Speaking Notes for
Mr. Howard Sapers, Correctional Investigator,
33rd Annual Report to Parliament
October 16, 2006
As Correctional Investigator, my job is to be an independent
Ombudsman for federal offenders. It’s also my role to review and
make recommendations on the Correctional Service’s policies and
procedures, to ensure that areas of concern are identified and
appropriately addressed.
My mandate expresses an important component of the criminal
justice system.
The Office of the Correctional Investigator reflects Canadian
values of respect for the law, for human rights, and the public’s
expectation that correctional staff and senior managers are
accountable for the administration of law and policy on the
public’s behalf. Good corrections after all equals public safety.
Last year when my Annual Report was released I shared my findings
with Canadians that federal penitentiaries were quickly becoming
warehouses for the mentally ill. I recommended that the Correctional
Service of Canada immediately secure and commit adequate funding for
the implementation of its Mental Health Strategy.
Unfortunately, the money has not come and the Correctional Service
has not been able to address my recommendation. The mental health
services offered to these offenders continues to be seriously
deficient.
While not abandoning the issue of mental health services, this
year’s Report highlights a number of other concerns that continue to
hamper the Correctional Service’s delivery of both its legal and
policy obligations. Areas of ongoing concern for my Office include
the inadequate delivery of health care services; insufficient focus
on the particular needs of women in prison; and the need to improve
the safety and security of the prison environments.
Today, however, I would like to direct your attention one
overwhelming issue requiring urgent attention - the growing
crisis regarding Aboriginal inmates.
The experience of Canadian Aboriginal peoples and the justice
system has been described as “Canada's national disgrace”.
The over-representation of natives in Canada's prisons and
penitentiaries is well-known: nationally, Aboriginal people are less
than 2.7% of the Canadian population but comprise almost 18.5 % of
the total federal prison population.
For women, this over-representation is even more acute – they
represent 32 % of women in federal penitentiaries.
Alarmingly, this huge over representation has grown in recent
years. While the federal inmate population in Canada actually went
down 12.5% between 1996 and 2004, the number of First Nations people
in federal institutions increased by 21.7%. This is a 34% difference
btw Aboriginal and non Aboriginal inmates. Moreover, the number of
federally incarcerated First Nations women increased a staggering
74.2% over this period.
While the Correctional Service is not responsible for the social
conditions and policy decisions which help shape its offender
population, it is responsible for operating in compliance with the
law and ensuring all offenders are treated fairly.
It is therefore with grave concern I am underscoring today that
the Correctional Service of Canada falls short of this standard by
allowing for systemic discrimination against Aboriginal inmates.
For example:
- Inmates of First Nations, Métis and Inuit heritage face
routine over-classification resulting in their placement in
minimum security institutions at only half the rate of
non-Aboriginal offenders.
- The over-classification for Aboriginal women is even worse.
For example, at the end of September, native women made up 45
percent of maximum security federally sentenced women, 44
percent of the medium security population and only 18 percent of
minimum security women.
- This over classification is a problem because it means
inmates often serve their sentences far away from their family
and the valuable support of other community members, friends and
supports such as Elders.
- Aboriginal offenders are placed in segregation more often
than non-Aboriginal offenders.
- Placement in a maximum security institution and segregation
limits access to rehabilitative programming and services
intended to prepare inmates for release and successful
reintegration into society.
- Aboriginal inmates are released later in their sentences
than other inmates.
- The proportion of Full Parole applications resulting in
reviews by National Parole Board is lower for Aboriginal
offenders.
In short, as stated by the Canadian Human Rights Commission, the
general picture is one of institutionalized discrimination. That is,
Aboriginal people are routinely disadvantaged once they are placed
into the custody of the Correctional Service.
The higher rates of parole failure and recidivism for Aboriginal
offenders compared to non-Aboriginal inmates are in part due to the
Correctional Service’s inability to consistently manage Aboriginal
inmates in a culturally responsive and non-discriminatory manner.
As a consequence, longer periods of incarceration and more
Statutory Releases, as opposed to parole, for Aboriginal offenders
contribute to less time in the community for programming and
supportive intervention than for non-Aboriginal offenders.
The proportion of Aboriginal offenders under community
supervision is significantly smaller than the proportion of
non-Aboriginal offenders serving their sentences on conditional
release in the community.
Aboriginal offenders continue to be over-represented as a
proportion of offenders referred for detention and ultimately
detained compared to the other offender groups.
Parole is more likely to be revoked for Aboriginal offenders than
non-Aboriginal offenders. The rate of revocations for breach of
parole conditions (i.e., no new criminal offence) is higher for
Aboriginal offenders.
Aboriginal offenders are re-admitted to federal custody more
frequently than non-Aboriginal offenders, and too often this cycle
of inequitable treatment begins again. To break this cycle, the
Correctional Service must do a better job at preparing Aboriginal
offenders while in custody, and provide better support while in the
community.
The outcome gaps are even more pronounced when looking at the
situation of Aboriginal woman offenders.
The 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 measurable
improvement in the overall situation of Aboriginal offenders during
the last 20 years.
To the contrary, the gap in outcomes between Aboriginal and other
offenders continues to grow. Clearly, more commitment and resources
are required to address this troubling trend. Today, I call on the
Correctional Service of Canada to act swiftly to strengthen the
implementation of its Strategic Plan for Aboriginal Offenders
by fully adopting the following recommendations within the year:
- Implement a security classification process that ends the
over-classification of Aboriginal offenders;
- Significantly increase the number of Aboriginal offenders
housed at minimum security institutions;
- Increase timely access to programs and services that will
significantly reduce time spent in medium and maximum security
institutions;
- Significantly increase the use of unescorted temporary
absences and work releases programs to assist in supporting safe
and timely community reintegration;
- Significantly increase the number of Aboriginal offenders
appearing before the National Parole Board at their earliest
eligibility dates;
- Build capacity for and increase use of agreements which
provide for the direct involvement of Aboriginal communities in
supporting timely conditional release; and
- Significantly increase the number of Aboriginal people
working at all levels in the Service, and especially at
institutions where a majority of offenders are of Aboriginal
ancestry.
Equitable treatment of Aboriginal inmates is required by law. It
is also a human rights and public safety issue.
The vast majority of inmates are released back into communities
across Canada. It is beneficial for everyone if these men and women
return to their home communities having received fair and adequate
treatment from the Correctional Service while incarcerated.
In closing, I would like to leave you with a few notable facts:
- Four in ten federally incarcerated Aboriginal offenders are
25 years or younger.
- First Nation youth are the fastest growing demographic in
Canada.
- HIV and Aids are much more prevalent among Aboriginal
people. The lack of a full range of harm reduction strategies
disproportionately affects them.
- Should the current trends continue unchecked, experts
project the Aboriginal population in Canada’s correctional
institutions could reach the 25% mark in less than 10 years.
Clearly, the need to do better is obvious and urgent. My message
to the correctional service is walk your talk and make real progress
a priority. My message to government is give the Service the
resources required to get the job done.
Thank you.
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