Appearance of the Commissioner before the Standing Committee on Public Safety and National Security (SECU): May 19, 2022

1. Main and supplementary estimates

Overview note: 2021-2022 supplementary estimates “C”

On a portfolio-wide basis, total authorities sought in SEC would result in a net increase of $508.4M or 4.0% over current estimates. The approval of these Estimates would result in Public Safety (PS) Portfolio total authorities increasing to $13.2B.

Of the PS portfolio, CSC’s expenditures are the 3rd highest seeking $20.1M, or 0.6% of estimates to-date.

CSC is anticipating to receive Treasury Board authority to increase its appropriations for:

• $12.0M in funding for the reprofile of unused 2020-21 capital funding for the completion of capital projects; and
• $8.1M for operating funding related to changes in offender population volumes and price fluctuations.

CSC has $43.1M of funds available within authorities that have been frozen by Treasury Board including:

• $28.0M of operating expenditures for changes to offender population volumes and price fluctuations adjusted for prior and current year variances;
• $11.5M of operating expenditures for Transforming Federal Corrections (Bill C-83); and
• $3.6M of operating expenditures for travel.

CSC has requested an internal transfer from capital to operating for $5.0M within its existing votes (net effect of zero) to adjust authorities as required for the Offender Management System Modernization Project.

CSC has transferred a total of ($8K) from its appropriations to other federal government organizations, through transfer of funds to the Treasury Board Secretariat for the Financial Community Developmental Programs and the Inclusion, Diversity, Equity and Accessibility initiative.

Overview note: 2022-2023 main estimates

Ratification by Parliament of these Main Estimates will result in funding approvals of $11.0B for the Public Safety portfolio for fiscal year 2022-23. On a portfolio-wide basis, total authorities sought in the 2022-23 Main Estimates will result in a net increase of $950.0M or 9.5% over the 2021-22 Main Estimates.

Of the PS portfolio, CSC’s expenditures are the 2nd highest. The variance between these and the 2021-22 Main Estimates are: $257,052,067 for a percentage of 9.2%

The net increase of $257.0M represents a net increase of $219.5M in Operating Expenditures, an increase of $26.0M in Capital Expenditures and a net increase of $11.5M in Statutory Expenditures (EBP).

The main factors contributing to the changes in funding levels include (but are not limited to):

Increases:

• $141.6M increase in Vote 1 - Operating Expenditures related to funding for class action lawsuits;
• $48.6M increase in Vote 1 - Operating Expenditures related to compensation for the funded portion of Collective Agreement increases;
• $24.9M increase in Vote 1 - Operating Expenditures funding related to Transforming Federal Corrections (Bill C-83);
• $24.7M increase in Vote 5 - Capital Expenditures related to the reprofile of unused 2020-21 funding for the completion of capital projects;
• $14.0M increase in Statutory Expenditures related to the department’s allocation of the employer’s share of the employee benefits plan;
• $13.8M increase in Vote 1 - Operating Expenditures related to funding approved for Support for the Correctional Service of Canada (Budget 2020); and
• $8.1M increase in Vote 1 - Operating Expenditures related to changes in prices and volume of goods and services being procured.

Decreases:

• ($11.8M) decrease in Vote 1 - Operating Expenditures related to funding to support pressures related to COVID-19;
• ($3.6M) decrease in Vote 1 - Operating Expenditures related to travel reductions (Budget 2021);
• ($3.1M) decrease in Vote 1 - Operating Expenditures to transfer funds to Shared Services Canada for Government IT Operations (Budget 2021); and
• ($2.5M) decrease in Statutory Expenditures resulting from a reduction of the drawdown on the CORCAN revolving fund authority.

2021-2022 Financial Situation

As of P12, there is a surplus in operating of $125.0M over and above the $106.7M frozen funds, mainly due to these surplus:

• $24.0M in salary mainly due to vacant Correctional Officer, Parole Officer, Policy and Communication & Engagement positions caused by an inability to staff or operational needs;
• $15.5M in the Corporate Reserve surplus is mainly due to funding kept for elements such as requests for investment proposals not allocated, quasi-statutory, and funding not anticipated prior to March 2022;
• $13.9M in Health, $10.4 due to delays in staffing and difficulties in hiring health professionals, such as nurses and psychologists; and $3.5M mainly due to reduced spending in Health Services contracts, Hep C, Travel, in-person training, termination of the CRCS Mou and PPE supplies not received due to the pandemic;
• $13.0M in Legal Claims due to delays in the progress of the litigation;
• $10.7M caused by COVID-19 due to shortages of professional service resources, specialized materials, COVID-19 restricted access to sites and insufficient capacity from PSPC;
• $9.5M related to the reduced offering of programs due to the pandemic and a lower inmate population;
• $7.4M in HRM mainly due to high vacancies within the entire sector, postponement of the Q4 CTP delivery model; and
• $3.4M in aboriginal initiative due to continued challenges in recruiting and retaining contracted Elders, delay in training and travel due to the pandemic.

As of P12, there is a surplus on capital of $85.7M, including a $12.0M capital reprofile from last year. These surpluses are mainly due to delays in projects or purchases of equipment for various reasons like the availability of professionals, equipment and material, increase in costs, delay in procurement with PSPC and restricted access to the sites mainly due to the pandemic.

3. CSC’s hot issues

2022 - 2023 Main estimates overview note

Proposed response:

• The Correctional Service of Canada remains committed to transparency and accountability of its operations, and welcomes the opportunity to further discuss the 2022 - 2023 Main Estimates.
• The main increase in funds for these Estimates is the result of class action settlements pertaining to the previous Administrative Segregation regime, which ended in November 2019 and was replaced with Structured Intervention Units.
• These Estimates also include financial increases for the continued transformation of the correctional system and to ensure that SIUs are operating as intended by providing better healthcare support for offender rehabilitation.
• Other financial increases are due to compensation for the funded portion of Collective Agreement increases as well as employee benefits, the re-profiling of funding for capital projects, and changes in prices and volume of goods and services being procured.

Financial implications:

• The total funding sought in the Main Estimates for 2022-23 is $3.1B, which represents an increase of $257M or 9.2% over the previous year.
• The net increase represents a net increase of $219.5M in Operating Expenditures, an increase of $26.0M in Capital Expenditures and a net increase of $11.5M in Statutory Expenditures (EBP).

C-83 Funding:

• $14.1M for health services
• $10.8M for incremental Structured Intervention Unit operations, which will likely be returned to the centre given that the Service has not opened new Structured Intervention Units.

Structured Intervention Units (SIUs): IAP Report

Proposed response:

• I welcome the Implementation Advisory Panel’s recent report.
• Administrative segregation was ended in 2019. It was replaced with Structured Intervention Units (SIUs) - a system that the Correctional Investigator has acknowledged provides greater access to services, staff, programs and interventions targeted to the needs of inmates.
• As a result of previous recommendations provided by independent review bodies, the Service has taken a number of actions including updating its information management systems to produce accurate data and demonstrate compliance with the legislation.
• We are carefully reviewing these new findings to identify any additional actions to be taken.

If pressed: Successes

• Structured Intervention Units are used as a last resort.
• The daily occupancy rate inside Structured Intervention Units are now half of what it was under the previous model.
• In addition, the targeted nature of Structured Intervention Units has resulted in a notable annual increase in the percentage of inmates successfully reintegrating into the mainstream population.

If pressed: Overrepresentation

• We are taking measures to address the overrepresentation of Indigenous and Black people in our criminal justice system, including corrections.
• Before authorizing a transfer to a Structured Intervention Unit, specific needs based on Indigenous Social History factors are considered while alternative options among CSC’s Indigenous programming is sought.
• When a transfer to a Structured Intervention Unit is deemed necessary, culturally relevant support is offered by providing access to Elders, Spiritual Advisors, and Indigenous liaison officers.
• We are looking closely at the data to examine reasons behind their transfer and work to ensure they are equipped to safely return and stay in a suitable mainstream population.

If pressed: Mental health

• The decision to transfer an inmate to a Structured Intervention Unit always includes consideration of the inmate's health needs.
• Within 24 hours of being transferred to a Structured Intervention Unit, an inmate is referred to health services for a health assessment, including mental health.
• This is repeated at regular intervals.
• At the same time, we recognize the importance of ensuring that inmates with mental health challenges are placed in the most appropriate setting, where they can receive ongoing and timely care and interventions based on their needs.

Background: Structured Intervention Units (SIUs)

In November 2019, administrative segregation was abolished and CSC implemented a new, intervention-based correctional model called Structured Intervention Units (SIUs). SIUs allow CSC to separate inmates who cannot be safely managed within a mainstream inmate population while continuing to provide these inmates the opportunity to access rehabilitative programming and interventions. On a daily basis, inmates in an SIU:

• Receive offers of interventions and programming specific to the reasons that led to the transfer, and to assist in facilitating their return to a mainstream population;
• Have an opportunity to be outside of their cell for at least four hours a day, and have an opportunity to interact with others for at least two hours;
• Receive a visit from the Institutional Head;
• Receive time to shower; and
• Receive daily visits from healthcare professionals who may recommend for health reasons that the inmate’s conditions of confinement be altered or that they not remain in the unit.

There are 15 SIUs across the country, which are used for inmates who may be at risk, pose a risk to others or jeopardize the security of the institution. CSC works to provide inmates in an SIU with customized and targeted interventions to support their safe return to a mainstream inmate population as soon as possible.

For context, there is consistently less than 180 inmates in SIUs across the country on a daily basis - about 1.5 per cent of the total inmate population. This is approximately half of the inmates who were in administrative segregation in 2019. This reinforces that SIUs are being used sparingly, often as a last resort. Our results show a notable increase in the percentage of inmates who were transferred to SIUs who have since successfully reintegrated into the mainstream population, from 56 per cent last fiscal year to more than 66 per cent as of March 2022.

IAP Report

The IAP listed four main findings related to: SIU transfers and Indigenous inmates; consistency in regional approaches both in the use of SIUs and the length of stay; the application of offers for time out of cell and meaningful human contact; and the mental health of inmates. These are all areas that we are further examining to ensure we take any additional actions necessary.

Oversight

Additionally, there are effective safeguards in place, including through the Independent External Decision Makers (IEDMs) who provide oversight in specific circumstances on the decision to maintain or not maintain an inmate’s stay in an SIU as well as on their conditions of confinement while in these units. We implement their recommendations, and their decisions are binding.

While in an SIU, CSC actively makes offers to encourage inmates to spend time out of their cells. In addition, we are improving our data tools and real-time tracking of offers for time out of cell and whether inmates avail themselves of these offers. This helps us take more targeted and case-specific actions. We also consider the reasons why some inmates decline the opportunities offered to determine how to better support and engage them. CSC staff work to provide access to relevant programs and look for opportunities to offer meaningful interaction with others.

For example, at Atlantic Institution in New Brunswick, the Canadian Families and Corrections Network (CFCN) is offering the Dad Hero program to help inmates in an SIU build connections with their children and family. To encourage offenders to get out of their cell, an educator at Millhaven Institution in Ontario has implemented a Physical Education course: Health for Life. This program has changed offenders’ attitudes towards education and several inmates have successfully completed their high school diploma while in the SIU.

Finally, the decision to transfer an inmate to an SIU always includes consideration of the inmate's health needs. Within 24 hours of being transferred to an SIU, an inmate is referred to health services for a health assessment, including mental health. This is repeated at regular intervals. At the same time, we recognize the importance of ensuring that inmates with mental health challenges are placed in the most appropriate setting, where they can receive ongoing and timely care and interventions based on their needs.

Overrepresentation of BIPOC

Proposed response:

• I share the concern about the overrepresentation of Black and Indigenous peoples in federal institutions and am committed to taking actions to address systemic factors that have contributed to the disproportion, which includes:
• The creation of Indigenous Interventions Centres to provide streamlined support to Indigenous offenders, from the commencement of their sentence.
• The streamlining of the Section 84 release process to remove barriers to participation.
• The implementation of several reintegration initiatives that support Indigenous offenders as they transition to a life in the community, including project funding for Indigenous organizations delivering trauma and life skills interventions.
• Implementing the Indigenous Offender Employment Initiative in Prairie, Ontario and Pacific regions.
• An Ethnocultural Action Framework, whereby over 60 staff members provide key support to ethnocultural offenders at the site level on a volunteer basis.
• Culturally relevant correctional programming for Indigenous offenders and Inuit men offenders as well as training for staff.
• Despite these efforts, I recognize there is more work to be done.
• That is why we will support the creation of a Deputy Commissioner for Indigenous Corrections and continue to work with our partners to support the rehabilitation of Indigenous offenders and ensure they are provided the tools and services they need to successfully reintegrate into the community.

If pressed: Progress

• The Correctional Service of Canada is committed to making a positive impact on racialized offenders in its custody.
• There have been some important improvements in performance outcomes for Black, other racialized, and Indigenous offenders, including:
  • The percentage of time served from admission to first release for Black offenders with a determinate sentence decreased by 12% over the past decade.
  • The rate of Black offenders who had their conditional release suspended, or revoked, while on supervision in the community decreased by over 42% and 45% respectively since 2015-16.
  • During the same period, the rate of Black offenders who have been convicted of a serious or violent conviction while on supervision in the community decreased by over 42%.
  • Discretionary releases (i.e. day and full parole) of offenders are increasingly successful, with results for Indigenous offenders increasing by almost 10% since in 2015-16.
• Since 2017, CSC has increased its efforts to address Indigenous over-incarceration by enhancing culturally relevant and appropriate programs and support for Indigenous offenders, both in custody and on conditional release.
• There is still much to be done and the Service remains committed to continuing its commitment to improve results.

If pressed: Indigenous Women

• The Correctional Service of Canada is working with its criminal justice partners and Indigenous peoples to address the overrepresentation of Indigenous peoples. This requires a concerted effort at many levels.
• This includes:
  • Ongoing work to increase in successful transfers to Healing Lodges, whereby culturally appropriate services and programs are offered;
  • Indigenous teachings and healing being made available at all women’s institutions through Elders and/or Spiritual Advisors;
  • Correctional programming for Indigenous women offenders, which includes a program continuum from intake to sentence expiry designed to meet the specific needs of Indigenous women offenders by including ceremonial sessions, culturally relevant materials and Elder involvement; and
  • Implementing a National Indigenous Plan to streamline resources and services, and create Indigenous Interventions Centres to provide ongoing support.
• Despite these efforts, we recognize there is more work to do to end the overrepresentation of Indigenous women in our criminal justice system.
• That is why we will continue to work with Indigenous partners to support the rehabilitation of Indigenous offenders and ensure they are provided the tools and services they need to safely and successfully reintegrate into the community.

Indigenous Offenders

The Correctional Service of Canada (CSC) continues to see an increase in the proportion of federally sentenced Indigenous offenders. At the end of fiscal year 2020-2021, Indigenous offenders represented 31.6% of the total in custody population and Indigenous women offenders represented 43.2% of the total in custody women population.

CSC is working to respond to the disproportionate representation of Indigenous peoples in custody, through a variety of programs. The following are examples of such actions taken by the Service.

• The implementation of the National Indigenous Plan, which includes streamlining existing Indigenous resources and services to ensure that those offenders choosing to access the Indigenous Continuum of Care interventions are prioritized for placement at specific sites.
• Indigenous Interventions Centres (IICs) are a key component of regional Indigenous action plans. The IICs integrate intake, programs and interventions, and engage Indigenous communities at the start of an Indigenous offender’s sentence, or at least at two years before their first eligibility date.
• The implementation of the Pathways Initiative for offenders who are committed to following an intensive traditional path of healing which includes the active involvement of Elders. The Indigenous Women’s Pathways Continuum provides opportunities for Indigenous women to engage in intensive healing interventions supported by Elders through specific activities.
• The provision of correctional programming for Indigenous offenders and Inuit men offenders, designed to meet their specific needs by including ceremonial sessions, culturally relevant materials and Elder involvement.
• The development and continued deliverance of Indigenous Social History (ISH) training for staff. The focus of this training is the integration of ISH considerations in decision-making and increased responsiveness to the unique needs of Indigenous offenders in interventions.
• In December 2019, a Sub-Committee of our Executive Committee convened to focus discussions on Indigenous Corrections. This committee identified eight priority areas that span not only in the federal correctional continuum, but also in CSC’s efforts to recruit and sustain an exemplary level of Indigenous staff, enhance Elder interventions, and collaborate across federal government departments as well as with provincial and territorial counterparts.
• The Connecting Spirits, Creating Opportunities (CSCO) initiative is a wellness and community-building initiative for Indigenous employees that will support the participants and their managers in career planning. Ultimately, the goal of the CSCO is to promote retention of culturally competent Indigenous employees in support of succession planning.
• In 2017-18, CORCAN commenced implementation of the Indigenous Offender Employment Initiative (IOEI) in the Prairie Region, including expanded construction skills training programs at the three CSC operated Healing Lodges, and the Edmonton Institution for Women, as well as expansions at men’s sites in the region and the opening of two CORCAN Community Industries (Saskatoon and Edmonton). Implementation is continuing over several years, with additional plans in Pacific and Ontario Regions to continue enhancements in 2022-23. IOEI has also resulted in development and implementation of Indigenous men and Indigenous women curriculums for essential skills training related to employment, and most recently in the launching of an Indigenous Entrepreneurship program in the Prairie Region.

Indigenous Women Offenders

Since late December there have been articles published on data from Dr. Zinger detailing that the number of Indigenous women incarcerated in federal prisons continues to grow. On May 5, an article was published in the Globe and Mail detailing that 50% of female offenders are Indigenous.

The article also questioned progress on the creation of a Deputy Commissioner, Indigenous Corrections, highlighting its inclusion in the Murdered Indigenous Women and Girls’ (MMIWG) calls for justice. It is acknowledged that while CSC agreed to prioritize the hiring of a deputy commissioner for Indigenous corrections, the position is not yet filled.

CSC’s approach to working with Indigenous women is holistic, women-centred, and founded on the principles identified in the 1990 Creating Choices report, the 1997 National Strategy on Aboriginal Corrections, and the 2006-2011 Strategic Plan for Aboriginal Corrections. Creating Choices specifically advocated for the creation of a Healing Lodge for Indigenous women inmates that would focus on traditional healing practices in a culturally relevant environment. The opening of the Okimaw Ohci Healing Lodge (OOHL) in 1995 was a major milestone towards meeting the healing and reintegration needs of this unique population. OOHL provides culturally appropriate programming and traditional healing practices, facilitated by Elders and Spiritual Advisors. To better meet the needs of Indigenous women, the capacity of OOHL was expanded from 44 to 60 beds in 2016.

In September 2011, CSC and the Native Counselling Services of Alberta collaborated on the opening of the first section 81 facility for women, Buffalo Sage Wellness Centre, which provided 16 multi-level beds for women offenders with four beds designated as section 84 releases. In November 2017, the Agreement was expanded and an additional 12 beds were added for a total of 28 beds. (Section 81 of the Corrections and Conditional Release Act allows CSC to enter into an agreement with an Indigenous community for the provision of correctional services to Indigenous offenders.)

In July 2019, CSC signed an agreement with the Indigenous Women’s Healing Centre (IWHC)’s Eagle Women’s Lodge (EWL) to convert EWL from a Community Residential Facility (CRF) into a Healing Lodge. This agreement provides a greater number of women with timely access to beds in a Healing Lodge closer to their community. This multi-level facility will accommodate up to 30 women classified as minimum and, on a case-by-case basis, medium security and conditionally released federally sentenced women. 

Pathways Healing Units were established at Fraser Valley Institution, Edmonton Institution for Women and Grand Valley Institution to meet the healing and correctional needs of Indigenous women in preparation for either release to the community, or transfer to OOHL, or a section 81 healing lodge (i.e. Buffalo Sage Wellness Centre or Eagle Women’s Lodge). As of 2016, a full Women Offender Pathway Continuum was introduced at these three institutions to provide opportunities to women inmates at all three security levels to participate in the initiative. Also, in 2009, Nova Institution introduced an Aboriginal healing house that provides cultural interventions similar to those offered in Pathways Units.

Black Offenders

At the end of 2020-21, there were 8.6% of incarcerated offenders who had identified themselves as Black, while there were 7.1% of offenders supervised in the community did so. From 2016-2017 to 2020-2021, the proportional decrease of incarcerated Black offenders showed a decrease of 7.2%, in contrast to incarcerated Caucasian offenders which was 23.2%, and during the same period.

CSC reviewed how ethnocultural offenders are reintegrating in the community in terms of program participation, employment opportunities and successful completion of sentence. CSC invested $20,000 for this project, in addition to approximately a 1.5 full time employee equivalent from CSC’s Research Branch (combination of research managers, analysts and students). CSC used a combination of internal and external resources, in collaboration with Nipissing University.

Currently, Black offenders are offered varied interventions and services aimed at supporting their reintegration. These initiatives include:

• addressing cultural employment and mentorship needs;
• receiving virtual community in-reach from community service providers and volunteers, when possible;
• providing culturally-relevant materials for personal development purposes; and
• when appropriate, recommending and facilitating Day Parole releases to “other locations”, as defined by the Parole Board of Canada, which may include offenders’ home communities in order to support access to enhanced cultural supports.

Use of force (OCI Report)

Proposed response:

• The Correctional Service of Canada welcomes the findings and recommendations made by the Office of the Correctional Investigator of Canada in his Annual Report.
• We have carefully examined all recommendations put forward by the Correctional Investigator and are taking concrete actions to address them.
• The Service will continue to work with all partners to ensure that results are achieved in the areas identified in this report.

If pressed: Systemic Racism and Use of Force

• Racism and discrimination have no place in our society, inside or outside of the Correctional Service of Canada.
• Work is underway specifically related to use-of-force incidents.
• The Service will consult with a group of stakeholders on a data analysis with respect to the Use of Force to ensure that strategies that were necessary and proportionate to manage the incidents were used. 
• The analysis will be reviewed with stakeholders to determine whether the Engagement and Intervention Model was applied without bias.
• Should any trends emerge from the analysis, the Service will develop an action plan to address any gaps identified.

If pressed: Engagement and Intervention Model

• The Service has completed an evaluation of the Engagement and Intervention Model.
• While the recent evaluation found overall positive trends, findings suggest that particular attention should be given to “Use of Force” interventions that involve inmates who are displaying physical or mental distress.
• In response to the recommendations in the final evaluation report on the evaluation of the Engagement and Intervention Model, the Service has developed a Management Action Plan to address identified areas requiring improvement.

If pressed: Creating choices

• The Service is a world leader in the area of women's corrections and we continue to enhance services, programs, and strategies to meet the specific needs of women offenders.
• The Service continues to follow the principles of Creating Choices through the principles of empowerment, meaningful and responsible choices, respect and dignity, supportive environments, and shared responsibility.
• We make every effort to ensure that women are housed at the lowest possible security level that responds to the risk they present.
• We are currently reviewing correctional programming for women offenders to increase content on cultural relevancy for Indigenous women.
• We have also established a National Working Group to obtain feedback on proposed changes from program experts across the country. 

Background - Use of force (OCI Report)

Under the provisions of the Corrections and Conditional Release Act (CCRA) (Part III), the Correctional Investigator (CI) serves as the Ombudsman for federal offenders. His primary responsibility is to independently investigate and facilitate resolution of offender issues.

The Annual Report for 2020-21 provides 20 recommendations, 16 of which are directed to CSC and the remaining four are directed to the Minister of Public Safety. Recommendations are centred around main themes: the overreliance and intersection between the use of force and systemic racism against Indigenous and Black individuals; strategies to better accommodate the rehabilitative needs of women; monitoring and reporting on stays within Structured Intervention Units (SIUs) as well as other forms of isolation; as well as treatment of offenders living with mental health challenges.

The OCI also provides updates on the progress being made on recommendations from previous Annual Reports, including addressing Sexual Coercion and Violence (SCV); facilitating access to harm reduction measures such as Overdose Prevention Sites (OPS) and Prison Needle Exchange Programs (PNEP), as well as use of force.

Uses of force involving federally incarcerated Black, Indigenous, Peoples of Colour and other vulnerable populations.

The report noted that despite accounting for 44% of the prison population, BIPOC individuals accounted for nearly 60% of all individuals involved in a use of force incident over the past five years. Conversely, White individuals accounted for 42% of people involved in a use of force event while representing 52% of the prison population. Additionally, 46% of all individuals involved in a use-of-force incident had a history of self-injury or attempted suicide.

Four recommendations regarding the use of force were made, including an evaluation of the Engagement and Intervention Model; use of inflammatory sprays; action plan to address use-of-force and systemic racism against Indigenous and Black Individuals; as well as tracking individuals with mental health concerns.

A Review of Women’s Corrections 30 Years Since Creating Choices

The OCI acknowledged the 30 year anniversary since the establishment of Creating Choices, which was meant as a “blueprint” for women’s federal corrections.

Through the Annual Report, the CI identifies nine issues in the progression of Creating Choices, which includes prisons being inadequate; oversecure; having poor programming; isolation from families; unable to meet the needs of Aboriginal and Francophone women; unable to integrate women into their communities to promote rehabilitation.

In response, the CI made recommendations such as increasing the role of temporary absences and work releases; developing a long-term strategy to prepare women at the earliest possibility; as well as the developing alternative accommodations for women housed in secure units.

Sexual coercion and violence

Proposed response:

• The Correctional Service of Canada has no tolerance for sexual violence of any kind in our federal penitentiaries.
• It is our expectation that any allegation raised will be taken seriously, while the police will be informed immediately of any incidents that could constitute a criminal offence.
• Following extensive consultations with a wide range of stakeholders, including the Correctional Investigator, the Service has developed a new policy (promulgated on May 9, 2022) providing clear direction to frontline staff and healthcare professionals on how to respond to incidents and allegations of sexual violence.
• Alerts are being set to identify offenders that are vulnerable to, or are perpetrators of sexual violence, to ensure appropriate action can be taken to better prevent this violence.
• Additionally, the Correctional Service of Canada is also supporting research to better understand and inform an overall strategy on this issue, which will be informed by both domestic and international best practises.

Background: Sexual coercion and violence:

Over the years, CSC has taken a number of actions to address incidences of SCV. Here are a few examples of some of its actions:

• In 2011, CSC’s Code of Discipline was significantly amended to reinforce staff accountability to report any mistreatment, harassment or discrimination towards offenders by staff, and provide a process to promptly address and resolve staff allegations
• In 2019, the Code of Discipline and the Staff Protocol in Women Offender Institutions “were amended to strengthen the wording associated with the management of staff incidents that could constitute a criminal offence”, including allegations of sexual misconduct, and the requirement to report to the police of jurisdiction.
• CSC has developed a new policy and guidelines that provide clear direction to staff on how they must respond to incidents of SCV. (Commissioner's Directive (CD) 574 - Sexual Coercion and Violence Framework was promulgated on May 9).
• To complement the new policy, guidelines were also established to provide clear and strengthened direction to our health care professionals when responding to incidents of SCV. (GL 800-11 - Health Care Response to Sexual Assaults of Offenders was also promulgated on May 9).
• Training materials for staff are being updated and mandatory training on SCV and harassment is being put in place for front-line staff.
• CSC is also communicating with key external non-governmental organizations that provide support and services to victims of SCV.
• As recommended by the OCI, CSC is building on its current capacity to set alerts in its Offender Management System to identify offenders that are either vulnerable to SCV or are perpetrators of SCV.
• We are supporting research to better understand SCV to inform additional actions needed to detect, prevent and respond in a correctional environment. Public Safety Canada is leading a study on the prevalence of SCV.
• We have increased prevention and awareness through educational information in order to prevent these situations from occurring and to ensure that inmates know how to come forward. CSC is also paying specific attention to protecting vulnerable populations, such as inmates with prior trauma, 2SLGBTQI+, women and those with mental health or developmental disabilities.

Dry cells

Proposed response:

• Dry cells are one of many important tools used to prevent the introduction of contraband into federal penitentiaries.
• It is important that the use of dry cells are appropriate and do not unduly impact inmates because of their sex or gender.
• Amendments to the Corrections and Conditional Release Act are currently before Parliament to address the Court’s decision and ensure that the use of dry cells complies with the Charter.
• At the same time, we continue to explore new technologies, including body scanners, to better facilitate the detection and seizure of contraband in our institutions.
• In fact, two new body scanners just arrived at two CSC institutions. They will be operational in coming months and will provide an additional tool to identify contraband.
• Keeping contraband including drugs out of our institutions continues to a priority.
• Intercepting and seizing contraband helps to ensure a safe and secure environment for staff, inmates and visitors.

If pressed: Amendments

• The proposed amendments clarify that the use of dry cells can occur only for the seizure of contraband where there is reasonable grounds to believe it has been ingested (e.g. digestive track), or is being carried in the rectum.
• In addition, if an inmate is placed in a dry cell, they receive a visit from a registered health care professional once a day.

If pressed: Imposing a maximum number of days

• Imposing a maximum number of days is problematic as there is no consensus amongst health professionals as to the length of time contraband can be held in the digestive system prior to being expelled.
• Widely available medical literature refers to lengths of time varying from one to two days to beyond a week in certain circumstances.

If pressed: Other tools

• A variety of tools are used to conduct searches, including body scanners and drug-detector dogs. Additionally the Service will pilot scanners at two institutions this fiscal year.
• Currently, drone detectors are utilized in all regions and a number of high profile seizures have occurred over the past year.
• Earlier this year, thanks to the vigilance of staff, there were four significant seizures of illicit drugs, worth hundreds of thousands of dollars.
• Dating back to 2016-17, there have been over 20,000 drug-related seizures, which speaks to both the professionalism of our employees and the successes of their searches.

Background: Dry cells:

The current Corrections and Conditional Release Act (CCRA) provision related to the use of dry cells must be amended to ensure that it complies with the Canadian Charter of Rights and Freedoms (Charter), following a Nova Scotia Supreme Court decision which struck down the provision as unconstitutional. The Court found section 51(b) of the CCRA unjustifiably violated section 15 of the Charter.

If an institutional Head is satisfied that that are reasonable grounds to believe that an inmate has ingested contraband, or is concealing contraband in a body cavity, section 51(b) of the CCRA permits CSC to place them in a dry cell - a cell that lacks plumbing fixtures, and is subject to continuous observation. The inmate remains in the dry cell until any suspected contraband is expelled or there is no longer a reasonable expectation that the contraband will be expelled.

As contraband in the vagina is not expelled in the same manner or at the same pace as contraband in the digestive tract, this leads to the potential for women to be subject to a longer dry cell placement, beyond durations faced by men.

As a result of this decision, Public Safety Canada and CSC are seeking amendments to the CCRA to ensure that provisions related to the use of dry cells comply with the Charter and address the Court’s decision in federal institutions across Canada.

The CCRA amendments seek to restrict detention in dry cells to where the institutional head has reasonable grounds to believe that an inmate has ingested contraband, or that contraband is being carried in the inmate’s rectum.

COVID-19 in federal corrections

Proposed response:

• The Correctional Service of Canada is committed to protecting the health and safety of staff, offenders, and the public during these unprecedented times.
• As it has been doing since the beginning of the outbreak, the Service has continued to adapt by applying infection prevention and control measures to contain the spread of COVID-19, in consultation with public health experts.
• We have implemented a multifaceted response in which each measure compliments the other and taken together keeps everyone as safe as possible during the pandemic. These measures include:
  • vaccines
  • universal masking and additional Personal Protective Equipment as required
  • hand hygiene
  • physical distancing whenever feasible
  • enhanced cleaning and disinfecting
  • medical isolation for staff and inmates when they are COVID+ or high risk contacts.
• The Correctional Service of Canada continues to work with our partners to take the necessary action to keep our frontline staff, offenders, and communities safe.

Background- COVID-19 in federal corrections

CSC implemented a number of measures to keep staff, offenders and the public safe during the COVID-19 pandemic. CSC was recently featured in a World Health Organization publication on best practices.

Cases among inmates

As of May 1st, 2022, there are 288 active COVID-19 cases among federal inmates across the country.

Since March 2020, CSC has had 4,855 positive inmate cases and six deaths in its institutions. CSC is transparent in its steadfast management of COVID-19 cases. As such, testing, positive cases, vaccination rates, and deaths are posted regularly on CSC’s website and updates are provided to stakeholders.

COVID-19 in federal institutions

All staff and inmates are equipped with level 2 medical masks. Based on the tasks being completed and an individualized assessment of risk, staff may also wear a respirator and additional PPE (ie: face shields, gowns and gloves). For example, staff who work with inmates who have tested positive for COVID-19 wear respirators and face shields.

CSC has also established measures to help prevent the spread of the virus within the institutions. Employees are required to do a rapid test at least every 48 hours while at work. For outbreak sites, they can test daily while on site and all individuals entering institutions are actively screened. When in-person visits are temporarily suspended, other options such as telephone calls and video visitations are available to inmates to connect with their family and support networks.

Medical isolation

CSC’s medical isolation guidelines were developed by health professionals and adhere to public health principles to prevent and contain COVID-19 outbreaks. The algorithms are constantly reviewed and updated as the pandemic progresses and changes. When inmates are in medical isolation, all reasonable efforts are made to provide the inmate opportunities to be out of their cell to attend activities of daily living (e.g., opportunity to shower), yard time, and access to telephone calls, with appropriate infection prevention and control measures in place. Medical isolation is meant to be the least restrictive possible while keeping inmates on individual routines to contain the spread of COVID-19.

Reduced staffing due to self-isolation

As there are increasing levels of community transmission of COVID-19 across regions, CSC regularly reviews its impact upon staffing levels for all institutions, to ensure appropriate resources are available to manage operational requirements and provide safe, humane care for the inmates in custody. There is a contingency plan, which indicates additional measures that can be taken to address a staffing level issue, such as approving staff overtime and having managers replace correctional officers, as needed. Currently, staffing levels at institutions are adequate to ensure the safe operations of the facilities.

Once a staff member tests positive for COVID-19, they will remain away from the workplace until it is deemed appropriate for them to return based on public health requirements and CSC’s guidelines for congregate living environments. CSC’s return to work protocols for asymptomatic high risk contacts meet or exceed provincial public health guidance in all cases. CSC has a protocol in place to return staff to the workplace if needed to maintain critical public safety services. The protocol meets or exceeds the local public health requirements in all provinces. The protocol focuses on returning asymptomatic staff who are isolating due to a high risk exposure and who have completed the majority of their 10 day isolation period together with ongoing rapid testing and additional work isolation measures.

Video visitation kiosks

To ensure offenders could maintain contact with their loved ones and support networks during the COVID-19 pandemic, CSC increased video visitation kiosks by 228%, with 117 dedicated video visitation kiosks and 70 multi-purpose kiosks that are also used to facilitate virtual health case interactions, interim offender program delivery, and legal proceedings. These are now available across the country. CSC also increased the bandwidth to support the use of video visits, and, at many sites, increased the hours during which video visits are available. This has resulted in a 300% increase in video visitation usage, with an average of 160 video visitation sessions held each day across the country in CSC’s institutions, a significant increase from the 41 sessions held on average daily pre-pandemic.

Penitentiary agriculture program

• The Penitentiary Agriculture Program helps federal inmates gain employment skills to find meaningful employment in the community, which enhances reintegration and reduces recidivism.
• In fact, offenders who find jobs in the community are three times less likely to return to custody for a new offence.
• Let me be clear, there are currently no goats involved in CSC’s agriculture program.
• Therefore, Correctional Service Canada does not have any agreements with third parties for the sale of goat milk.
• Plans for a dairy goat program were paused last year and will be reassessed at a later date.
• The immediate focus remains on the implementation of dairy cow operations at both Joyceville and Collins Bay Institutions.

If pressed: Inmate pay

• The agriculture operations are being run in accordance with applicable provincial and federal government legislation and practices, and industry standards.
• Additionally, since Canada is a founding and active member of the International Labour Organization, CSC is continuously working to meet its strict obligations. This includes ensuring that offender employment programs meet the definition of free consent and is not occurring under the threat of penalty.
• Inmates normally receive inmate pay in accordance with legislation for participation in program assignments which can include correctional, education, social, and employment programs.
• These assignments contribute to their rehabilitation and reintegration into the community.
• The pay levels for federal inmates are based on factors such as an offender’s accountability, their progress in meeting the objectives of their correctional plan, and the amount of time they spend participating in reintegration programs.
• An inmate’s level of pay is reviewed at least once every six months and their pay level may be adjusted based on their ability to meet the requirements of each pay level.
• During the pandemic, CSC temporarily waived the food, accommodation and telephone deductions, which represent 30% of the inmates’ pay.

Background

The model for penitentiary farm operations at Joyceville and Collins Bay institutions was determined following a broad range of public consultations and review program, and includes dairy cow and dairy goat operations, in addition to land management, horticulture, and crop production.

Due to the unplanned financial challenges to address the global COVID-19 pandemic across the organization, CSC decided to focus its dairy operations on the dairy cow program and temporarily pause the implementation of the dairy goat operation. In the meantime, CSC will continue to engage with community members and stakeholders, and proceed with continuing to implement other aspects of the program and the dairy cow operations, including construction of a new barn at Joyceville Institution.

The penitentiary farm operations are being implemented in accordance with all relevant legislation and policy. Procedures are being integrated within the penitentiary farm operations that respect both provincial and federal government legislation and practices, and in accordance with industry standards, as it relates to farm animal welfare, and including appropriate biosecurity measures. Offenders are involved in building and renovating necessary infrastructure, as well as working to repair and rebuild farmland, in addition to crop production. The reopening of the farms represents a renewal of the penitentiary farms model that includes additional technical skills, certifications, and community partnerships. The farms provide on-the-job training, vocational certification, and employability skills that support offenders in their reintegration.

There is forthcoming construction of a new dairy cow barn at Joyceville Institution. The contract for the construction of the correctional farm for dairy cows was awarded March 11, 2022 and published on buyandsell.gc.ca.

Current and future operations

The land size at Collins Bay and Joyceville institutions includes land that buildings are located on, woodlots, sugar bush, orchard, greenspace and other uses. Thus, the total size between the two sites is approximately 860 acres of workable land. Since the implementation commenced in 2018, crop production, horticulture, beekeeping, forestry management, maple syrup production have all been implemented at both sites. In addition, small livestock operations of beef cattle and the commencement of building the dairy cattle herd have also occurred. Cattle are housed at Collins Bay Institution and pastured at both sites when appropriate.

Furthermore, to provide a variety of land based activities, CSC’s offender employment program includes crop production at both sites as well as offenders at both institutions are involved in growing vegetables for their own consumption, as well as for donation to local food banks. This model incorporates land based activities that result in items for internal use, donation, as well as opportunities to generate revenues that will be reinvested into the offender employment and employability program.

Offenders have had the opportunity to participate in the agriculture program learning both technical and transferable skills through theory and practical learning models. These areas continue to be enhanced and CSC is working with environmental initiatives and agriculture groups to continue building a program that represents the diverse nature of agriculture in Canada. The full implementation of the dairy cattle operations, along with other environmental and land based activities will further enhance the program to provide employment and employability skills to the program participants.

Sale of products

The sale of products generated through the agriculture program will be determined by internal use requirements, agreements and contracts signed as implementation occurs and products are available. The diversified penitentiary agriculture program activities, including both livestock and land based elements, contribute to offender learning and provide the opportunity to represent various parts of the broad spectrum of agriculture activities in Canada. CSC will continually be re-evaluating its operations as the plan is executed and will be taking into account elements such as sustainability and market availability, noting that dairy cow milk will be managed in accordance with Canada’s system of supply management for this product. All revenues generated will be reinvested into the offender employment and employability program.

Hazard pay for Correctional Officers

Proposed response

• The health and safety of staff, offenders, and the public have been paramount during these unprecedented times.
• We recognize there are unique risks and challenges of working in a correctional setting and I am very proud of the exceptional work of correctional staff throughout this pandemic.
• These unique risks are factored into the overall salary levels for correctional and other federal workers. While there has been no specific wage premium extended to federal employees due to the pandemic, the Treasury Board of Canada, who oversees these provisions, has provided additional paid leave in the form of 699 to all employees, including correctional staff.
• The Service continues to work with its labour partners, Public Health, and stakeholders to make operational decisions related to the pandemic.
• CSC continues to evolve its approach based on the latest evidence and science while working to support our front line workers for the work they do to keep Canadians safe.

Background hazard pay

Throughout the COVID-19 pandemic, certain groups of front line workers have been recognized by what is known as “hazard pay” - increased financial benefits for those whose work brought them a greater risk of contracting the virus.

Due to the fact that prison environments are congregate living settings and physical distancing harder to maintain, the union of correctional officers (UCCO-SACC-CSN) has claimed that its Correctional Officers have faced an increased risk of transmitting the COVID-19 virus due to outbreaks in CSC’s institutions. As such, the union has sought similar financial pay for its employees.

While Correctional Officers employed by CSC do not receive hazard pay, the unique risks and challenges of working in a penitentiary workplace have been factored into the overall assessment of working conditions for the CX classification group and included as factors within the overall salary levels for such workers. Additionally, vaccination campaigns for both employees and offenders are ongoing, while public health protocols continue to be assessed and improved as necessary in order to limit the introduction and transmission of this virus.

TBS has extended additional paid leave to all employees (699 leave) since the beginning of the pandemic, including Correctional Officers, to respond to the unique COVID-19 challenges and impacts on employees. To date, TBS has not approved the union’s request for pandemic/hazard pay.

Contraband detection

• We have a zero tolerance approach to illicit drug trafficking and take action to prevent, detect and apprehend all contraband using a range of tools, such as searches, programming, random urinalysis, and opiate agonist treatment.
• Currently, drone detectors are utilized in all regions of the country and a number of high profile seizures have occurred over the past year.
• Additionally, the Service is working to further enhance its technology and air ground intrusion detection systems to prevent contraband introduction.
• Drone detection is only one layer of defence, and the Service remains committed to the introduction of body scanners and other new technology, in order to better facilitate the detection of contraband.

If pressed on Air Ground Intrusion Detection System

• Ground detection system will be piloted at Donnacona Institution in the Quebec Region. This particular institution was selected as it has a high number of reported drone sightings.
• Equipment has been delivered. Implementation is scheduled to begin this month. System testing and the trial period is scheduled to begin in the Fall.

If pressed on Body Scanners

• Body scanners were introduced in legislation - Corrections and Conditional Release Act - in June 2019 as part of Transforming Federal Corrections.
• Work has been done to draft the regulatory amendments that will provide details as to when and how the Service will use body scanners.
• Body scanners have been installed at Bath Institution in Ontario and Edmonton Institution for Women in the Prairie Region.
• While not yet operational, the Service is finalizing training, operational standards and certification. It is expected the system will be operational by Summer.
• The use of body scanners will provide staff with an alternative means for searching persons that is less physically intrusive, while respecting their dignity, gender considerations, and cultural and religious practices.

Background

CSC has a zero tolerance approach to illicit drug trafficking and works with its employees to take appropriate action to prevent, detect and apprehend all contraband using a range of tools.

UCCO has expressed concerns publicly about the accessibility of illicit drugs in institutions as well as the pace of adopting new technology such as body scanners and drones to reduce their availability. Such technology would enhance the ability of officers to detect and seize contraband, while also respecting the dignity, gender considerations, as well as the cultural and religious practices of the person being searched.

Body scanners were introduced via former Bill C-83: Transforming Federal Corrections. Work has been done to draft the regulatory amendments that will provide details as to when and how the Service will use body scanners. Pre-publication in the Canada Gazette, of the proposed regulatory amendments, is anticipated by March 2023. This will allow all stakeholders to be formally consulted prior to its coming into force. In the interim, body scanners have been delivered and installed to Bath Institution, in Ontario, and at Edmonton Institution for Women.

On the issue of drone detectors, they are used in all regions of the country and a number of high profile seizures have occurred over the past year. CSC has allocated $6 million over the next few years for the implementation of its pilot drone detection program. The pilot project will deploy new drone detection systems over the next three years. Once in service, our teams will measure the performance of these systems.

Additionally, CSC is working to further enhance its technology and ground detection systems to prevent contraband introduction. A ground detection system will be piloted at Donnacona Institution (Quebec Region). This particular institution was selected as it has a high number of reported sightings of drones. Equipment delivery and installation is scheduled to begin in May and the trial period will begin in August 2022.

Prison Needle Exchange Program

Proposed response

• The opioid crisis has impacted Canadians of all backgrounds and across the entire country, including those who are currently in our federal penitentiaries.
• Consistent with the Canadian Drugs and Substance Strategy and recommendations by the United Nations Office on Drugs and Crime, the Service has adopted a harm reduction approach aligned with community standards that treats substance use disorder as a health issue.
• To limit the spread of infectious disease related to needle sharing, the Service currently offers an exchange program in nine institutions, and continues to address requests from inmates throughout the COVID-19 pandemic.
• Action has been taken to respond to the recommendations of an independent expert report, including updating health promotion materials as well as continuing efforts to provide timely access to Opioid Agonist Treatment through the elimination of waitlists and a focus on continuity of care.
• The Service will continue to work towards program roll-out for eligible inmates across Canada who see the program as beneficial to their overall health, while ensuring that they feel safe and secure during their participation.

If pressed: UCCO concerns

• The Correctional Service of Canada is committed to ensuring the safety of the thousands of dedicated staff who, on a daily basis, have the challenging task of managing a complex and diverse offender population.
• To date there have been no reported safety incidents involving staff or inmates involved with the Prison Needle Exchange Program in any of our institution

If pressed: Additional sites

• The Service continues to provide services to inmates at existing sites throughout this pandemic.
• The COVID-19 pandemic has impacted the ability to expand the program into additional sites, but the Service will implement additional sites at other institutions as soon as the pandemic permits.

Background: Prison Needle Exchange Program

In June 2018, CSC implemented a Prison Needle Exchange Program (PNEP) at two institutions: Grand Valley Institution for Women in Kitchener, Ontario (a multi-level women’s institution) and Atlantic Institution in Renous, New Brunswick (a maximum security men’s institution).

The objectives of the PNEP are: to reduce sharing of non-sterile needles; to increase opportunities to provide health teaching, health promotion and treatment; to reduce transmission of blood borne viral infection including HIV and HCV; and to reduce the occurrence of skin infections related to injection drug use

PNEP is currently implemented at nine federal institutions:

Grand Valley Institution (June 2018); Atlantic Institution (July 2018); Fraser Valley Institution (January 2019); Edmonton Institution for Women (February 2019); Nova Institution (March 2019); Joliette Institution (May 2019); Joyceville Institution Minimum (September 2019), Mission Institution Medium (November 2019); and Dorchester Penitentiary Medium (December 2019).

In addition PNEP implementation readiness has been completed at another 2 sites (Bowden Institution and Warkworth Institution) although program launch has been delayed at these sites due to the demands of the COVID-19 pandemic response.

The PNEP has continued to be available at these 9 sites throughout the pandemic. Individuals can submit a request to participate in the PNEP at any of the nine institutions and participation rates vary over time and across sites.

CSC has gained experience managing inmates using needles in a safe and secure manner with its existing programs for EpiPens and insulin use for diabetes. A Threat Risk Assessment model similar to the one currently in effect for EpiPens and insulin needles is used to determine if there are substantive security risks that would prohibit an offender from participating in the program. This could include, for example, a history of assaults with improvised weapons within the institution. Staff training and ongoing engagement with bargaining agents and other partners will help ensure safe and successful implementation.

Once enrolled in the PNEP, an inmate can exchange the entire PNEP kit for a new one as needed. Appropriate safeguards are established in every institution to ensure that PNEP kits are safely stored and accounted for.

PNEP participants are not exempt from rules against the possession and consumption of contraband, including illicit drugs.

PNEP Evaluation

Dr. Lynne Leonard from the University of Ottawa was engaged by CSC to conduct a rigorous scientific evaluation of the PNEP program and delivered an interim report in October 2020. The report provided several recommendations to improve the needle exchange program.

PNEP Consultations with bargaining agents

CSC has been engaging with all three bargaining agents, the Union of Safety and Justice Employees, the Professional Institute of the Public Service of Canada and the Union of Canadian Correctional Officers/Syndicat des Agents Correctionnels du Canada/Confédération des Syndicats Nationaux, and partners, on the implementation of the PNEP at the local, regional and national levels. At the institutions where the PNEP has been implemented, the implementation pathway involved engagement with institutional staff including the three bargaining agents, distribution of written information to staff and inmates and information sessions with staff, management, Citizen Advisory Committees, inmate committees, Workplace Health and Safety Committees and others. The same approach will continue as CSC continues its roll out of the PNEP at other institutions across the country.

Overdose Prevention Service

CSC received a jurisdictional exemption from section 56(1) of the Controlled Drugs and Substances Act from Health Canada in May 2019 in order to operate an Overdose Prevention Service (OPS). The OPS has the same objectives as the PNEP; however it is different in that participants are allowed to bring a personal amount of illicit drug to the site for consumption under the observation of a health care professional.

The first OPS was launched at Drumheller Institution on June 24, 2019. There have been 1,470 visits to the OPS between July 10th, 2019 and December 8th, 2021. Subject to completion of required changes and when the pandemic allows for additional sites to be implemented, additional OPS sites are scheduled for implementation at Springhill Institution, Atlantic Region and Collins Bay Institution (medium security unit), Ontario Region.  While there are overlapping goals between the PNEP and the OPS, the primary difference is that the OPS is intended to prevent overdose deaths by having health care professionals present during the use of substances who can respond to medical emergencies.

4. Key facts and figures

Employee numbers

In total, CSC employs approximately 18,621 staff from a vast number of fields.

As of May 11, 2022, CSC’s front-line staff workforce included:

• 6,351Correctional Officers;
• 445 Primary Workers;
• 1,262 Parole Officers;
• 452 Correctional Program Officers;
• 122 Indigenous Liaison Officers;
• 110 Indigenous Correctional Program Officers;
• 122 Social Program Officers;
• 945 Nurses; and
• 205 Psychology Staff.

CSC results

• CSC is continuing to see a decline in the overall federal custody population, from 14,886 at year-end in 2014-2015 to 12,215 as of March 2022, which is a decrease of almost 18%. CSC is also seeing an increase in the number of offenders being managed in the community, from 8,075 at year-end in 2014-2015 to 8,547 as of March 2022. This represents an increase of almost 6%.
• Offenders are being released earlier in their sentences, with the median percentage of sentences served down from 62.7% in 2015-16 to 58% in 2020-21 (down more than 4 percentage points). Furthermore, women offender results have seen a decreased percentage of sentence served down from 47.7% in 2015-16 to 35.6% in 2020-21 (down more than 12 percentage points).
• The rate of revocations of conditional release continues to decrease, with the rate of revocations without offence per 1,000 offenders going down by 25% between 2015-16 (223.1) and 2020-21 (167.9). A decrease in the rate of revocations of conditional release is also observed in the case of Indigenous offenders, with a decrease of 32%, and in the case of women offenders, with a decrease of 16% during the same period.
• The rate of convictions on supervision for serious or violent offences also continues to decrease, with the rate of serious convictions on supervision per 1,000 offenders going down by 8% between 2015-16 (24.7) and 2020-21 (22.7). A decrease in the rate of serious convictions on supervision is also observed in the case of Indigenous offenders, with a decrease of 21% during the same period. However, for women offenders, the rate of serious convictions on supervision has increased by 24% during the same period.

5. Issues recently raised at SECU

Radicalized offenders

• The Correctional Service of Canada is continuously working to ensure that federal penitentiaries are secure environments, which promote inmate rehabilitation and the protection of the public.
• Correctional Service Canada has long had plans in place to address extremism.
• Continuous and extensive interdisciplinary case management interaction occurs as well as the formulation of detailed correctional plans, which are specifically tailored to reduce risk for each offender based on their individual risk and needs.
• In addition, the Service reviews interventions used in other jurisdictions to ensure that the latest and best practices are being applied.
• The Service does, and will continue, to share information with both domestic and international partners, including within the law enforcement and national security community, to keep Canadians safe.

Article: CBC

On April 29, 2022, an article published in the CBC reports on a “top-secret” report alleging that two national security lawyers tasked by the RCMP and CSIS with making recommendations to deal with information-sharing bottlenecks in the national security intelligence sphere have expressed concern over "the lack of coverage over persons convicted of terrorism offences once they are in jail."

One of the recommendations was that CSC should “communicate more” with the RCMP and CSIS. An academic interviewed for the article dismissed the concerns averring that “patriotism” within the inmate population is not conducive to the spread of extremism while “hierarchies” might actually be keeping extremism in check.

Background

The Correctional Service of Canada (CSC) defines radicalized offenders as “ideologically motivated offenders, who commit, aspire or conspire to commit, or promote violent acts in order to achieve ideological objectives”. Radicalization to violent extremism is not a new phenomenon in federal corrections. CSC currently manages, and has managed in the past, various offenders who fall under CSC’s definition of a radicalized offender.

CSC's definition of radicalized offender does not focus on any specific ethnic or cultural group or religious denomination. While these offenders present CSC with some unique challenges stemming from their ideologically-based motivations, CSC is well positioned to manage any threats posed through existing security mechanisms, intelligence analysis, risk assessment, consultation with external partners and robust dynamic security practices.

CSC collaborates with Public Safety Canada portfolio agencies, and other partner agencies, through the sharing of information and intelligence regarding terrorists and violent extremists (radicalized offenders). Specifically, CSC works closely with Public Safety Canada, the Royal Canadian Mounted Police (RCMP) and the Canadian Security and Intelligence Service on national security issues.

• As of April 10, 2022, there were 13 offenders serving federal sentences under CSC’s jurisdiction on terrorism-related offences - 9 in federal institutions and 4 under community supervision.
• Sentences range from four years to life.
• CSC’s terrorist-convicted and radicalized offender population represents a very small proportion of those persons identified as belonging to a Security Threat Group (STG).
• However, this population poses a unique threat to CSC, our departmental responsibilities, and the safety and security of our staff and offender population.

Security Threat Groups: General

• The Correctional Service of Canada is responsible for the incarceration and supervision of federally sentenced offenders, which includes offenders who are affiliated with Security Threat Groups.
• The Service is focused on ensuring that federal correctional institutions provide an environment conducive to offender rehabilitation, staff and offender safety and the protection of the public.
• Security Threat Groups, and offenders who are affiliated to these groups, are considered a risk to the safety and security of the Correctional Service of Canada’s operations.
• The Correctional Service of Canada recognizes the potential barrier that Security Threat Group affiliations pose with respect to the safe and effective reintegration of offenders, and ultimately, to public safety at large.
• As with all offenders, upon entering federal custody Security Threat Groups affiliated offenders undergo assessments to determine their correctional and criminogenic risk needs. They are referred to the appropriate program intensity level and interventions based on these assessments.
• To address this issue, the Correctional Service of Canada actively aims to mitigate the risks posed by Security Threat Groups in the federal correctional system. These mitigation strategies are based on three overarching elements: identification and verification; prevention and intervention; and termination of affiliation.
• The Correctional Service of Canada will continue to address these challenges through its multi-pronged Security Threat Group Strategy, and by continuing to work cooperatively with its criminal justice and law enforcement partners to access and share information that supports the prevention of Security Threat Group-related incidents.
• To ensure the effective management of this offender population, the Correctional Service Canada continues to work closely with criminal justice and law enforcement partners to share and access information that supports the prevention of Security Threat Group-related violence.

Mental health and essential healthcare

• CSC is mandated, under the Corrections and Conditional Release Act, to provide essential health care and reasonable access to non-essential health care to approximately 12,500 inmates across the country.
• CSC provides primary care and secondary mental health care in all of its 43 institutions, and psychiatric inpatient care in five institutions for men, and one institution for women.
• As per the CSC’s mandate, essential health services are initiated at intake and continue throughout the incarceration period. This includes ongoing screening and assessment, and various mental, clinical, and public health interventions.
• Provincial health care plans are used as a benchmark for determining which services should be considered essential in the framework. CSC’s Health Services meets the same level of professional standards as health care providers in the community.
• CSC has a Health Services Executive Team, which approves the essential health care framework; provides ongoing oversight of the delivery of health care; and ensures accountability, consistency, cost effectiveness, and best practices that are specific to the needs of CSC’s population based on the advice of the National Medical Advisory Committee.
• Health Services is accredited by Accreditation Canada, which demonstrates that health care is delivered according to professional standards.
• CSC’s delivery of care is provided by health care professionals who are registered or licensed in Canada, including primary care physicians, nurses, pharmacists, psychiatrists, psychologists, occupational therapists, social workers, and dentists.
• CSC’s Health Services collaborates with community provincial specialty clinics (cancer, pain, dermatology, nephrology, etc.) and hospitals (emergency care, surgery, palliative care, diagnostic imaging, etc.) for services that cannot be provided within CSC’s institutions.
• For offenders in the community, provincial governments are accountable for the provision of health care services.
• The results for the percentage of offenders with a completed review of their health care needs prior to release showed improvement from the previous fiscal year

Identification cards

• While other supporting documents such as a healthcare fall under the purview of provinces and territories, CSC will work with its counterparts through examples such as identification cards, which serve to help in the establishment of a person’s identity when applying for other documents.
• In addition, as part of the discharge planning process, CSC has a Memorandum of Understanding in place with Indigenous Services Canada (ISC) to assist eligible Status First Nations federal offenders in obtaining or renewing their Secure Certificate of Indian Status (SCIS) prior to release.
• The secure status card serves as a valid government-issued identification, and can be used to access benefits and services to support community reintegration.
• In the fall of 2020, CSC implemented an adapted SCIS registration process in the Prairie region, where four virtual instructional sessions were delivered to CSC staff.   The remaining CSC regions have received virtual instructional sessions in late 2021/2022.
• A total of 233 CSC staff have been trained from men’s and women’s institutions, healing lodges, community offices across the country. To date, ISC has issued 673 SCIS cards to registered First Nations federal offenders in response to the applications received.

Mother - Child Program

• The program was first piloted in 1997 and fully implemented in 2001 to foster positive relationships between mothers and their children, by keeping them together where appropriate, and providing a supportive environment that promotes stability and continuity to the mother-child relationship.
• It is available in all women's institutions and Healing Lodge. The best interests of the child are paramount in all decisions related to participation in the Mother-Child program.
• The Program is divided into a: residential component; and non-residential component

Residential component: Eligibility and requirements

• The residential component allows women to reside with their child (or children) within the institution on either a full-time or part-time basis. CSC’s ability to accommodate participation in the residential component of the Mother-Child Program is dependent on institutional capacity.

Non-residential component

• All mothers, regardless of security classification, can participate in the non-residential component of the Mother-Child Program (including inmates in an SIU).
• The non-residential component offers a range of options for women who wish to develop or maintain a relationship with their child but are not able to participate in the residential component.
• Program includes - use of ETA/UTA for family contact/parental responsibilities, PFVs, recording of stories, pumping and storing of breast milk etc.

Update:

The OCI Liaison Unit in Policy Sector continues to collaborate with other Sectors and Regions to coordinate and monitor the Correctional Service of Canada (CSC) ’s response to the OCI ARs.

As of December 9, 2021, a total of 97 of 106 recommendations have been completed for the above-noted ARs.

Outstanding Recommendations

• 2018-19: three are addressed to CSC, of which one is scheduled to be completed by end of fiscal year, one by September 2022 and the remaining one to be completed in October 2024; and
• 2019-2020 - three are addressed to CSC, of which two are scheduled to be completed by December 2022; and remaining one by March 2024.

Community supervision funding

Note, this does not contain 2021-22 data yet as the year is not finalized and the reallocation of expenditures still needs to be completed.

This table demonstrates in the upper section that Community expenditures are at 6% - however bring in the CPORF components under Community, a strategy that the Commissioner has used in prior presentation, thus representing 11.3% of CSC’s expenditures, and demonstrating an increase from 2017-18 at $292.3M to 2020-21 to $330.6M.

7. Committee overview

Committee membership profile