Address CSC Internal S ystemic Barriers and Develop Cultural Competence

This strategy is aimed at making CSC more capable of addressing the specific needs of Aboriginal offenders by making the organization more aware and representative of Aboriginal cultures.

Plans in support of the Strategy include:

  • Systemic Barriers: Monitor and identify systemic correctional barriers to Aboriginal offenders on an ongoing basis.
  • Aboriginal Employee Representation: Enhance recruitment, development and retention of Aboriginal employees at all levels of the organization.
  • CSC Cultural Competence: Develop cultural competence throughout CSC to facilitate culturally-relevant operations.

Strategy 3: Improve the Continuum of Care for Aboriginal Women Offenders

This strategy is aimed at enhancing correctional results through initiatives that will improve the continuum of care for Aboriginal women offenders.

Plans in support of this strategy include:

  • Assessment: Develop and implement culturally sensitive classification and assessment tools for women.
  • Programming: Develop and implement culturally sensitive programs for Aboriginal women.
  • Interventions: Develop and implement targeted interventions for Aboriginal women.
  • Knowledge: Enhance knowledge of Aboriginal women and effective corrections for that specific population.

Strategy 4: Enhance collaboration

This strategy is aimed at enhancing horizontal collaboration with the objective of closing the gap in the life chances of Aboriginal offenders. It also endeavours to position CSC to take advantage of partnerships and opportunities among governmental and non-governmental organizations to support Aboriginal offenders in communities, including those returning to urban areas.

Plans in support of this strategy include:

  • Internal Collaboration: Ensure that the planning, reporting and accountability mechanisms at all levels of CSC integrate the Aboriginal dimension.
  • Horizontal Collaboration: Address the gaps in external collaborative capacity through a more coordinated approach within the Public Safety Portfolio, with other federal departments and agencies, and with other levels of government.
  • Aboriginal Community Engagement: Engage Aboriginal communities in the further development and implementation of new programs and approaches that will contribute to safe and healthy communities.

2.5.5. Measuring Progress

The table below provides a summary of the strategies as well as associated plans and milestones aimed at enhancing CSC's capacity to provide effective interventions for First Nations, Métis and Inuit offenders.

PLAN

MILESTONES FOR FISCAL YEAR 2006-07

Strategy 1: Develop and implement culturally appropriate interventions

Aboriginal Programs

  • Train program facilitators to offer additional Aboriginal-specific programming in designated facilities in each Region (March 2007)

Population Management

  • Implement Pathways units in three facilities for men and one facility for women (March 2007)
  • Fully implement action plan specific to healing lodges (March 2007)
  • Develop Northern Corrections Strategy with Territories and Provinces with respect to Northern/Inuit Offenders (December 2006)

Aboriginal Reintegration

  • Through Aboriginal Community Development Officers, increase the number of urban Section 84 release plans across the country (March 2007)
  • Through Community Liaison Services, increase the number of urban reintegration initiatives for Aboriginal offenders (March 2007)

Strategy 2: Address CSC internal s ystemic barriers and develop cultural competence

Systemic Barriers

  • Develop and implement an integrated monitoring system for assessing the impact of policy changes on Aboriginal offenders (March 2007)

Aboriginal Employee Representation

  • Develop an integrated human resource management strategy that addresses recruitment, development and retention of Aboriginal employees (September 2006)

CSC Cultural Competence

  • Provide training and awareness sessions to all CSC policy developers regarding the impact of policy on Aboriginal offenders (December 2006)

Strategy 3: Improve the continuum of care for Aboriginal Women offenders

Assessment

  • Fully implement the gender and culturally sensitive Security Reclassification Scale for Women Offenders (September 2006)
  • Work toward the development of a culturally sensitive actuarial dynamic risk assessment tool for women to target areas for change in subsequent fiscal year(s)

Programming

 

  • Implement Circles of Change at Edmonton Institution for Women (September 2006)
  • Develop an Aboriginal relapse prevention maintenance program (March 2007)
  • Work toward the development and implementation of a revised Spirit of a Warrior program to include substance abuse and gang affiliation components in subsequent fiscal year(s)

Interventions

 

  • Implement Pathways unit at Edmonton Institution for Women (August 2006)
  • Hold national gathering of Elders at Okimaw Ohci Healing Lodge to explore systemic issues impacting incarcerated Aboriginal women (December 2006)
  • Complete analysis of options of Exchange Service Agreement with Manitoba for accommodations for Aboriginal women (March 2007)
  • Work toward developing a structured assistance program for women serving life and long sentences in subsequent fiscal years(s)
  • Work toward assessing options for an Aboriginal women's community residential facility in Alberta in subsequent fiscal year(s)

Knowledge

 

  • Analyze research completed on needs of Aboriginal women to identify initiatives to address issues related to reintegration, health, employment and substance abuse (January 2007)

Strategy 4: Enhance collaboration

Internal Collaboration

  • Implement an integrated Aboriginal planning, reporting and accountability framework within CSC (September 2006)

Horizontal Collaboration

  • In collaboration with Indian and Northern Affairs Canada and Public Safety Canada, develop and implement an inter-departmental engagement strategy for issues impacting Aboriginal offenders (December 2006)

Aboriginal Community Engagement

  • Implement engagement strategy with Aboriginal communities and organizations that represent First Nations, Métis and Inuit people (March 2007)

2.5.6. Resources

The table below provides a summary of the resources for each of the strategies aimed at enhancing CSC's capacity to provide a continuum of culturally-appropriate interventions for First Nations, Métis and Inuit offenders.

Strategy

Financial resources
associated with strategy ($M)

2006-07

2007-08

2008-09

Develop and implement culturally appropriate interventions.

5.3

5.3

5.3

Address CSC internal s ystemic barriers and develop cultural competence

0.3

0.3

0.3

Improve the continuum of care for Aboriginal Women offenders

0.3

0.1

0.0

Enhance collaboration

0.3

0.3

0.3

TOTAL

6.2

6.0

5.9

Note: Depicted resources account for these specific plans and represent a small proportion of resources supporting ongoing activities with respect to Aboriginal offenders (see Section 2.8).

 

2.6 Mental Health

Priority:

Improved capacities to address mental health needs of offenders

2.6.1 Introduction

Providing an appropriate continuum of treatment from intake assessment to warrant expiry to address the mental health needs of offenders is not only necessary for legal and humanitarian reasons, but is also essential in assisting offenders to participate and benefit from correctional programs, thus contributing to rehabilitation efforts. To enhance CSC's ability to provide mental health services, partnerships across jurisdictions need to be strengthened and expanded.

The needs of men offenders requiring in-patient treatment beds are primarily met through the five regional treatment/psychiatric centres. For women offenders with significant mental health needs, small units that provide a higher level of staffing and therapeutic intervention have been established at each of the five women's institutions. As well, the Regional Psychiatric Centre in the Prairies and the Institut Phillipe-Pinel in the province of Quebec have units for the intensive treatment of women offenders. In regular institutions, psychologists, mental health nurses and others are able to provide only limited mental health support within the constraints of current resources.

Serious mental disorders are associated with other problems, including lack of stable housing and employment opportunities in the community, which increase the risk of re-offending. Offenders with mental disorders are often at higher risk of repeated arrests and incarcerations especially in the first few months following discharge. They are at a higher risk for failing to comply with treatment and for violating their parole conditions.43 Research has shown that transitional services for offenders with mental disorders are critical to achieving reintegration success.44 One of the greatest challenges facing CSC is to facilitate success by providing these support services.

43 Lurigio, A. J, et al. The Effects of Serious Mental Illness on Offender Re-entry . Federal Probation Vol 68, No. 2 September 2004.

44 Faenza , M. Statement of the Criminalization of Mental Illness. National Health Association News Release. www.mamh.org/newsroom/system/news.

2.6.2 The Challenges

Mental health problems are up to three times more common in correctional institutions than among the general population and there are increasing numbers of offenders with mental health disorders. As previously indicated, m ore than one out of ten men offenders and one out of four women offenders have been identified at admission as having mental health problems and this proportion has risen since 1997 (by 71% and by 100%, respectively).45

45 Source: CIPS.

CSC faces several challenges in optimizing quality mental health care and ensuring that offenders' needs are addressed while incarcerated and when released to the community.

Examples of such challenges include: the increasing costs of providing mental health care; the need for more comprehensive mental health screening and assessment of offenders; the need for enhanced capacity to provide both primary and intermediate mental health care; and the need for staff training specific to mental health. Mental health treatment centres require consistency in standards and approach, including a need to upgrade the physical condition of some facilities; consistent admission and discharge criteria; consistent interventions; an enhanced and consistent clinical staffing model; and a specialized security approach. Community support structures are also required in order to enhance the potential for offenders with mental disorders to successfully reintegrate.

2.6.3 Intended Public Safety Results

As there is a lack of information systematically collected on offenders with mental disorders, identifying performance indicators is a challenge. Currently, the only comprehensive information available is collected at reception (intake). CSC is aiming to improve its capability to capture data and to monitor results in this area in the coming years, with an early focus on the impacts of the new community mental health initiative that CSC is putting in place.

CSC will aim to achieve the following key result:

RESULT COMMITMENT46

Improved correctional results for federal offenders with mental disorders, as measured by:

  • A reduction in the percentage of federal offenders with mental disorders whose parole has been revoked, with or without a new conviction or charge, while under CSC supervision.
  • A reduction in the percentage of federal offenders with mental disorders returning to federal custody within two years of the end of their sentence.
  • A reduction in the percentage of federal offenders with mental disorders convicted of an offence within five years of the end of their sentence.

46 In the short term, CSC is limited to reporting results based on the mental health condition of offenders at admission. In the longer term, CSC will work toward improving its capability of reporting correctional results based on the mental health condition of offenders prior to their release into the community.

To achieve this result, CSC must work towards providing more effective and timely mental health interventions and services to offenders in institutions and communities, as well as enhancing community support capacity.

2.6.4 Strategies and Plans

CSC needs to provide a full-spectrum response to the broad and multi-dimensional mental health needs of offenders. CSC has developed and is working toward the implementation of an overarching Mental Health Strategy that has six components. Funding has been secured to implement the Community Mental Health component of the Mental Health Strategy over the next four years. In collaboration with the other government departments, CSC will work to secure funding for the five remaining components. All components of the Strategy are further described below, beginning with the unfunded components.

Strategy 1: Implement clinical screening and assessment process at intake (unfunded)

This would ensure that all offenders receive appropriate mental health screening at intake to identify the nature of mental health problems and full mental health history. Those with mental health problems receive prompt assessment and diagnosis and the results would be reflected in individual treatment plans and intervention strategies.

Strategy 2: Provide primary mental health care in all CSC institutions (unfunded)

This would ensure that health care professionals are available to provide, within the regular institutional setting, a front-line response to mental health needs, including treatment, ongoing psychological counselling and crisis intervention.

Strategy 3: Create intermediate mental health care units in selected men's institutions (unfunded)

This would provide daily mental health support for offenders with mental health disorders within regular institutions.

Strategy 4: Ensure consistent standards and approach in CSC mental health treatment centres (unfunded)

This would ensure that admission criteria, clinical interventions, clinical staffing ratios and adapted security models are in place and consistent across all CSC Mental Health treatment centres.

Strategy 5: Provide c oordination and leadership in delivery and development of mental health services (unfunded)

This would ensure leadership in the efficient delivery and continuous improvement of high quality, effective mental health services for offenders through: partnerships that enhance results and demonstrate federal leadership; knowledge development to support evidence-based planning and improvement; new methods and technologies; governance, standards and accountability measures; and appropriate training for staff.

The plans for the first five unfunded components of the Strategy are:

  • Business Case and Planning: Further develop and refine the business case and planning for these components of the Mental Health Strategy.
  • Horizontal Collaboration: Work with other government departments to advance the Mental Health Strategy.
  • Implementation of the Mental Health Strategy: Implement the remaining components of the Mental Health Strategy, subject to funding availability.

Strategy 6: Implement Community Mental Health Initiative (funded)

This initiative is meant to ensure that offenders requiring mental health services receive the best possible preparation for reintegration, continue to receive necessary support during release into the community, and are integrated into the community mental health system at the appropriate time with no loss of continuity in support.

The funds will be used to address discharge planning, transitional care, specialized mental health staff working out of selected parole offices to provide support to offenders with mental disorders in Community Correctional Centres (CCCs) and Community Residential Facilities (CRFs), annual mental health training for staff of selected parole offices, CCCs and CRFs, and funds for specialized services such as psychiatric and psychological interventions.

Plans in support of the Community Initiative include:

  • Community Mental Health Initiative: Continue the implementation of the community mental health component of the Strategy.

2.6.5 Measuring Progress

The table below provides a summary of the strategies and associated plans and milestones for improving CSC's capacity to address the mental health needs of offenders.

PLANS

MILESTONES FOR FISCAL YEAR 2006-07

Strategy 1: Implement clinical screening and assessment process at intake

Strategy 2: Provide primary mental health care in all CSC institutions

Strategy 3: Create intermediate mental health care units in selected men's institutions

Strategy 4: Ensure consistent standards and approach in CSC mental health treatment centres

Strategy 5: Provide coordination and leadership in delivery and development of mental health services

Business Case and Planning

Ongoing

Horizontal Collaboration

Ongoing

Implementation of Mental Health Strategy

Upon receipt of funding

Strategy 6: Implement community mental health initiative

Implementation of Community Mental Health Initiative

  • Finalize Evaluation Plan and Measurement Strategy to implement approved Results-based Management and Accountability Framework (RMAF) (September 2006)
  • Implement the initial phase of the national Community Mental Health training package (March 2007)
  • Hire 90% of new field staff positions (March 2007)

2.6.6 Resources

The table below provides a summary of the resources associated with the funded components of the strategy to improve CSC's capacity to address the mental health needs of offenders.

Strategy

Financial resources
associated with strategy ($M)

2006-07

2007-08

2008-09

Business Case and Planning

0.4

0.4

0.4

Horizontal Collaboration

0.0

0.0

0.0

Implement Community Mental Health Initiative

8.6

6.5

6.5

TOTAL

9.0

6.9

6.9

Note: Depicted resources account for these specific plans and represent a small proportion of resources supporting ongoing activities with respect to addressing the mental health needs of offenders (see Section 2.8).

 

2.7 CSC's Management Agenda

Priority:

Strengthened Management Practices

2.7.1 Introduction

As an active participant in the broader Government of Canada management and accountability agenda, CSC is devoting considerable attention to strengthening management practices within the organization in order to strengthen accountability, increase transparency, provide better service and results and uphold professional public service values. Given the complex and unique nature of the changing correctional environment, it is essential to ensure that the public safety impacts of all initiatives are vigorously assessed while addressing this management agenda.

2.7.2 The Challenges

CSC is an organization with approximately 16,000 employees, operating 365 days a year and 24 hours a day, with a budget of approximately $1.7 billion. CSC operates in all geographic regions of the country and employs staff across many disciplines.

In this context, the integration of human resources and business planning analysis into existing priorities and planning processes is essential to the effective achievement of our priorities. CSC will continue to refine the existing integrated business planning process to ensure it is transparent and accountable, and that business and strategic planning, resource management and performance monitoring continue to be effectively integrated. Performance monitoring systems at the individual and corporate levels are being aligned with corporate results commitments as outlined in this document.

In order to successfully integrate the notion of transparency and accountability at the corporate and individual levels, it will be essential to bring greater clarity to roles and responsibilities throughout the organization and to implement stronger governance models across national, regional, and local geographical boundaries and work-related disciplines. This will improve the development of policies and delivery of programs and will ensure more coherence in the provision of better correctional results for Canadians.

Promoting an organizational culture that integrates values and ethics into all decision making and that makes greater use of informal resolution of conflicts will be a major priority for improving CSC's management practices and operations. This effort will help inform decision-making, lower the cost of resolving conflicts, and improve trust within the organization, consistent with government-wide objectives.

Engaging employees in developing a workplace culture of effective internal communications is an important component of CSC's management agenda. Efforts in this area must be two-way, and listening to employee ideas, concerns and suggestions for achieving results will therefore be a major element of the approach.

CSC is one of the largest federal custodians of real property assets. Most facilities have not had the benefit of cyclical renewals or major infrastructure replacements over their life cycle. As a consequence, they have had to operate at or beyond their design capacities, placing increased demands on buildings and infrastructure and limiting planned and ongoing maintenance. Major redevelopment and investment is required to renew the asset base in order to ensure the provision of safe, secure and healthy environments that respond to the increasing needs of a changing offender profile. CSC is currently refining and extending its Accommodation Strategy and its corresponding long-term capital plan to respond to these changes and to meet the requirements for a comprehensive investment plan in accordance with Treasury Board real property policy.

2.7.3 Intended Results in Support of Public Safety

If CSC is to be successful in achieving correctional results in the priority areas identified in the previous sections in the coming years, it will have to develop the strongest possible management practices. Good delivery and good management practices go hand in hand. Within the broader context of the Management Accountability Framework, CSC will therefore continue in its efforts to improve management practices.

CSC will aim to achieve the following key result:

RESULT COMMITMENT

A stronger contribution to public safety in priority areas as measured by:

  • Achievement of targeted operational results in priority areas, as defined in previous sections.
  • Improvements in management practices as reflected in Management Accountability Framework assessments by the Treasury Board Secretariat and responses to employee surveys.

This year, CSC will develop indicators and benchmarks to determine success in the areas of values and ethics and internal communications. These two areas of emphasis are, of course, interrelated in achieving successful results.

2.7.4 Strategies and Plans

In order to enshrine strong management practices throughout the organization, special attention will be placed on ensuring roles and responsibilities are well defined; internal communications are disciplined; teamwork is sustained across organizational boundaries and across disciplines; and management approaches are transparent, with decisions that are based on public service values, quality and greater cost effectiveness. Four strategies have been developed to achieve this strategic priority.

Strategy 1: Clarify roles and responsibilities

This strategy will foster strong teamwork that is based on a clear understanding of the roles and responsibilities across boundaries and disciplines within CSC. Defining roles and responsibilities also reinforces accountability for results, increases transparency and addresses ambiguities and potential overlaps within different parts of the organization, ensuring greater cost efficiency.

Plans in support of this strategy include:

  • Succession Management: Develop an overall succession management framework for operational managers.
  • Operational Responsibilities: Clarify and strengthen the roles and responsibilities between national headquarters (functional) and regional (line) managers.
  • Program Evaluation: Establish clear roles and responsibilities for program evaluation between evaluation specialists and program managers.

Strategy 2: Enhance the values and ethics program and results

CSC is committed to a strengthened values and ethics program that responds to the nature of the correctional environment and the Values and Ethics Code for the Public Service and creates a stronger values-based workplace. This strategy is aimed at developing and implementing integrated plans that will build on existing programs to ensure that values and ethics are more fully incorporated into decision-making practices and are understood by employees at all levels within CSC.

Plans in support of this strategy include:

  • Values and Ethics Unit: Integrate existing programs such as Internal Disclosure under one umbrella to provide strategic direction for a coordinated ethics program in CSC.
  • National Values and Ethics Program: Implement program and collect baseline data to establish targets for future improvement.
  • National Informal Conflict Management System (ICMS): Develop and implement the system.
  • Strengthened Independent Audit Function: Further enhance the independence and effectiveness of the Audit Committee by increasing the number of external members.

Strategy 3: Improve internal communications

The responsibility for building strengthened capacity for effective internal communications is shared among management at all levels, employees, and communications and information specialists throughout the organization. It will be a major management focus during this reporting period. While the Commissioner will play a leadership role, managers play a key role in both upward and downward communication, and are responsible for bringing employees' concerns forward and ensuring staff receive a regular flow of information.

In furtherance of these objectives, input from national and regional consultations conducted during the winter of 2006 will be used to help develop a strategic framework and action plan and the appropriate products, services and tools to support and enhance CSC's internal communications capacity.

Plans in support of this strategy include:

  • Strategy and Action Plan: Develop and implement based on the consultative process.
  • New Products, Tools and Services: Develop deliverables as per the strategy and action plan.
  • Cross-sectional Staff Survey: Conduct a survey of a representative sample of operational, regional and NHQ staff at the end of the reporting period to determine where advances have been made and to identify areas for further improvement.

Strategy 4: Enhance the management of infrastructure needs and address facility rust-out

This strategy is aimed at developing a comprehensive investment strategy that rigorously examines CSC's infrastructure needs and population management requirements associated with the changing offender profile as well as increases in construction and maintenance costs. The investment strategy will identify immediate and long-term pressures and related additional resources required to exercise reasonable, safe, secure and humane control of offenders in CSC institutions and to provide effective supervision in the community.

At the same time, based on current resources, an exhaustive capital plan has been developed for 2006-07 to ensure that planned re-developments and investments are effectively implemented. In 2007-08, if a revised resourcing strategy is supported, it will be integrated into the accommodation strategy and related capital plan for implementation in accordance with Treasury Board real property management guidelines and policies.

Plans in support of this strategy include:

  • Investment Strategy Development: Develop a more comprehensive investment strategy to identify long-term pressures and related new resource responses to address sustainability issues.
  • An updated Comprehensive Capital Plan: Develop an updated capital plan to implement short- and long-term plans.

2.7.5 Measuring Progress

The table below provides a summary of the strategies as well as the plans and milestones for strengthening CSC's management practices.

PLANS

MILESTONES

Strategy 1: Clarify roles and responsibilities

Succession Management

  • Finalize framework design and commence implementation (March 2007)

Operational Responsibilities

  • Complete study and implement decisions (September 2006)

Program Evaluation

  • Finalize study and implement decisions (December 2006)

Strategy 2: Enhance the values and ethics program and results

Values and Ethics Unit

  • Complete staffing of the unit (September 2006)

National Values and Ethics Program

  • Finalize design and commence implementation (March 2007)

National Informal Conflict Management System (ICMS )

  • Develop system, establish a baseline to monitor and track progress in order to set targets for improvements (November 2006)

Strengthened Independent Audit Function

  • Ongoing

Strategy 3: Improve internal communications

Strategy and Action Plan

  • Develop strategy (Completed April 2006)
  • Roll out action plan (throughout the year)

New Products, Tools and Services

  • Deliverables (March 2007)

Cross-sectional Staff Survey

  • Complete survey (March 2007)

Strategy 4: Enhance the management of infrastructure needs and address facility rust-out

Investment Strategy Development

  • Develop investment strategy (September 2006)

An updated Comprehensive Capital Plan

  • Finalize the updated capital plan as per approved investment strategy (December 2006)

2.7.6 Resources

The table below provides a summary of the resources associated with each of strategies to strengthen CSC's management practices.

Strategy

Financial resources
associated with strategy ($M)

2006-07

2007-08

2008-09

Clarify roles and responsibilities

0.3

0.3

0.3

Enhance the values and ethics program and results

0.8

1.0

1.0

Improve internal communications

0.2

0.2

0.2

Enhance the management of infrastructure needs and address facility rust-out

0.4

0.4

0.4

TOTAL

1.7

1.9

1.9

Note: Depicted resources account for these specific plans and represent a small proportion of resources supporting ongoing activities with respect to management (see Section 2.8).

2.8 Departmental Priorities by Strategic Outcome

The following table presents CSC's strategic priorities, the Program Activity Architecture (PAA) activities that support the priority (although not necessarily exclusively), and expected results as outlined in the PAA. Financial figures represent CSC's total budget. Planned spending for the specific plans and priorities outlined in this document are depicted in previous sections.

STRATEGIC OUTCOME:
Offenders are safely and effectively accommodated and
reintegrated into Canadian communities

Departmental Priorities

Type

PAA Program Activity - Expected Result

CSC Budget Base ($ Millions)

2006-07

2007-08

2008-09

Community transition: Safe transition of offenders into the community

On going

Rehabilitation and Case Management

Expected Result: Safe reintegration to the community consistent with the law.

416.1

405.2

399.1

Safety and Security in Institutions: Safety and security for staff and offenders in our institutions

On going

Care and Custody

Expected Result:  Reasonable, safe, secure and humane custody

1,091.7

1,083.1

1,104.1

Aboriginal offenders47: Enhanced capacities to provide effective interventions for First Nations, Métis and Inuit offenders

On going

Rehabilitation and Case Management

Expected Result: Safe reintegration to the community consistent with the law.

21.1

21.3

21.6

Mental health48: Improved capacities to address mental health needs of offenders

On going

Care and Custody

Expected Result:  Reasonable, safe, secure and humane custody

22.4

22.6

22.9

Management: Strengthened Management Practices

On going

Corporate Services

Expected Result:
Direction and support so that offenders are safely and effectively accommodated and reintegrated into the community.

158.1

161.4

161.4

TOTAL

 

 

1,709.4

1,693.6

1,709.1

47 Costs linked to static/dynamic security and institutional services are included in the strategic priority on "Safe and Secure Institutions" .
48 Ibid.