Guidelines 702-1: Pathways Initiatives

Contents

• Responsibilities
• Enquiries
• Annex A - Cross-References and Definitions
• Annex B - Elements of a Supportive Environment for Indigenous Corrections
• Annex C - Operational Requirements of Pathways

Responsibilities

1. The Deputy Commissioner, Indigenous Corrections, will:
   1. establish and implement a National Pathways Initiatives Handbook to provide instruction to staff on delivering Pathways Initiatives or coordinating Pathways-related activities
   2. review regional assessments to determine whether the environment in which a Pathways Initiative is being delivered is suitable for Indigenous corrections, as outlined in Annex B
   3. approve new Pathways Initiatives, ensuring the operational requirements outlined in Annex C are met, and
   4. ensure regional reviews of existing Pathways Initiatives are completed no later than five years after the last review.
2. The Regional Deputy Commissioner will submit regional reviews of existing Pathways Initiatives to the Deputy Commissioner, Indigenous Corrections, and will make proposals for changes and additions to the Pathways Initiatives in their region, as needed.
3. The Assistant Deputy Commissioner, Integrated Services, will:
   1. provide direction to the Regional Administrator, Indigenous Initiatives, on the management of finances as it relates to the operation of Pathways initiatives, and
   2. monitor results of the Pathways Initiatives in the region and ensure their operation is in alignment with the National Pathways Initiatives Handbook.
4. The Institutional Head will:
   1. ensure resources allocated to Pathways Initiatives are used in the operation of the Pathways Initiatives
   2. ensure there is a dedicated, appropriate space for Pathways Initiatives in the institution
   3. make the final decision in cases where there is a dissenting opinion between the Assistant Warden, Interventions, and the Elder with regard to the acceptance and the removal of an offender from a Pathways Initiative
   4. approve activities relating to the operation of Pathways Initiatives, in consultation with the Elder or Spiritual Advisor , and
   5. ensure functional direction and support is provided to Pathways Elders and Spiritual Advisors.
5. The Regional Administrator, Indigenous Initiatives, will:
   1. manage the operation of Pathways Initiatives within their region, including the distribution of allocated Pathways funds
   2. coordinate regional reviews of Pathways Initiatives every five years and propose the development of new Pathways Initiatives based on need
   3. identify a Regional Pathways Coordinator who will assist with the development of initiatives and monitor implementation and results
   4. identify an Institutional Pathways Coordinator to provide oversight in sites with 40 or more Pathways participants
   5. manage the contracting for Elders and Spiritual Advisors dedicated to Pathways, and
   6. ensure Pathways Orientation is delivered within their region.
6. The Assistant Warden, Interventions, will:
   1. support the Regional Administrator, Indigenous Initiatives, in the oversight of contracted Pathways Elders and Spiritual Advisors
   2. make the final decision regarding the acceptance and the removal of offenders from a Pathways Initiative, in consultation with the Pathways Elders or Spiritual Advisors. Although the Elder or Spiritual Advisor should not be cited as the final decision maker in the CSC Board Review, no offender can be placed in Pathways or on the waiting list without consultation and agreement of the Elder or Spiritual Advisor
   3. schedule and chair the Pathways Progress Review Meetings in order to review offender progress in Pathways at least every six months, in accordance with Commissioner’s Directive (CD) 710-1 – Progress Against the Correctional Plan
   4. in consultation with the Elder or Spiritual Advisor, ensure Pathways goals, objectives and participation details for each participant are entered in the Offender Management System (OMS), in accordance with the Pathways OMS Tool, and
   5. ensure a site-specific Pathways guide is developed in collaboration with the Elder or Spiritual Advisor for each site’s Pathways Initiative, outlining the initiative as per the requirements identified in Annex C.
7. The Manager, Assessment and Interventions, will:
   1. support Pathways team members in case management processes for offenders participating in Pathways
   2. as a member of the Pathways team, provide input with regard to the acceptance and the removal of offenders from Pathways Initiatives
   3. ensure the Correctional Plan Update, including healing components where required, is completed for all Pathways participants, as outlined in CD 710-1 – Progress Against the Correctional Plan, and
   4. ensure a security classification review is completed for all maximum and medium security Pathways participants, as outlined in CD 710‑6 – Review of Inmate Security Classification.
8. The Parole Officer or Primary Worker will:
   1. in consultation with the Pathways team, identify Pathways objectives for accepted Pathways participants and document them in the OMS Decision screen, in accordance with CD 702 – Indigenous Offenders and CD 705-6 – Correctional Planning and Criminal Profile
   2. document any progress against the Pathways participant’s Correctional Plan (including healing components), in consultation with the Elder or Spiritual Advisor and in accordance with CD 710‑1 – Progress Against the Correctional Plan
   3. complete a security classification review for Indigenous Pathways participants classified as maximum or medium security at least every six months and within thirty days of the Pathways Progress Review Meeting, in accordance with CD 710-6 – Review of Inmate Security Classification, and
   4. as a member of the Pathways team, provide input with regard to the acceptance and the removal of offenders from Pathways Initiatives.
9. The Regional Pathways Coordinator will:
   1. when considering the need for the development of a new Pathways Initiative, complete an assessment on the nine elements of a supportive environment for Indigenous corrections, as outlined in Annex B, and develop a proposal for a new Pathways Initiative if there is a need
   2. complete regional reviews of the needs for existing Pathways Initiatives, as requested
   3. manage and ensure culturally competent operations, interventions, and services within designated Pathways Initiatives, in collaboration with the Elder or Spiritual Advisor and the Assistant Warden, Interventions, or their delegate
   4. facilitate the management of new and existing initiatives and activities relating to Pathways, at the regional level
   5. ensure Pathways information is being properly documented in OMS, as per the Pathways OMS Tool
   6. review Pathways results on a quarterly basis to ensure Pathways Initiatives are meeting their objectives, and
   7. coordinate activities within Pathways Initiatives, in collaboration with the institutional Pathways teams.
10. For sites with 40 or more Pathways participants, an Institutional Pathways Coordinator will be appointed to support the Regional Pathways Coordinator and carry out the following tasks:
    1. coordinate and organize activities and interventions within Pathways Initiatives, in collaboration with the Elder or Spiritual Advisor and the Assistant Warden, Interventions, or their delegate
    2. as a member of the Pathways team, provide input with regard to the acceptance and the removal of offenders from Pathways Initiatives
    3. ensure Pathways information is being properly documented in OMS, as per the Pathways OMS Tool, and
    4. review Pathways results on a quarterly basis to ensure Pathways Initiatives are meeting their objectives.
11. The Indigenous Liaison Officer assigned to a Pathways Initiative will:
    1. upon an offender’s admission to a Pathways Initiative, enter an initial or updated Elder Review document in OMS on behalf of the Elder or Spiritual Advisor, if required
    2. support the cultural and spiritual needs of Indigenous offenders through regular communication with the Case Management Team
    3. work closely with the Elder or Spiritual Advisor to discuss an offender’s progress and ensure this information is documented appropriately in OMS, as outlined in the Pathways OMS Tool
    4. document Pathways applications (acceptances and denials) as well as progress in OMS, as outlined in the Pathways OMS Tool
    5. as a member of the Pathways team, provide input with regard to the acceptance and the removal of offenders from the Pathways Initiative
    6. develop and share a calendar of Pathways interventions and ceremonies with participants, staff and operational units, ensuring it is updated on a weekly basis, in consultation with the Elder or Spiritual Advisor and the Correctional Manager, and
    7. ensure relevant information discussed at Pathways Progress Review Meetings is documented in an OMS Casework Record for every offender case reviewed at the meeting, including offender progress and any noted recommendations that were discussed at the meeting, in accordance with the Pathways OMS Tool.
12. The Elder or Spiritual Advisor will:
    1. participate in the Pathways team by assessing the commitment and dedication of an offender to work with the Elder or Spiritual Advisor and advise the Assistant Warden, Interventions, in the final decision making with regard to the acceptance and the removal of offenders from Pathways Initiatives
    2. as part of the Pathways team, identify Pathways objectives for accepted Pathways participants
    3. provide the cultural and spiritual direction for Pathways Initiatives, including but not limited to individual counselling, teachings and ceremonial services
    4. provide guidance concerning culturally appropriate and restorative options for Pathways participants, and
    5. participate in Pathways Progress Review Meetings by providing insight into the progress being made by each participant.
13. Staff responsible for the orientation of offenders admitted or transferred to a penitentiary will provide offenders with information on Pathways Initiatives, as per CD 705-4 – Orientation.

Enquiries

14. Strategic Policy Division
    National Headquarters
    Email: Gen-NHQPolicy-Politi@csc-scc.gc.ca

Deputy Commissioner,
Indigenous Corrections
Kathy Neil

Annex A - Cross-reference and definitions

Cross-reference

• CD 024 – Management of Correctional Service of Canada Volunteers
• CD 087 – Official Languages
• CD 228 – Information Management
• CD 345 – Fire Safety
• CD 550 – Inmate Accommodation
• CD 566-10 – Urinalysis Testing
• CD 568-3 – Identification and Management of Security Threat Groups
• CD 701 – Information Sharing
• CD 702 – Indigenous Offenders
• CD 705-4 – Orientation
• CD 710-1 – Progress Against the Correctional Plan
• GL 710-2-1 – CCRA Section 81: Transfers
• GL 710-2-3 – Inmate Transfer Processes
• CD 710-6 – Review of Inmate Security Classification
• Indigenous Social History Tool
• National Pathways Initiatives Handbook
• Pathways OMS Tool

Definitions

Case Management Team : the individuals involved in managing an offender’s case, which include at a minimum the Parole Officer and the offender, and in institutions, the Correctional Officer II or Primary Worker.

Elder or Spiritual Advisor : any person recognized by an Indigenous community as having knowledge and understanding of the traditional culture of the community, including the physical manifestations of the culture of the people and their spiritual and social traditions and ceremonies. Knowledge and wisdom, coupled with the recognition and respect of the people of the community, are the essential defining characteristics of an Elder or Spiritual Advisor. Elders and Spiritual Advisors are known by many other titles depending on the region or local practices. An example is an Angakuk, the Inuktitut word for an Inuit shaman or medicine man.

Indigenous social history (ISH): the various circumstances that have affected the lives of most Indigenous peoples in Canada. Considerations of an offender’s unique ISH factors is required in making decisions that affect Indigenous offenders. Examining and analyzing an offender’s ISH factors may yield culturally responsive alternatives and restorative justice options. Background and systemic factors affecting Indigenous peoples of Canada include the following (note that this is not an exhaustive list):

• effects of the residential school system
• sixties scoop into the adoption system
• effects of the dislocation and dispossession of Inuit peoples
• family or community history of suicide
• family or community history of substance abuse
• family or community history of victimization
• family or community fragmentation
• level or lack of formal education
• level of connectivity with family or community
• experience in the child welfare system
• experience with poverty
• loss of or struggle with cultural or spiritual identity.

Pathways Initiatives : specific initiatives within institutions, that are Elder driven and devoted to providing a healing and traditional environment for offenders dedicated to following an Indigenous healing path.

Pathways Progress Review Meeting : a structured Pathways team meeting that must occur at least once every six months with the aim of discussing an offender’s progress and, if needed, setting new objectives or goals.

Pathways team : the individuals involved in managing an offender’s Pathways participation, which include the Elder or Spiritual Advisor, the Indigenous Liaison Officer, the Manager, Assessment and Interventions, the Assistant Warden, Interventions, the Parole Officer, the Institutional Pathways Coordinator (for sites with 40 Pathways beds or more) and the offender. It is also a best practice to include the Correctional Officer II or Primary Worker.

Primary Worker : the first line of contact for offenders in women offender institutions. Primary Workers perform both security and case management-related duties. Not only do they maintain the safety and security of the institution, through the application of strong dynamic and static security, but they also assist offenders in achieving the objectives of their Correctional Plan; this in turn helps the offenders in women’s institutions to successfully reintegrate into the community.

Annex B

Elements of a supportive environment for Indigenous Corrections

Prior to the development of a Pathways Initiative, the Project Officer, Indigenous Initiatives, is required to complete an assessment, in consultation with the institution(s), to ensure the following nine elements of a supportive environment for Indigenous corrections are present in their region and institution.

1. Management Commitment  – A supportive environment begins with management commitment at all levels. It is especially important that senior management at the institution demonstrates support for Indigenous Initiatives within the institution. This includes ensuring the spiritual and cultural needs of Indigenous offenders are being met and the available services and interventions align with policy and legislation. Management commitment should also be reflected in the Indigenous cultural competency of senior management at the institution. This involves adequate training and objective demonstration of the necessary knowledge to create a sustained supportive environment at the institution. As well, it involves regular communication with the Elder or Spiritual Advisor and support for the integration of a Pathways team as part of management team meetings and briefings.
   
2. Regional Approach  – Regional Indigenous Initiatives Divisions must ensure there is a high level of communication between institutional sites and Regional Headquarters, as this level of support will ensure greater success of Pathways Initiatives.
   
3. Elder or Spiritual Advisor Commitment  – The Elder or Spiritual Advisor is the spiritual leader of Pathways, and thus they are responsible for the spiritual and cultural integrity of the initiative. There must be full-time Elder or Spiritual Advisor involvement in the Pathways Initiative as it is an Elder-driven Initiative. The Elder or Spiritual Advisor determines, with an offender, the spiritual or healing path required of the offender during their participation in the Pathways Initiative. The Elder or Spiritual Advisor establishes the schedule of circles, ceremonies, and one-to-one sessions with the offender, in collaboration with institutional management. The Elder or Spiritual Advisor is the best person to determine if an offender is ready to be accepted into a Pathways Initiative and no offender should be placed in Pathways or on the waiting list without consulting the Elder or Spiritual Advisor and obtaining their agreement.
   
4. Cultural and Spiritual Activities  – A supportive environment for Indigenous Initiatives will include time and a space for cultural activities. The spiritual and cultural activities for the institutions will be developed by the Pathways team and the institutional Elder or Spiritual Advisor, and supported by the rest of the Case Management Team and senior management at the institution.
   
5. Physical Environment – Having an appropriate physical environment is critical to the success of a Pathways Initiative. Any exceptions to the following criteria for an appropriate physical environment require the approval of the Deputy Commissioner, Indigenous Corrections: a Pathways unit at a minimum security institution must consist of at least one entire housing unit designated for Pathways; a Pathways unit at a medium security institution requires a full range or unit where the physical structure of the unit can be identified and recognized as a Pathways unit; Pathways Initiatives at a maximum security institution may not have a designated unit or range but must have an indoor space designated for Pathways-specific cultural activities and ceremonies. All Pathways Initiatives require an indoor space and an outdoor space, which are appropriate for culturally specific activities and ceremonies. The physical environment in women offender institutions may differ. Refer to the National Pathways Initiatives Handbook for further information and description of physical environment. There must be an identified indoor space within the institution for personal and group smudging (evenings and weekends included) and other ceremonies that involve group activities.
   
6. Populations and Identified Needs – Any institution considering a Pathways Initiative must have an Indigenous population to support it. At a maximum security facility, a Pathways Initiative may begin with as few as four participating offenders, who may be from at least two ranges. For medium security and multi-level facilities, as well as for minimum security units or houses, the size of the Pathways Initiative should be no more than one-fifth to one-quarter of the total Indigenous population.
   
7. Staff Education  – Education about Indigenous peoples of Canada will help staff at sites operating a Pathways Initiative to understand the importance of ceremonies, cultural teachings, and values. Staff must be offered informal learning opportunities (e.g., an all-staff invitation to a change of season ceremony). Attendance at events and ceremonies where applicable, including speaking to Elders, Spiritual Advisors, Indigenous Liaison Officers or Indigenous offenders about their culture, can enhance a person’s knowledge and perspective of Indigenous culture. This enhanced understanding will contribute to the success of Pathways Initiatives. All staff involved in a Pathways Initiative must complete the Pathways Orientation.
   
8. Teamwork  – Developing and operating a Pathways Initiative will require a dedicated team. During the assessment, sites will review their capacity to create and provide a dynamic interdisciplinary team to work on their Pathways Initiative.
   
9. Community Connection  – Having Indigenous offenders connected to an Indigenous community and to family members external to CSC is an important element within the Indigenous Corrections Continuum of Care. Efforts will be made to connect with an Indigenous community through escorted temporary absences or institutional volunteering opportunities, where appropriate.

Annex C

Operational requirements of Pathways

The following requirements apply to new Pathways Initiatives as well as all existing ones. A regional review process of Pathways Initiatives should be undertaken based on these operational requirements and results achieved. An overall review of the Pathways Initiatives in the region should be carried out at least once every five years. If an existing Initiative does not meet operational requirements, corrective actions must be taken.

1. Vision Statement – The Vision Statement is specific to each Pathways Initiative. It describes an ideal state that the Pathways Initiative is striving to achieve and focuses on the specific features of a desirable future state. This should be documented and shared in the information available to offenders and staff regarding Pathways.
   
   
2. Pathways Team –The Pathways team (as defined in Annex A) must be a cohesive group and support the Vision statement. The Assistant Warden, Interventions, as part of the senior management team, provides leadership and oversight for the operations of Pathways. Since Pathways are Elder‑driven intensive healing environments, the Elder or Spiritual Advisor is a critical part of the Pathways team. Pathways Initiatives cannot operate without the guidance of the Elder or Spiritual Advisor. It is recommended that each site have a dedicated Pathways Parole Officer as part of the Pathways team. Any other staff identified by the institution as part of the Pathways team will have their roles identified in the proposal or outline of the Pathways Initiative.
   
   
3. Designated Space – There must be allocated space in institutions for Pathways Initiatives. In medium security sites, there must be a designated range or unit, as well as a designated indoor space for Pathways-specific activities where smudging and other ceremonies can occur at any time. Pathways designated cells are normally to be single cells and not double-bunked as this will facilitate the healing process in which the offenders are participating, as per CD 550 – Inmate Accommodation. Smudging will be allowed on the range, in accordance with CD 345 – Fire Safety and the Fire Safety Manual. The offices of staff associated with the Pathways Initiative should be within close proximity to the cell locations, where possible. In minimum security institutions, a Pathways Initiative will consist of at least one entire house or unit. Pathways interventions at maximum security facilities do not require cell designation, but there must be an appropriate designated indoor and outdoor space for cultural activities and ceremonies. The designated space in women offender institutions may differ. Refer to the National Pathways Initiatives Handbook for further information and description of physical environment.
   
4. Admission Criteria – Pathways participants should be offenders whom the Elder or Spiritual Advisor and Case Management Team believe show a commitment to following a traditional healing path, and to addressing identified factors in their Correctional Plan. Ideally, a participant in a Pathways Initiative would stay no longer than one year as they should be actively working towards objectives which are reviewed every six months, leading to security classification reviews or preparation for parole hearings. There is also an expectation that offenders participating in Pathways Initiatives are committed to addressing substance misuse. A documented set of criteria must be developed by the Pathways team of each Pathways Initiative to determine who is eligible for admission to the initiative. It is imperative that all sites with Pathways Initiatives ensure their admission criteria include the following:
   1. Medical needs and interventions, such as Opioid Agonist Treatment, are not sufficient grounds for exclusion from participating in Pathways.
   2. Inmates identified as members or affiliates of a security threat group (STG) by staff, as per CD 568-3 – Identification and Management of Security Threat Groups, will not be automatically excluded from participating in a Pathways Initiative, as such participation could help the inmate in their path to disengagement. Prior to the final decision, consultation with the Security Intelligence Officer(s) will take place to determine whether there are any concerns that the offender may be involved in any institutional subculture or STG activities. Offenders determined to be actively involved in institutional subculture or STG activities will be excluded from participation in Pathways Initiatives at the time of their active involvement.
       
5. Waiting List – The number of individuals on the Pathways waiting list should be ideally half of the available bed space for Pathways. Having a waiting list that is ideally at least half of the available bed space ensures a continual flow of offenders moving through Pathways to lower security, conditional releases or Healing Lodges.
   
6. Referral and Application Process – This process will be outlined and documented for distribution in a manner that is easily accessible to the offender population as well as staff.
   
7. Decision Process – The Assistant Warden, Interventions, is the final decision maker in OMS, but the decision to admit an offender to Pathways will be made jointly with the members of the Pathways team, which must include the Elder or Spiritual Advisor. The general population Elder or Spiritual Advisor and Indigenous Liaison Officer may also be included as they can identify which offenders have been participating in Indigenous ceremonies, and activities with the Indigenous Interventions team that may assist in the decision for placement in Pathways. No offender should be placed in Pathways or on the waiting list without the engagement and agreement of the Elders or Spiritual Advisors. This is primarily a healing intervention and demonstrated desire and commitment, identified by the Elder or Spiritual Advisor, are critical. Should an offender be denied participation in Pathways, it is critical that the reasons for denial are clearly documented in the decision rationale in OMS. Additionally, restorative options should be identified, giving a clear indication of offender expectations and promoting success should they wish to reapply.
   
8. Expectation Documentation – Documentation (i.e., contract or agreement) that outlines the specific rules of the Pathways Initiative is shared with all offenders upon admission to Pathways. The expectations concerning the offender will be outlined ensuring they are aware of what is required and expected in order to maintain participation in Pathways. There is an expectation that offenders participating in Pathways Initiatives will remain substance free. Those who violate this expectation may incur consequences which will be determined on a case-by-case basis, and consider the offender’s Indigenous social history. Sanctions may include removal from the initiative for up to 90 days if the offender incurs charges for failure to provide a sample during urinalysis testing, as per CD 566-10 – Urinalysis Testing.
   
9. Dispute or Conflict Resolution and Discipline – A process for resolving disputes is documented and clearly outlines the manner in which dispute or conflict resolution and discipline will be carried out. Informal resolutions using circles or similar processes are normally led or directed by the Elder or Spiritual Advisor.
   
10. Consequences and Criteria for Removal – Any considerations for the removal of an offender from a Pathways Initiative must be documented, including the discipline process, to ensure only offenders who are committed to the traditional healing path remain as participants in the Pathways Initiative. Additionally, restorative options should be identified, considering Indigenous social history as per CD 702 – Indigenous Offenders, giving a clear indication of offender expectations, should they wish to reapply. This will ensure flexibility in making decisions when implementing disciplinary sanctions, if required. The process for allowing someone to return to Pathways after a disciplinary action has been taken will be determined by the Pathways team. Urinalysis testing is not a specified criteria for admission to, or participation in, a Pathways Initiative.
    
11. Case Management Documentation – An offender’s referral and placement or denied participation in a Pathways Initiative will be tracked using the Pathways-specific process in OMS. All institutions will ensure their Pathways teams use the Pathways OMS Tool to correctly enter information into OMS. The Pathways Progress Review Meeting will be documented, as outlined in the Pathways OMS Tool, in a Casework Record in OMS.
    
12. Information Dissemination – Documentation exists to ensure other staff and offenders are aware of the Pathways Initiative, including vision, admission criteria, application process, decision criteria and expectations.
    
13. Schedule of Activities – There is a clearly identified, documented schedule for increased ceremonial, spiritual and cultural activities to demonstrate a visible difference between Pathways and non-Pathways interventions.
    
14. Temporary Absences and Indigenous Community Engagement – There must be a clear link to the Indigenous community and engagement with the community through the use of escorted temporary absences, unescorted temporary absences, as well as community partners attending the institution. Although temporary absences may not be appropriate for maximum security Pathways interventions, there are still opportunities to have community members or volunteers come into the institution to provide support or cultural workshops or activities to Pathways participants.
    
15. Transfer to Healing Lodges or Lower Security – The purpose of Pathways Initiatives is to provide offenders who are committed to a healing path an opportunity to engage in increased cultural and spiritual interventions in order to address criminogenic risk and needs domains. The result should be a transfer to lower security institutions or Healing Lodges, as per GL 710-2-1 – CCRA Section 81: Transfers and GL 710-2-3 – Inmate Transfer Processes, or to the community on conditional release when appropriate.

Ideally, a participant in Pathways would stay no longer than one year prior to taking the next steps in their Correctional Plan. Allowing offenders to transition through the Pathways continuum is a priority. Offenders who have an indeterminate sentence or are serving life sentences may be placed in Pathways for a specific period not exceeding three years.