Evaluation of CSC’s Institutional Chaplaincy Services: Summary

The Correctional Service of Canada (CSC) has a responsibility to provide chaplaincy services to federal offenders in support of the Canadian Charter of Rights and Freedoms and other legal obligations. CSC’s governing legislative framework, which includes the Corrections and Conditional Release Act (CCRA) and the Corrections and Conditional Regulations (CCRR), further support these obligations and ensures federal offenders are provided with reasonable opportunities to express and participate in activities related to their religion or spirituality.

Federal offenders have diverse religious and spiritual needs that are similar to those of the general Canadian population. With approximately 70% of the offender population identifying themselves as having a religious affiliation, a demand exists for the provision of chaplaincy services to address the evolving and diverse religious and spiritual needs of offenders.

CSC’s chaplaincy services are delivered by Bridges of Canada (BoC), a non-profit organization that provides a continuum of therapeutic care to individuals who are currently incarcerated. BoC services include religious services, rites and rituals; religious and spiritual education; visible presence; and community involvement.

In accordance with the Departmental Evaluation Plan, the evaluation covered the period from April 1, 2014 to March 31, 2018. The evaluation examined the relevance, efficiency, and effectiveness of CSC’s institutional chaplaincy services throughout three periods: intake, incarceration and prior to release. The overall objective of the evaluation was to examine whether inmates have access to institutional chaplaincy services to address their religious and spiritual needs, and a review of the current service provision model to determine if chaplaincy services are delivered in a manner that maximizes resources and is consistent with identified best practices.

The evaluation used a mixed-method research design, incorporating both quantitative and qualitative methodologies. Several lines of evidence were used, including literature and document reviews, interviews with staff and inmates, electronic questionnaires and analysis of automated data pertaining to inmates. Financial analyses were also conducted. In total, expenditures for institutional chaplaincy services was $21.2 million between fiscal year (FY) 2015-2016 to 2017-2018, which accounted for 0.33% of CSC’s total direct program spending.

Overall, the evaluation found that CSC’s institutional chaplaincy services are relevant, and met the needs of federal inmates. Chaplains and chaplaincy volunteers were perceived as having a positive impact on the institutional environment and on inmates’ rehabilitation (e.g., reductions in anxiety, stress, and anger). However, the provision of chaplaincy services requires improvements in the following areas:

• Visibility of chaplains and recognisability of chaplaincy volunteers (e.g., increased visits in segregation and ranges/units);
• Orienting chaplains with the necessary information to meet the needs of CSC’s diverse inmate population, specifically for inmates with a mental health needs, LGBTQ2 inmates and ethnocultural inmates;
• Effectiveness and efficiency of chaplaincy services religious accommodations and the complaints and grievances processes (e.g. improve the information management practices and data collection processes); and
• Communication and information sharing practices (e.g., timely sharing of information between CSC personnel, chaplaincy stakeholders and Faith Community Reintegration Projects (FCRPs)).

Recommendations were made to support decision makers with improving the efficiency of CSC’s institutional chaplaincy services. The recommendations and CSC’s responses to each recommendation are outlined below.

It is recommended that Chaplaincy fosters partnerships with relevant offices of primary interest (OPIs) in order to improve information management practices and the quality of religion data.

• In response: CSC Chaplaincy will review and update policies and procedures as needed to ensure mandatory information management practices are established, implement a national standardized definition and/or criteria related to religious affiliation; and collect and record additional information within OMS.

It is recommended that Chaplaincy implements measures to enhance service standard objectives with a view to improve the religious and spiritual services provided to inmates.

• In response: CSC Chaplaincy will:
• Develop a standardized approach to planning and service delivery that takes into consideration the uniqueness of each institutional context;
• Closely monitor inmate religious affiliation and institutional information to adjust services as necessary to better meet the evolving needs of inmates.
• Ensure that mechanisms are in place to better target chaplaincy services to meet the diverse needs of the inmate population and reflect what is available in the community;
• Develop an institutional service delivery plan specific for the intake period to ensure coverage and access to chaplains and services;
• Facilitate a process that will ensure that chapels/sacred spaces are accommodating of all religious groups;
• Develop and implement the measures necessary to enhance the awareness of support services offered by chaplains and chaplaincy volunteers among inmates;
• Continue to remain in regular dialogue with key stakeholders to ensure that effective and appropriate service level standards are delivered.

It is recommended that Chaplaincy develops strategies for institutional chaplains to introduce themselves and their services to new inmates, particularly at intake, and to make their presence more visible in all areas of the institution. Strategies should also be developed to increase the recognisability of chaplaincy volunteers.

• In response: CSC Chaplaincy will develop and implement a standardized approach that will ensure that all inmates are introduced to the breadth of chaplaincy services both at intake and within the institution; strengthen guidelines and clarify intended outcomes for increasing visibility; establish a planned visitation pattern for institutional chaplains; and consult with relevant stakeholders on the development of a process whereby chaplaincy volunteers can more easily be recognized by inmates and staff throughout the institution.

It is recommended that Chaplaincy maintains productive relationships with faith-based communities and examines the feasibility of increasing the use of practices that will ensure continuity of care and linkages between chaplains and faith-based resources in the community.

• In response: CSC Chaplaincy will share timely and relevant information with faith community reintegration projects (FCRPs), build faith community relationships earlier in the release process, improve procedures for planning and preparing for an inmate’s release, including faith-based support; and expanding the breadth of faith community engagement to support offender reintegration.

It is recommended that Chaplaincy Services enhance their information management practices related to religious and spiritual complaint and grievance data.

• In response: CSC Chaplaincy will establish a systematic approach to better capture religious and spiritual complaints and grievances data.

It is recommended that Chaplaincy adopts measures to better orient institutional chaplains to deliver religious and/or spiritual services to CSC’s diverse inmate population, particularly inmates with mental health needs, LGBTQ2 inmates and ethnocultural inmates.

• In response:CSC Chaplaincy will provide ongoing information and a dedicated orientation on mental health and diversity to chaplains; and determine the feasibility under the current contractual arrangements to recruit institutional chaplains with experience in delivering religious and/or spiritual services that respond to the needs of CSC’s diverse inmate population.

It is recommended that Chaplaincy incorporates the standards for excellence identified by the expert group and program beneficiaries, as part of its review in identifying the most efficient and effective practices to meet the Program’s intended outcomes.

• In response: CSC Chaplaincy will:
• Ensure that all inmates have access to chaplaincy services, chaplains, and chaplaincy volunteers regardless of faith tradition;
• Identify and remove unnecessary barriers that prevent inmates from accessing religious accommodations;
• Provide (where feasible) orientation and ongoing development to chaplains and, if deemed feasible, developing next steps and an approach for the creation of a learning and development plan for chaplains;
• Ensure that service provision standards meet the needs of inmates;
• Identify and implement mechanisms to ensure sufficient collaboration/information-sharing practices between Chaplaincy and community stakeholders.

It is recommended that Chaplaincy consider the standards for excellence identified in this evaluation to make a determination as to the most efficient and effective service provision model that will contribute to the Program’s short-term, intermediate, and long-term outcomes.

• In response: CSC Chaplaincy will assess the feasibility of adopting an alternative service delivery model (e.g., a government employee model, region-based multiple supplier model, an improved single contract model or a hybrid model) by conducting a more in-depth analysis of the intricacies involved in each model and engaging in a consultation process. CSC Chaplaincy will also explore the feasibility of establishing key competencies for chaplains and a certification process for the delivery of multi-faith services within its model and, if deemed feasible, implement key competencies and a certification process.