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Correctional
Investigator's Analysis of CSC Action Plan in Response to the Report of the
Canadian Human Rights Commission (2003)
On February 17,
2005, the
Correctional Service of Canada (CSC) issued its responses to the Canadian Human
Rights Commission (CHRC) report entitled Protecting Their Rights, A Systemic
Review of Human Rights in Correctional Services for Federally Sentenced Women
and released December 2003. What follows is a preliminary analysis of that
action plan. This is a working document and will be updated as new information becomes
available.
RECOMMENDATION 1
(Accept)
It is recommended that the Correctional Service of Canada
develop and implement a needs-assessment process that responds to the needs of
federally sentenced women, including Aboriginal women, women who are members of
racialized groups and women with disabilities.
CSC Action |
Action |
Timeframe |
At the consultation with stakeholders, CSC further committed
that the Research Branch will review the current wording of the DFIA tools.
|
March 31, 2005 |
The field test of the revised DFIA at the women's institutions
will be conducted over a one- to two-year period. Given the number of
admissions annually, to ensure that sufficient data are collected to allow
for analysis of results for the various groups identified by the CHRC -
Aboriginal, racialized and disabled women - the field test cannot be done
over a shorter period. The plan for validation testing for women offenders
will be completed for the start date of the field test. The results of the
field test will be shared with the CHRC. |
Field test: Fiscal Year (FY) 2005-2006 & 2006-2007
Results to CHRC: by mid FY 2007-2008
Decision: by end of FY 2007-2008
Implementation: FY 2008-2009
|
DCW to coordinate review of the Women's Institutions -
Offender Intake Assessment Content Guidelines. |
June 30, 2005 |
OCI Comments |
- There is a concern that the Research Branch does not employ a women-centered
perspective in developing its actuarial tools. As such, development of
any new tool is unlikely to take into consideration the unique
socio-cultural-historical contexts of diverse women offender
populations.
- Upon further enquiry, OCI found that none of the "external
experts" that were engaged in the development of the DFIA tools had recognized/specialized
expertise in women-centered analyses.
- Women offenders should be consulted in the development of risk
assessment tools.
- In sum, if the same theoretical framework continues to be used in
the on-going development of CSC's actuarial tools, CSC is very likely to
develop tools that will remain discriminatory against women offenders.
Consultation with women offenders and drawing from
recognized/specialized external expertise are essential steps in the
development of a valid risk assessment strategy.
|
CSC Action |
Action |
Timeframe |
Related Requirement: Correctional Plans.
This related issue was identified during the CSC stakeholders consultation on
the CHRC recommendations.
Contingent on the consent of the women, outside stakeholders
will participate in the development of plans for the women currently housed
at the Nova Secure Unit as well as two women housed in the Secure Units at
EIFW and GVI respectively. |
By February 28, 2005 |
OCI Comments |
- Review of the correctional
plans seems like a positive step, however, if the same
non-contextualized assessment tools continue to be used by the Service,
too many women will remain over-classified and over-programmed.
|
RECOMMENDATION 2(a)
(Accept
in principle)
It is recommended that the Correctional Service of Canada
create a security classification tool explicitly for federally sentenced women,
one that takes into consideration the low risk posed to public safety by most
women, within one year.
CSC Action |
Action |
Timeframe |
Gender-informed initial security classification tool:
CSC will proceed with the development of a gender-informed
initial security classification tool by external expert(s). This is a
multi-year project, not only because of the complexity of development but
also the need for a lengthy field test to gather enough data given the
relatively few women admitted each year. |
Request for proposal: March 31, 2005
Research design: FY 2005-2006
Field test: FY 2006-2007 & 2007-2008
CSC decision: FY 2008-2009
Implementation: FY 2009-2010 |
OCI Comments |
- Same concerns as discussed in Recommendation 1.
- The timeframe recommended by
the CHRC was to have this task completed within one year (December 2004).
The Service expects to fully implement the new tool by FY 2009/10. Moreover,
the Service publicly committed to undertaking this activity 6 months
ago, yet the first step (the Request for Proposal) has still not been
completed.
|
CSC Action |
Action |
Timeframe |
Gender-informed
reclassification tool:
Field testing
of the gender-specific SRSW is complete. The tool has been finalized for
external review. The external review occurred in mid-January 2005. The
results will be presented to the CSC Executive Committee for decision on next
steps.
|
External
review: mid-January 2005
Results to Executive Committee: March 2005
Implementation: FY 2005-2006 As soon as the scale is implemented
|
OCI Comments |
- The SRSW was recently
reviewed externally; however, none of the experts had
recognized/specialized expertise in conducting women-centered correctional
research.
|
CSC Action |
Action |
Timeframe |
Related
Requirement: Review and analyse the impact of the correctional
environment on women offender risk and needs. This related issue was
identified during the CSC stakeholders consultation on the CHRC recommendations.
CSC committed to initiating an exploration of how to assess the impact of the
correctional environment on women offender needs and level of risk.
a)
As
a first step, CSC will develop a climate indicator and profiling model for
women's institutions. This is a multi-year project, which will require 2 or 3
years of data collection, consultation and analysis.
b)
Recognizing
the potential impact of the institutional environment on offender behaviour,
CSC will invite academic institutions to pursue with their graduate students
the framing of possible methodologies specifically for women's institutions.
|
Preliminary model to be completed in FY 2007-2008
Letter to academic institutions by March 31, 2005
|
OCI Comments |
- The first step of this initiative (developing climate indicator
and profiling model) is critical as it will impact on all of the next
steps for this research. The concern is that if the basis is flawed, so
will be the research results. A women-centered perspective is essential.
- It is important that the Service engage academics that work
within a women-centered perspective in order to properly inform the
research project.
- This activity is almost
completed; however, there are still concerns that the tools that are
being used to assess the women's security classification are the very
same tools that classified these women as maximum security in the first
place.
|
CSC Action |
Action |
Timeframe |
Related
Requirement: Review of classification level of max women. This related
issue was identified during the CSC stakeholder consultation on the CHRC
recommendations.
The
Wardens of the women's institutions will ensure that the case of each woman
assigned a max classification is reviewed and that the behavioural and
management expectations in support of a safe reduction in her classification
are clearly identified. |
December 2004-March 2005
|
OCI Comments |
- The first step of this initiative (developing climate indicator
and profiling model) is critical as it will impact on all of the next
steps for this research. The concern is that if the basis is flawed, so
will be the research results. A women-centered perspective is essential.
- It is important that the
Service engage academics that work within a women-centered perspective
in order to properly inform the research project.
- This activity is almost
completed; however, there are still concerns that the tools that are
being used to assess the women's security classification are the very
same tools that classified these women as maximum security in the first
place.
|
RECOMMENDATION 2(b)
(Accept in
principle - Joint action with Public Safety and Emergency Preparedness Canada)
It is recommended that the Correctional Service of Canada
commission an independent study of the possible discriminatory impact of
section 17(e) of the Corrections and Conditional Release Regulations on
federally sentenced offenders with disabilities.
CSC Action |
Action |
Timeframe |
CSC proposes
to jointly conduct with PSEPC an exploratory review of the impact of
paragraph 17(e) on a sample of women offenders, which will complement the
audit on accommodation of disabilities. |
Project plan: March 1, 2005
Draft report: December 30, 2005
Final report: March 31, 2006 |
OCI Comments |
- The CHRC recommended an independent
study. However, the CSC has decided to reject this essential aspect of
the recommendation. It is unclear whether the CSC or PSEPC have the
internal capacity and the required expertise to conduct this review –
especially within the given timeframes.
|
CSC Action |
Action |
Timeframe |
CSC will
ensure that the scope of work for the development of the gender-informed
initial security classification tool referenced under 2(a) above specifies
that the tool must respond to this as well as all other elements of the
legislative frame. |
See 2(a) above |
Complete the
two human rights audits: Privacy and Access to Information and Accommodation
of Disabilities. |
By March 2006 (refer to recommendation 18) |
OCI Comments |
- In absence of an independent
study as recommended by the CHRC, it is unclear how the Service will
objectively determine its legal compliance.
|
RECOMMENDATION 2(c)(i)
(Accept - To
action when tool is implemented)
It is recommended that the Correctional Service of Canada
act immediately to address the issues concerning the disproportionate number of
federally sentenced Aboriginal women classified as maximum security by
immediately reassessing the classification of all Aboriginal women currently
classified as maximum security using a gender-responsive reclassification tool.
CSC Action |
Action |
Timeframe |
The SRSW will
be used, when implemented in FY 2005-06, to reassess the security
classification of all maximum-security Aboriginal women on a priority basis.
|
Upon implementation of the SRSW |
See also the
related requirement response under recommendation 2(a) respecting the
immediate review of all maximum-security women. |
OCI Comments |
- The CHRC recommended that the CSC acts on this issue immediately.
However, the CSC has given an imprecise timeframe (in the next 15
months) for acting on this recommendation. It should be noted that the
CHRC report was released back in December 2003.
- It is not clear whether the
SRSW was developed using a women-centered theoretical framework. Therefore,
there is a concern that this new tool may also be discriminatory and
result in over-classification of women.
|
RECOMMENDATION 2(c)(ii)
(Do not
accept)
It is recommended that the Correctional Service of Canada
act immediately to address the issues concerning the disproportionate number of
federally sentenced Aboriginal women classified as maximum security by changing
the blanket policy of not allowing maximum security women at the Healing Lodge
to a policy that is based on individual assessment.
CSC Action |
Action |
Timeframe |
CSC will implement a "healing lodge readiness" assessment
process as a pilot project. The proposed preliminary parameters are:
- the development of a "healing lodge readiness"
framework.
- an annual case by case review of
maximum-security Aboriginal women involving OOHL staff and champions,
the Elders, the Aboriginal liaison officer and case management staff
from the Secure Unit where the woman resides.
- Results will be used by the Kikawinaw (warden)
and the OOHL champion at each regional institution to recommend to the
institutional head, the suggested programs/interventions, which will
assist those women who are considered not ready or, for women considered
ready, a re-classification of the woman and a transfer to the OOHL.
|
Healing Lodge
readiness assessment frame: April 30, 2005
Implementation: May 31, 2005
Evaluation / review: September 2006 |
OCI Comments |
- This recommendation was rejected.
- It is notable that Madame
Justice Arbour also made this recommendation in her landmark report in
1996.
- The OCI is concerned that a "healing lodge readiness" framework may
be discriminatory and considered paternalistic. The OCI believes that women,
themselves, should decide whether they are ready to heal. It would be
unlikely that the Service would develop a similar process for
non-Aboriginal Christian women designed to assess whether they were ready
to heal and whether they would be granted access to spiritual and
religious programs.
- Gaining access to the Lodge is already extremely difficult, and the
OCI believes that a new readiness framework may make transfers to
Healing Lodges even harder.
- Case-by-case reviews will be difficult to conduct unless more
resources are committed by the Service. Elders and Aboriginal liaison staff
in the women's facilities are already unable to meet the basic spiritual
demands of women in the max units. Additional responsibilities require
additional resources.
- Given that the CSC is getting ready to transfer control of the
Lodge to the Nakaneet band, will any of these activities actually take
place?
|
RECOMMENDATION 3
(Under
Review)
It is recommended that Policy Bulletin No. 107, which
requires offenders serving a minimum life sentence for first or second degree
murder to be classified as maximum security for at least the first two years of
federal incarceration, be rescinded immediately in favour of fair and balanced
individual assessment.
CSC Action |
Action |
Timeframe |
This is a corporate policy issue that is currently being
reviewed.
Pending completion of the CSC review of the policy, all cases of
newly admitted women subject to Policy Bulletin 107 will automatically be
reviewed by the DCW (there have been 2 reviews to date). The Office of the
Correctional Investigator (OCI) will be advised as those cases arise.
|
Ongoing |
OCI Comments |
- The OCI agrees with the CHRC that the 2 year policy is illegal
and should be rescinded immediately.
- No timeframe has been provided for this activity.
- Reviews of newly admitted
women subject to Policy Bulletin 107 are being completed by the DCW.
However, the "re-assessments" are being conducted using the same tools
that have been shown to be discriminatory. Therefore, this initiative
may not have any real practical impact.
|
RECOMMENDATION 4
(Under
consideration)
It is recommended that the Correctional Service of Canada
implement a pilot needle exchange program in three or more correctional
facilities, at least one of which should be a women's facility, by June 2005.
The results of the pilot project should be monitored, disclosed and assessed
within two years.
CSC Action |
Action |
Timeframe |
CSC is committed to the continuous improvement of its
application of the National Drug Strategy. CSC is working closely with
Canadian public health agencies to ensure that harm reduction measures
proposed, such as the needle exchange program, are applicable to a
correctional environment. |
Consultation with Canadian public health agencies in winter 2004
/ spring 2005 |
OCI Comments |
- This recommendation has, essentially, been rejected. The rates
of infectious diseases are drastically higher in prison than those found
in the community. The rates are also much higher in the women offender
population than the male offender population. A harm-reduction strategy
that includes a needle exchange program is required to prevent the
further spread of infectious (and sometime deadly) diseases. Such a strategy
will prevent the release of newly infected women offenders in the
community. The Ontario Medical Association
recently endorsed the report of the Canadian HIV/AIDS Legal
Network which calls for needle exchange programs in prisons and
jails across the country.
|
CSC Action |
Action |
Timeframe |
CSC is implementing the Safer Tattooing Practices Initiative
pilot. A women's institution is part of the pilot. Once the evaluation
results are available, CSC will consider next steps in harm reduction
initiatives. |
Implementation: FY 2005-2006 until end of FY 2007-2008
Evaluate:
FY 2007-2008 |
OCI Comments |
- It is unclear whether the pilot will be externally evaluated.
- The Service should conduct an
evaluation sooner than FY 2007/08.
|
RECOMMENDATION 5(a)
(Accept)
It is recommended that the CSC take immediate steps to
ensure the National Operational Protocol – Front Line Staffing be strictly
respected, viz the National Operational Protocol – Front Line Staffing be made
into a formal policy in the form of a Commissioner's Directive or Standard
Operating Procedure.
CSC Action |
Action |
Timeframe |
The National Operational Protocol – Frontline Staffing is
being finalized as a policy document. There will be consultation, which will
include stakeholders. |
Consultation on draft policy: March 2005
Promulgation: September 2005
|
OCI Comments |
- The OCI does not support the use of men as front-line staff in
women's prisons.
- The OCI has yet to be consulted on this draft Policy.
- Will women offenders be also consulted?
|
RECOMMENDATION 5(b)
(Accept in
part)
It is recommended that the CSC take immediate steps to
ensure the National Operational Protocol – Front Line Staffing be strictly
respected, viz that the ten day Women-Centered Training be mandatory for
everyone who works in a women's facility.
CSC Action |
Action |
Timeframe |
CSC will maintain the current process, whereby staff in the
women's institutions are provided the WCTP training in accordance with the
NTS. |
Complete |
OCI Comments |
- Complaints of harassment and
discrimination against both front-line staff and non-front-line staff remain
a serious OCI concern. Given the impact on women offenders, the 10-day
training should be mandatory.
|
RECOMMENDATION 5(c)
(Accept in
part)
It is recommended that the CSC take immediate steps to
ensure the National Operational Protocol – Front Line Staffing be strictly
respected, viz that a refresher course on the Women-Centered Training for
Correctional Service front-line staff be offered annually.
CSC Action |
Action |
Timeframe |
A one-day refresher training program for staff working on the
frontline in women's institutions to be delivered every second year will be
developed and implemented in FY 2005-2006. |
Develop and implement a one-day refresher program: FY 2005-2006
|
OCI Comments |
- Given the situation observed at women facilities, the CHRC
recommended annual training.
- It is uncertain if the
Service will have the resources to develop and implement the refresher
program during FY 2005/06.
|
RECOMMENDATION 5(d)
(Accept)
It is recommended that the CSC take immediate steps to
ensure the National Operational Protocol – Front Line Staffing be strictly
respected, viz that the implementation of the National Operational Protocol be
assessed by an independent external evaluator after two years.
CSC Action |
Action |
Timeframe |
MCF:
CSC will develop and implement a MCF for the National
Operational Protocol. The MCF will be administered once in each fiscal
year commencing in FY 2005-2006. As per the MCF process, the results and
corrective action will be reviewed by Executive Committee. The MCF results
will also be used for accountability contracts at all levels of supervision
and management at the institutional level. |
FY 2005-2006 and 2006-2007 |
OCI Comments |
- Again, the CHRC recommended
that immediate steps be taken, but full implementation will only
be completed by FY 2006/07 and the evaluation will be completed only by
FY2007/08.
|
CSC Action |
Action |
Timeframe |
Independent Evaluation:
CSC will arrange for an independent evaluation. The MCF results
(and any other data such as complaints and grievances on compliance issues
with respect to the National Operational Protocol) will be provided to
the independent evaluator for use in the independent evaluation. The
independent evaluation, therefore, will take place in FY 2007-2008. |
FY 2007-2008 |
OCI Comments |
- There are currently significant coding problems when it comes to
complaints and grievances about the National Operational Protocol. Complaints
of this nature get logged as staff performance, discrimination, and/or
harassment. It will be important that the independent evaluator reviews
all these cases.
|
CSC Action |
Action |
Timeframe |
inmate Consultation:
In addition to the MCF process, the DCW or a senior manager will
meet annually with the Inmate Committees at the regional institutions to
review and discuss compliance issues with respect to the National Operational
Protocol; results and corrective action, if required, will be discussed
and resolved with the wardens individually and as a group. |
Ongoing: commencing in FY 2005-2006 |
OCI Comments |
- Inmate consultation on these issues will be invaluable; however, the
Service will need to properly consult with the inmate committees. In
the past, inmate committee chairpersons have been asked for input on
various, complex topics, but they have not been given adequate time to
prepare or to respond, and they have never received any feedback on
their input. The Committees should be notified several weeks in advance
to ensure that they are provided sufficient time to adequately respond.
|
RECOMMENDATION 6(a)
(Under review
- Joint with PSEPC)
It is recommended that the Correctional Service of Canada implement independent adjudication for decisions related to involuntary segregation
at all of its regional facilities for women. The impact of independent
adjudication on the fairness and effectiveness of decision making should be
assessed by an independent external evaluator after two years.
CSC Action |
Action |
Timeframe |
Independent adjudication is outside the current legislative
framework. However, CSC and PSEPC will jointly develop options. |
summer 2005 |
OCI Comments |
- The OCI agrees with the CHRC on this issue. Independent
adjudication is necessary to ensure fair decision-making and
legal/policy compliance.
- Although independent
adjudication has been recommended for many years (e.g., Jackson 1983, 2002, Arbour 1996, Yalden 1997, Parliamentary CCRA Sub-Committee 2000, CHRC,
2003), the Service has failed to implement this important
recommendation.
|
RECOMMENDATION 6(b)
(Accept in
principle)
It is recommended that Segregation Advisory Committee for
Women's Institutions should be created with membership from both within and
outside the Correctional Service, including representatives of Aboriginal
communities.
CSC Action |
Action |
Timeframe |
The DCW will establish a pilot project for the case by case
review of all women in segregation over 30 consecutive days, and all women
whose cumulative stay in segregation exceeds 60 days over a one-year period.
The DCW will establish a committee with an external representative to conduct
such reviews a minimum of twice per year over the next two years. The mandate
for the committee must be within the current legislative frame. To ensure an
appropriate period for evaluation, given the few long-term and/or repeated
segregation cases, the pilot will operate for at least two years prior to
evaluation. The results will be reported to CSC's Executive Committee with
recommendations for next steps. |
Committee mandate and membership by April 30, 2005
Conduct reviews: FY 2005-2006 and 2006-2007
Report: June 2008 |
The DCW will examine in detail cases from FY 2002-2003 and FY
2003-2004, which fall under the parameters described above, in order to
compile a list of reasons for segregation, alternatives tried to avoid
segregation, and steps taken, which resulted in the women leaving segregation.
This review will be shared with the review committee referenced above as
background to facilitate their work. |
Report by May 31, 2005 |
OCI Comments |
- It's not clear exactly what this committee will be doing other
than "reviewing cases". The CHRC recommended the creation of an
"advisory committee," which suggests that CSC would gain by receiving
(outside) advice on broad segregation-related matters.
- The CSC has interpreted the CHRC's recommendation as requiring
only one external representative on the Committee. Moreover, the
selection criteria for the external representative are unknown. There
is no mention of Aboriginal representation on the Committee, despite the
fact that long-term segregation is primarily affecting Aboriginal women.
- The 3 women's prisons that have had long-term segregation cases
(EIFW, GVI and RPC) are limited in their segregation alternatives due to
lack of space and resources. How will "reviewing these cases" change
this reality?
- The 3-plus years timeframe to complete this work appears
unreasonable lengthy.
- The committee should
specifically be required to consult with women offenders.
|
RECOMMENDATION 6(c)
(Accept)
It is recommended that the Correctional Service should
examine alternatives to long-term segregation for women offenders, in
consultation with external stakeholders.
CSC Action |
Action |
Timeframe |
CSC proposes to establish the advisory committee referenced
under 6(b) above as a pilot project. The results from the pilot will be used
to frame next steps/ further discussions. |
Refer to 6 (b) above. |
OCI Comments |
- See comments for
recommendation 6 (b) above.
|
RECOMMENDATION 7
(Accept in
principle)
It is recommended that the Correctional Service of Canada consider the needs and low risk of minimum and medium security women inmates in the
construction of additional facilities for women.
CSC Action |
Action |
Timeframe |
In accordance with existing CSC planning practices and
processes, the assessed risk/needs of women offenders will continue to form
the basis for future plans to renovate or expand existing institutions.
CSC will continue to conduct research, review external research,
and consult with stakeholders to broaden its understanding of the risk/needs
of women offenders. These findings will be used to reassess and adjust the
accommodation and operational designs and intervention strategies that are
most effective in responding to those needs. |
|
OCI Comments |
- This CSC Response does not accurately reflect the issue at hand.
There is no discernable difference between the minimum and medium
security beds in the women's regional facilities. Minimum security
women are discriminated against when compared to their male
counterparts. Any expansion needs to take into consideration this
discriminatory reality.
- OCI recommends that the Isabel
McNeill House (only minimum women facility in Canada) remains open and
run at full capacity. There are 10 beds but only 3-4 are filled at any
given time.
|
RECOMMENDATION 8(a)
(Accept)
The Commission recommends that the Correctional Service of Canada ensure that the revised program strategy for women acknowledges that some of women's
criminogenic factors are unique.
CSC Action |
Action |
Timeframe |
The revised Program Strategy for Women Offenders (2004)
describes the current state of knowledge and research with respect to women's
criminogenic factors, including those unique to women. It is available on the
CSC website.
|
Complete
|
The strategy will be updated periodically to reflect the
implications of new research. |
Ongoing |
OCI Comments |
- This Strategy should
be revised to take into consideration the findings of the 2003 CHRC
report. The strategy should be informed by the unique
social-cultural-historical factors impacting women.
|
RECOMMENDATION 8(b)
(Accept)
The Commission recommends that the Correctional Service of Canada develop and implement gender-responsive programming that addresses the full range of
women's criminogenic factors.
CSC Action |
Action |
Timeframe |
As the majority of women in federal custody have committed
crimes of violence, a violence prevention strategy unique to women offenders
is being explored |
Proposed strategy: FY 2005-2006 |
OCI Comments |
- This response does not respond to the CHRC recommendation. The
issue here is that women do not currently have adequate access to
gender-responsive programming in prison. Due to a lack of human and
financial resources, the programs that are currently being offered are
very limited in scope, are only offered within certain contexts, and are
often untimely. This is particularly true for Aboriginal women's
programming and programs for maximum-security women. In addition, very
few programs have actually been thoroughly evaluated.
- Regarding the violence
prevention strategy, the CSC first needs do conduct exploratory research
in order to gain a better understanding of the socio-cultural-historical
context within which women's violence occurs. This would be best
undertaken by an independent researcher with experience in women-centered
participatory action research. This information could then be used to
inform the new strategy.
|
CSC Action |
Action |
Timeframe |
Related Requirement: Accreditation of women's programs was
raised during the CSC stakeholders consultation on the CHRC recommendations.
As the need to consider accreditation of women's programs arises
in the future, discussion will occur with stakeholders. |
|
OCI Comments |
- Despite stating that it has accepted this CHRC recommendation, CSC
has not actually committed to developing a new violence prevention
strategy. CSC has only committed to "exploring" the issue.
- Given the unique contextual
factors related to women's criminalization, women offenders require a
more individualized approach to addressing their needs (see e.g., Creating
Choices). Accredited programs will need to reflect this approach.
|
RECOMMENDATION 9
(Accept)
The Commission recommends that the Correctional Service of
Canada bring a gender focus to its employment and employability programming for
federally sentenced women, including the development of job opportunities in
the community.
CSC Action |
Action |
Timeframe |
The Employability Skills Program pilot will be evaluated and a
decision made on expansion to all the women's institutions by Executive
Committee in FY 2005-2006. |
fall 2005 |
Complete the employment needs survey. |
March 31, 2005 |
Develop a National Employment Strategy for Women Offenders. |
FY 2005-2006 |
Facility plans will be developed, in response to the approved
National Employment Strategy for Women Offenders, and incorporated into the
CSC Capital Plan. The timing and funding of any related improvements will be
in accordance with established priorities and budgets. |
|
OCI Comments |
- Unfortunately, CSC's institutional employment primarily consists
of cleaning, grounds maintenance, and under-wear making. Also, while
the women may be paid as if they are working full-time, many women
complete their work in less than 1 hour per day. Maximum-security women
have even less opportunities.
- Every women's facility is cramped for space. Unless the Service
is planning to increase physical space, it is nearly impossible to bring
in any type of meaningful and useful in-house training into the women's
facilities (e.g., a CORCAN operation).
- The statistic that 600 third-party certificates were recently
earned by women offenders is somewhat misleading. Many of these certificates
were primarily earned for very short certificate programs (a few days) such
as First Aid, CPR, Basics in Food Safety and WHMIS. According to CSC's
own documents, only a very small percentage of the women that received
these certificates find employment related to those certificates.
- It should also be noted that the CSC completely underutilizes
work releases in all of their women's facilities. This is an inexpensive
avenue that could provide minimum-security women with real work
experience in the community.
- The Employment Needs Survey is a good initiative. However,
already several issues have been raised: (1) women have complained that
they were asked for input, but that they were only given 2 days to
provide feed-back on the questionnaires; and (2) it isn't clear whether
this survey takes into account the unique socio-cultural experiences of
Aboriginal women and their various views regarding mainstream
employment/work ethics.
- The OCI is supportive of a National
Employment Strategy for Women. However, the strategy will only achieve
its goals if appropriate resources and additional space are provided.
|
RECOMMENDATION 10
(Accept)
It is recommended that, based on common guidelines, an
action plan for each region should be developed to ensure that the Correctional
Service of Canada meets the need for accommodation for federally sentenced
women on community release. The plan should include home placement agreements,
satellite apartments and other options that would permit women on conditional
release to be housed with their children.
CSC Action |
Action |
Timeframe |
CSC will monitor the regional action plans and explore
alternative accommodation options for women, such as private home placements
(PHP). |
Ongoing |
To assist in meeting the challenge for women with serious mental
health disorders, CSC will offer training in mental health issues to
community-based residential facility staff over FY 2005-2006 & 2006-2007.
|
FY 2005-2006; 2006-2007 |
The DCW will coordinate the delivery of information sessions on
PHP for women offenders in major releasing areas, based on the PHP Program
successes in Edmonton. |
FY 2005-2006 |
OCI Comments |
- The Service is not currently meeting the needs for accommodation
for FSW on community release; especially in the Pacific and Maritimes
regions. Monitoring and exploring options do not address the CHRC's
recommendation to meet the pressing needs for accommodation of federally
sentence women.
- The CSC expects community-based organizations and private
citizens to provide more beds for women, yet CSC committed no new
financial resources to assist in this undertaking.
- Offering training to staff in
community-based residential facilities has the potential of opening up
these facilities to more women with mental health disorders, but it will
not address the problem of the shortage of beds. Also, the training is 2
years away.
|
RECOMMENDATION 11(a)
(Accept)
It is recommended that the Correctional Service of Canada continue to take steps to ensure greater continuity between programs offered in the
institution and those offered in the community. The community programming phase
of the Woman Offender Substance Abuse Program may provide a good model for
doing so and should be monitored.
CSC Action |
Action |
Timeframe |
CSC will ensure the continuity factor is assessed in the WOSAP
evaluation. |
WOSAP evaluation: FY 2005-2006 |
Discuss this issue at the planned federal
/provincial/territorial Heads of Corrections sub-committee meeting with a
focus on identifying areas for joint initiatives. |
spring / summer 2005 |
OCI Comments |
- There is a lack of continuity between ALL programs offered in
prison and those offered in the community. The Service needs to focus on
preparatory release requirements for successful transitions from prison
to community settings.
- Offering to assess the
continuity factor in the WOSAP evaluation does little to improve
significant systemic barriers.
|
RECOMMENDATION 11(b)
(Accept in
part)
It is recommended that the Correctional Service of Canada offer more assistance to women on conditional release, particularly through
employment counselling and child care.
CSC Action |
Action |
Timeframe |
CSC will promote the value of the employment centres with parole
officers to increase the number of referrals. |
Ongoing |
CSC's legislative mandate does not extend to child care; child
care is a provincial jurisdictional issue. However, CSC does play a liaison
role and, therefore, will issue a document on Mothers and Children in the
Community to provide direction to staff working with women who have
children. |
Consultation on draft document: September 2005 |
OCI Comments |
- Employment centres may not always be responsive to the needs of
women offenders. More referrals alone will unlikely increase the rate
of employment of women offenders. More assistance is needed such as
ensuring child care is available for women wishing to attend the
employment centres.
- The selection of the writer
and the consultation process will be critical to the success of the
document entitled "Mothers and Children in the Community."
|
RECOMMENDATION 12(a)
(Accept)
It is recommended that federally sentenced women be provided
with an opportunity to consult with an Elder before finalizing their
correctional plans. With the agreement of individual women, Elders should play
a key role throughout case management and release planning.
CSC Action |
Action |
Timeframe |
CSC will consult through the National Elders Working Group, the
Aboriginal Advisory Board and the IFC to obtain their advice and ideas for
further action to formalize and enhance their role in case management.
Results of the consultation and recommendations for policy and process
changes will be submitted to the Executive Committee by the end of FY
2005-2006. |
Consultation: FY 2005-2006 |
In the interim, CSC will pilot in a women's institution, a
formalized case management process whereby prior to sign-off by the woman
offender, she is asked if she would like to take her plan and consult with
the Elder and/or the Native liaison officer and/or Chaplain. The woman's
decision would be noted in the file and, if she chooses to consult, a
reasonable timeframe and follow-up process would be established and documented
in the file. |
FY 2005-2006 |
OCI Comments |
- Most women's facilities do not have a full-time Elder or an Aboriginal
liaison, so providing direction/consultation on correctional planning
will be extremely difficult without committing new resources.
- Currently, if a woman is dissatisfied with her correctional plan,
there is very little she can do to successfully challenge it. It is not
clear whether Elder consultation will actually result in improved offender
satisfaction and better correctional plans.
- The timeframe for policy and
process changes (end of FY 2005-2006) is unreasonable long given the
straight forward nature of this recommendation.
|
RECOMMENDATION 12(b)
(Accept)
It is recommended that in partnership with Aboriginal
communities and organizations, the Correctional Service of Canada should review
the use of section 84 of the Corrections and Conditional Release Act, identify
barriers to its use, and create and implement an action plan to encourage its
use for federally sentenced women. Progress should be reviewed and reported
within one year.
CSC Action |
Action |
Timeframe |
The upcoming ACDO meeting will be held at OOHL and will focus on
the development of sustainable strategies to enhance the use of Section 84
agreements for Aboriginal women offenders. The outcomes of this meeting will
be reflected in the new National Aboriginal Strategy. |
Consultation on National Aboriginal Strategy: spring / summer
2005 |
The DCW in collaboration with the Aboriginal Initiatives Branch
will review the Section 84 agreements negotiated/active in FY 2003-2004 and
FY 2004-2005 to identify concepts and best practices to share with all
wardens and districts supervising Aboriginal women offenders on release.
|
September 2005 |
Related Requirement: Enhanced information
sharing at intake. This related issue was identified during the CSC
stakeholders consultation on the CHRC recommendations.
- CSC will enhance information sharing for women
offenders on Section 84 provisions during intake. Wardens of women's
institutions will report to the DCW by March 31, 2005 on the process enhancements put in place at their respective institutions.
CSC is developing and will distribute to staff, offenders and
the Aboriginal community a new document entitled Section 84 of the
Corrections and Conditional Release Act Release Planning Kit, which will
provide information on release options. |
Report to DCW: by March 31, 2005 Distribution: by March 31, 2005
|
OCI Comments |
- The Service cannot expect to increase the number of section 84
agreements without committing financial resources geared toward building
community capacity within interested Aboriginal communities.
- The section 84 process is currently administratively too complex
and cumbersome. Women complain of having to navigate this process with little
support from the Service and they often withdraw their application
before it is completed.
- Note that the Service has already missed the one-year deadline
(imposed by the CHRC) to review and report back on progress with s. 84
agreements. CSC's response does not include specific milestones,
deadlines, and timeframes for progress reports.
- Recommendation 12 (a) and (b)
are consistent with Justice Arbour's 1996 recommendations concerning
Aboriginal women.
|
RECOMMENDATION 13
(Accept)
It is recommended that the Correctional Service of Canada
consider whether its current organizational structure optimizes its capacity to
ensure consistent human rights compliance in women's facilities, and that it
develop an enhanced functional capacity to ensure the consistent protection and
promotion of human rights across its operations.
CSC Action |
Action |
Timeframe |
With respect to the Corporate Human Rights Monitoring Tool, CSC
will develop by March 31, 2005, a work plan to complete the identification of
the human rights elements in the 94 MCF. CSC commits to completing this work
for the top five MCF by June 2005 and the next five priority MCF by September
2005. A plan for completion of the other MCF will be developed. |
Work plan: March 31, 2005 First group of five MCF: June 2005 Second group of five MCF: September 2005
|
CSC will evaluate the results derived from the Corporate Human
Rights Monitoring Tool (approved in September 2004) and submit a report to
the Executive Committee. |
June 2007 |
CSC will enhance the lessons learned approach to broaden
understanding of human rights implications of corrections as decided at the
November 2004 Executive Committee meeting. |
Ongoing |
The national training courses (currently numbering 40) will be
reviewed by the Human Rights Division and the CHRC. The goal of this exercise
will be the identification of gaps in course material, as well as the
addition of human rights content and language. The review will begin with the
three programs with the largest impact. Based on what is learned from the
review of these three courses, a long-term plan will be established to
address the remaining 30 plus courses (refer to recommendation 16e). |
Within three months following the completion of the review of
the first three programs, a multi-year work plan, based on lessons learned
from the first reviews, will be developed for the remainder of the programs.
|
OCI Comments |
- CSC has failed to address this recommendation. Within the
current hierarchical structure, the position of Deputy Commissioner for
Women has no operational authority to ensure consistent human rights
compliance in women's facilities. This point was not even discussed in
the Service's response, although it claims to have accepted this CHRC
recommendation.
- This recommendation is consistent with Justice Arbour's 1996
recommendation concerning the creation of a "separate stream" for
Women's Corrections under the authority of the DCW.
- This recommendation was therefore rejected.
- The CSC response instead
discusses the development of a new complex computerized human rights
monitoring system. The first annual report on CSC's overall compliance
with its human rights obligations will be based on data from FY 2007/08,
and will therefore be issues during FY 2008/09. What will the Service
do in the interim?
|
RECOMMENDATION 14
(Accept in
part)
It is recommended that, in consultation with its staff and
inmates, the Correctional Service of Canada immediately develop and implement
an anti-harassment policy and education program that applies to inmates. The
policy should provide for independent anti-harassment counsellors for inmates.
A short, plain-language version of the policy should also be developed and
distributed.
CSC Action |
Action |
Timeframe |
CSC will draft for inclusion in all inmate handbooks a plain
language standardized section on human rights (see also recommendation 16(b))
which will incorporate a question and answer section on the CSC
anti-harassment policy and complaint/investigation process. An alternative
communication method such as an audiotape version of the standardized section
will also be produced. |
June 30, 2005 |
Although all policies are available to offenders through the
institutional libraries, until the standardized handbook section is
available, wardens will ensure that by March 31, 2005, all offenders have received a hard copy of Policy Bulletin 186 – Harassment, and that
offenders admitted after that date receive a copy during their intake
interview. |
March 31, 2005 |
Wardens will ensure that inmate committees receive a briefing on
these policy documents. |
By June 30, 2005 |
CSC will complete harassment-sensitivity training with the staff
who respond to the offender redress 1-800 line. |
By June 30, 2005 |
CSC will develop and pilot at one of the women's institutions, a
training session for women on how to present their views or position
(advocacy training). |
March 31, 2006 |
OCI Comments |
- Monitoring of CSC's new offender harassment policy remain a
significant challenge.
- The Service has committed finalizing an assessment of their
harassment policy by March 31, 2005.
- This recommendation is
consistent with the stated position of Justice Arbour.
|
RECOMMENDATION 15
(Not accepted
as stated; accept underlying requirement to ensure human rights are
accommodated appropriately)
It is recommended that the Correctional Service of Canada immediately develop and implement a comprehensive accommodation policy that
specifically addresses the accommodation of inmates on all prohibited grounds
of discrimination. A short, plain-language version of the policy geared to
offenders with cognitive limitations or low literacy levels should also be
developed and distributed as part of an educational program.
CSC Action |
Action |
Timeframe |
CSC will address the accommodation issue in the standardized
section on human rights for inmate handbooks referenced under recommendations
14 and 16(b). |
Refer to recommendation 14 |
The lessons learned approach and the integration of human rights
issues into all staff training, referenced in response to recommendation 13,
will enhance ongoing staff awareness of accommodation issues. |
Refer to recommendation 13 |
CSC will continue to integrate accommodation issues into the
appropriate CD. In revising its policies, CSC is taking care to ensure they
are written in as plain a language as possible. |
Ongoing |
OCI Comments |
- In its response, the Service
has failed to recognize the spirit and intent of this recommendation. It
is not clear, exactly what the CSC plans to do to address this
recommendation. The CHRC report calls for a review of its accommodation
policy and the drafting of a new comprehensive accommodation policy that
goes beyond physical, intellectual and learning disabilities.
|
RECOMMENDATION 16(a)
(Accept)
It is recommended that the Correctional Service of Canada establish guidelines for institutional handbooks to ensure that complete, consistent
and accurate information is provided to inmates in all facilities.
CSC Action |
Action |
Timeframe |
CSC will develop standard guidelines for inmate handbooks and will
include a human rights section. |
June 30, 2005 |
OCI Comments |
|
RECOMMENDATION 16(b)
(Accept in
principle)
It is recommended that the Correctional Service of Canada annually monitor the human rights-related content of inmate handbooks, orientation
sessions and ongoing human rights-related training.
CSC Action |
Action |
Timeframe |
As referenced under recommendation 14, CSC will draft for
inclusion in all inmate handbooks a plain language standardized section on
human rights. CSC will annually review this content with the CHRC and make
any revisions required. |
June 30, 2005; ongoing. |
CSC will annually review a sample of the content of the
orientation sessions to ensure the sessions include human rights related
content. |
September 30, 2005; ongoing. |
Once the human rights content has been incorporated into the
various training courses, annual monitoring of the curricula will be
conducted. |
Refer to recommendation 13 |
OCI Comments |
- This is a positive
commitment.
|
RECOMMENDATION 16(c)
(Accept)
It is recommended that the Correctional Service of Canada make available information suitable for women with limited cognitive abilities or
low literacy levels, as well as information in alternate formats.
CSC Action |
Action |
Timeframe |
CSC will ensure the standardized human rights content for inmate
handbooks is available in alternative formats; the first approach will be the
audiotape version of the Q&As related to CSC's anti-harassment policy as
noted under recommendation 14. |
June 30, 2005 |
To assess the need for alternatives other than an audiotape,
wardens will review and report on the methods used by their case management
team to ensure offenders with limited cognitive abilities or low literacy
levels are informed of the content of the inmate handbook (e.g., buddy
system, verbal orientation by staff) |
April 30, 2005 |
OCI Comments |
- No deliverables are attached
to this recommendation.
|
RECOMMENDATION 16(d)
(Accept)
It is recommended that the Correctional Service of Canada ensure that the accountability accords for managers include contribution to human
rights compliance.
CSC Action |
Action |
Timeframe |
Measure accountability for human rights compliance via MCF. |
Ongoing |
OCI Comments |
- Specific requirements for the
promotion of, and compliance with, human rights should specifically be
included in performance agreements of CSC senior managers.
|
RECOMMENDATION 16(e)
(Accept in
part)
It is recommended that the Correctional Service of Canada integrate human rights training vertically throughout the organization through
effective knowledge management.
CSC Action |
Action |
Timeframe |
Refer to recommendation 13 |
|
OCI Comments |
- CSC does not have a
continuing legal education strategy with scheduled training requirements
on human rights related topics. This is especially important given the
closed nature of the correctional environment and its potential on human
rights.
|
RECOMMENDATION 17
(Accept in
part)
It is recommended that the Correctional Service of Canada
implement a pilot mediation project at facilities for federally sentenced
women, using trained, external mediators trained in human rights to attempt to
resolve complaints, as well as providing conflict resolution training for
inmates. The pilot project should begin by the end of 2004, and it should be
evaluated within two years of implementation by an independent contractor.
CSC Action |
Action |
Timeframe |
With respect to the specific issue of the use of the complaint
and grievance system by women offenders, the Service will:
- analyse available statistics and clarify
issues in the use of the complaint and grievance systems by women
offenders.
- administer a survey to identify where
mediation or other conflict resolution strategies are being used as well
as obstacles to be overcome in their implementation.
|
Ongoing
March 31, 2005 |
Work with the National Steering Committee on Restorative Justice
to ensure that approaches to dispute resolution for offenders are consistent
with the Integrated Conflict Management System (as per the Public Service
Modernization Act). |
Ongoing |
OCI Comments |
- This recommendation has essentially been rejected.
- Historically, the Service has claimed to analyse the women's
complaint and grievance statistics, but analyses have been sporadic and superficial.
- It is unclear what the target population is for this proposed
survey.
- Given the very clear power differentials between prisoners and
staff, informal conflict resolution is extremely difficult, especially
if mediators are not independent from the Service. Women regularly
complain to the OCI about informal resolution attempts that were
coercive in nature.
- In an attempt to address
this, the recommendation specified "external mediators trained in human
rights". This point was not addressed in the CSC Response.
|
RECOMMENDATION 18
(Accept in
principle)
It is recommended that the Correctional Service of Canada
work with the Canadian Human Rights Commission to develop, implement and assess
a human rights audit model, including the identification and measurement of
human rights performance indicators and public reporting.
CSC Action |
Action |
Timeframe |
CSC will finalize and implement the Corporate Human Rights
Monitoring Tool. |
FY 2005-2006 (refer to recommendation 13) |
The CSC annual audit plan includes and will continue to include
activities related to human rights issues as well as specialized human rights
audits as approved by CSC's audit committee. |
Ongoing |
Complete the two human rights audits: Privacy and Access to
Information and Accommodation of Disabilities. |
By March 31, 2006 |
OCI Comments |
- The Corporate Human Rights
Monitoring Tool will not be evaluated before 2007/08. Moreover, it
appears that CSC's Audit Division does not have the necessary resources
and capacity at this time to conduct human rights audits on a regular
basis/schedule.
|
RECOMMENDATION 19
(Under review
- Joint with PSEPC)
It is recommended that the Solicitor General of Canada and the Correctional Service of Canada, in consultation with stakeholders, establish an
independent external redress body for federally sentenced offenders.
CSC Action |
Action |
Timeframe |
CSC will arrange for an inspection pilot of two of the women's
institutions by the U.K. Inspectorate of Prisons, and will take the necessary
steps to improve where required. |
Joint plan: April 15, 2005
Inspection report: by September 2005 |
CSC will continue to review of models with PSEPC. |
March 2006 |
OCI Comments |
- The benefits of a visit by the UK Inspectorate of Prison are
unclear. Countless domestic reports by credible persons and
organizations have already provided clear guidance to CSC.
- Parameters for inspections need to be clearly defined and
reviewed with stakeholders, including this Office.
- There is no stated position
with respect to the establishment of an independent external redress
body, only commitment to review with PSEPC.
|
|