Backgrounder: Aboriginal Inmates
The Numbers Reveal a Critical Situation
- Established in 1991,
the Royal Commission on Aboriginal Peoples (RCAP) concluded that
“the justice system has failed Aboriginal people,” the key indicator
of which was their steadily increasing and disproportionate
representation in Canadian correctional facilities.
- While Aboriginal peoples comprise 2.7 percent of the adult
Canadian population, approximately 18.5 percent of offenders now
serving federal sentences are of First Nations, Métis and Inuit
ancestry (Correctional Service Canada, 2006.) Approximately 68
percent of federal Aboriginal offenders are First Nations, 28
percent are Métis and 4 percent Inuit.
- This overrepresentation is particularly acute in the West, but it
exists across Canada. In the Prairies, where Aboriginal peoples
comprise a larger proportion of the general population, they account
for a staggering 60 percent of offenders.
- Aboriginal women are even more overrepresented than Aboriginal men
in the criminal justice system, representing 30 percent of women in
federal prisons.
- While the federally incarcerated population in Canada declined by
12.5 percent from 1996 to 2004, the number of First Nations people
in federal institutions increased by 21.7 percent. The number of
incarcerated First Nations women also increased — by 74.2 percent
over the same period.
- Aboriginal youth are also overrepresented among criminalized young
people. Research shows that Aboriginal young people are criminalized
and jailed at earlier ages and for longer periods of time than
non-Aboriginal young people.
- In 2000, 41.3 percent of all federally incarcerated Aboriginal
offenders were 25 years of age or younger. First Nations youth are
the fastest growing demographic group in Canada, and it is expected
that this will have a significant impact on the criminal justice
system.
- Should the current trend continue unchecked, the Aboriginal
population in Canada’s correctional institutions could reach the 25
percent mark in less than 10 years.
Factors Impacting the Overrepresentation of Aboriginal People in
Prisons
- The higher rate of incarceration for Aboriginal peoples has been
linked to systemic discrimination and attitudes based on racial or
cultural prejudice, as well as economic and social deprivation,
substance abuse and a cycle of violence across generations.
- As a group, Aboriginal offenders tend to be younger, are more
likely to be incarcerated for a violent offence, have much higher
needs (relating to employment and education, for example) and have
had more extensive involvement with the criminal justice system as
youths.
- An extremely high percentage of Aboriginal offenders report early
drug and/or alcohol use (80 percent), physical abuse (45 percent),
parental absence or neglect (41 percent) and poverty (35 percent) in
their family backgrounds. Twenty-eight percent of Aboriginal
offenders had been raised as wards of the community, and 15 percent
had been sent to residential schools. Aboriginal offenders also
suffer from a higher incidence of health problems.
The Outcome Gaps for Aboriginal Inmates
- The Correctional Service relies on risk assessment tools that have
been repeatedly found to overclassify Aboriginal offenders
unjustifiably. Aboriginal offenders are initially placed in higher
levels of security and are placed in minimum-security institutions
at only half the rate of non-Aboriginal offenders.1
- Like their male counterparts, Aboriginal women are overrepresented
in the maximum-security prison population, making up 46 percent of
federally sentenced women in the maximum-security population, 35
percent in the medium-security population and 23 percent in the
minimum-security population in 2003.
- Placement in maximum security and segregation reduces access to
programming intended to prepare inmates for eventual release and to
increase their chances for successful reintegration into their
communities.
- Aboriginal offenders are admitted to segregation more often than
non-Aboriginal offenders.
- The proportion of full parole applications resulting in reviews by
the National Parole Board is lower for Aboriginal offenders, due in
part to high full parole waiver rates.
- The grant rates at full parole for Aboriginal offenders fall below
the rates for non-Aboriginal offenders. Aboriginal offenders are
released and supervised on statutory release at a significantly
higher rate.
- Longer periods of incarceration and more statutory releases for
Aboriginal offenders have contributed to less time in the community
for programming/intervention than for non-Aboriginal offenders.
There has been an increase in the number and percentage of
Aboriginal offenders suspended/temporarily detained over the past
few years.
- The proportion of Aboriginal offenders under community supervision
(31 percent) is significantly smaller than the proportion of
non-Aboriginal offenders (41 percent) serving their sentences on
conditional release in the community.
- Parole is more likely to be revoked for Aboriginal offenders than
non-Aboriginal offenders. The rate of revocation for breach of
parole conditions (i.e., no new criminal offence) is higher for
Aboriginal offenders.
- Aboriginal offenders are re-admitted to federal custody (two-year
post-warrant expiry date) more frequently than non-Aboriginal
offenders, with a higher percentage of re-admissions for a Schedule
I (violent) offence.
- Aboriginal offenders continue to be overrepresented as a
proportion of offenders referred for detention and detained compared
to the other offender groups. In 2004–2005, Aboriginal offenders
accounted for 30.4 percent of all offenders referred for detention
and 30.7 percent of offenders detained, although they represent 18.5
percent of the federally incarcerated population serving determinate
sentences.
- Correctional Service’s own statistics regarding correctional
outcomes for offenders confirm that, despite years of task force
reports, internal reviews, national strategies, partnership
agreements and action plans, there has been no significant progress
in improving the overall situation of Aboriginal offenders during
the last 20 years.
Recommendations for Action
- There are significant challenges in bridging the gap between
traditional correctional approaches, and Aboriginal methods of
justice and reconciliation. The ongoing support and involvement of
elders, Aboriginal liaison officers, community representatives and
Aboriginal organizations is viewed as key to closing the outcome
gaps for First Nations, Métis and Inuit offenders.
- Advocates for Aboriginal inmates have long stressed that
Aboriginal people and Aboriginal organizations must be directly
involved in developing and providing appropriate programs, and
actively involved in the evaluation of current assessment tools used
by CSC.
- In his 2005–2006 Annual Report, the Correctional Investigator
recommended that, in the next year, the Correctional Service:
- implement a security classification process that ends the
overclassification of Aboriginal offenders;
- increase timely access to programs and services that will
significantly reduce time spent in medium- and maximum-security
institutions;
- significantly increase the number of Aboriginal offenders housed
at minimum-security institutions;
- significantly increase the use of unescorted temporary absences
and work releases;
- significantly increase the number of Aboriginal offenders
appearing before the National Parole Board at their earliest
eligibility dates;
- build capacity for and increase the use of section 84 and section
81 agreements with Aboriginal communities2; and,
- significantly improve (above the required employment equity level)
the overall rate of its Aboriginal workforce at all levels in
institutions where a majority of offenders are of Aboriginal
ancestry.
1 Arbour
Report (1996); Auditor General of Canada (2003);
Canadian Human Rights Commission (2003); Cheryl
Webster and Tony Doob (2004); Corrections
Research Branch of the Department of Public
Safety (2004).
2 Sections 81 and 84 of the
Corrections and Conditional Release Act provide for the direct
involvement of Aboriginal communities in supporting timely
conditional release.
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