A National Framework to Transform Indigenous Case Management and Corrections

Building a Foundation

CSC has demonstrated innovative leadership in Indigenous Corrections for over 2 decades. Following the Royal Commission on Aboriginal Peoples, and the Task Force on Federally Sentenced Women, a new legislative framework for correctional services was established in 1992 replacing the Penitentiary and Parole Acts. The Corrections and Conditional Release Act (CCRA), sections 79-84 outline CSC's obligations to provide programs designed particularly to address the needs of Indigenous offenders, to engage the Indigenous community in release planning as well as in the care and custody of offenders, to recognize Elders with the same respect as other religious leaders, and to create a National Aboriginal Advisory Committee to provide advice to the Service on the provision of correctional services to Indigenous offenders. CSC created Commissioner's Directive 702 to articulate its obligations to First Nations, Métis and Inuit within policy and operations, and developed both section 81 and CSC healing lodges in collaboration with the Indigenous community, beginning with Okimaw Ohci in 1995.

The establishment of healing lodges provided culturally responsive and spiritually significant environments for the care and custody of Indigenous offenders for both men and women; however, there was a general lack of access to cultural and spiritual services within CSC's mainstream institutions, resulting in some challenges in fully utilizing healing lodges. Following an evaluation of healing lodges in 2003, and with Treasury Board funding to support Effective Corrections Initiatives for Indigenous peoples, CSC developed alternatives to mainstream programming and interventions offered within CSC to provide Indigenous offenders with culturally responsive options.

In 2003, CSC developed the Aboriginal Continuum of Care, grounded in Aboriginal culture and spirituality, to create a continuum of healing for Indigenous offenders from admission through release. CSC had piloted Pathways Initiatives at three sites, had created 8 Aboriginal Community Development Officer (ACDO) positions, and had contracted Aboriginal Correctional Program Officer (ACPO), Aboriginal Liaison Officer (ALO), and Elder services to respond to the needs of Indigenous offenders. Within 3 years, ALOs and ACPOs became staff, and ALO and Elder resource indicators were formalized to ensure that every Indigenous offender (regardless of where they were located) had access to this support. Currently, the Aboriginal Continuum of Care provides culturally and spiritually responsive alternatives to mainstream interventions, and provides CSC with the flexibility necessary to respect the diversity of First Nations, Métis and Inuit offenders. It also guides CSC in providing culturally appropriate assessment, intervention and reintegration services to Indigenous offenders while incarcerated and for release planning. Culturally relevant and responsive services, as well as spiritual services, are offered at every institution regardless of security level, to both Indigenous men and women. Additionally, Indigenous staff members are available to assist offenders in planning their release, and in supporting them upon release.

Building on the achievements of the Aboriginal Continuum of Care, the Strategic Plan for Aboriginal Corrections (SPAC) was developed in 2006 to promote integration across the Service, establish service standards and foster shared accountability in meeting the needs of, and improving results for, Indigenous offenders. Specifically, the SPAC sought to expand the Aboriginal Continuum of Care services to all institutions, for both men and women; to promote horizontal collaboration so that Aboriginal specific services were integrated into the fabric of CSC; and, to eliminate systemic barriers through policy and by providing training. Accountability for reducing the gap in correctional results between Indigenous and non-Indigenous offenders across the Service was strengthened and CSC identified, as one of its key priorities, "Effective, culturally appropriate interventions and reintegration support for First Nations, Métis and Inuit offenders".

The SPAC has provided and continues to provide a continuum of culturally responsive services in all regions, institutions and security levels for First Nations, Métis and Inuit men and women. It has fostered a collective commitment and shared accountabilities across the Service for Indigenous results, and facilitated a comprehensive policy review to address systemic barriers. Additionally, CSC has developed and delivered a range of training to promote cultural awareness, and competence in the delivery of services to Indigenous offenders. The National Indigenous Plan was developed in 2017 and incorporates advice and guidance from the Office of the Auditor General (OAG) and the National Aboriginal Advisory Committee (NAAC). The Plan is the foundation of the collective renewal of CSC activities at all levels to respond to the OAG's recommendations, as outlined in the 2016 audit report, Preparing Indigenous Offenders for Release, and is a national framework designed to transform Indigenous case management and corrections.

Results Challenges

CSC has made significant progress in the assessment and intervention phases of the Aboriginal Continuum of Care; however, more can be done to support the successful rehabilitation and reintegration of Indigenous offenders. Indigenous offenders continue to be disproportionately represented in custody, and that number continues to grow while the number of non-Indigenous offenders continues to decline. The progress within institutions, in terms of a decrease in violent incidents, transfers to lower security, successful program completions, increased escorted temporary absences (ETAs), and better urinalysis results (particularly for offenders following the traditional healing path - Pathways, Elder services), has unfortunately not impacted conditional release results, or revocations, particularly technical revocations, for Indigenous offenders.

For example:

During the past 5 years, Indigenous offenders were less likely to complete their supervision successfully compared to non-Indigenous offenders due to revocation.

In 2014, the Office of the Auditor General (OAG) commenced the audit of CSC in Preparing Indigenous Offenders for Release. The audit focussed on whether CSC provided correctional interventions in a timely manner to Indigenous offenders to assist with their successful reintegration into the community. The OAG found that:

  1. Most releases of Indigenous offenders were directly from maximum or medium security institution;
  2. Relatively few Indigenous offenders were released on parole;
  3. Access to culturally appropriate interventions and programs was limited;
  4. The need for proportional allocation of program resources to Indigenous offenders;
  5. The impact of culturally specific correctional interventions was not assessed;
  6. Administrative delays hindered offender assessments;
  7. Assessment tools indicated higher risk for Indigenous offenders; and
  8. Consideration of Aboriginal Social History (ASH) was insufficient.

In response to the report of the Auditor General, the Commissioner has committed to:

"Inspiring senior executives to empower their teams to achieve the results Canadians expect and collectively be accountable for delivering significant progress and sustainable results."

CSC's Current Approach

CSC continues to work collaboratively with other criminal justice partners, Indigenous organizations, and community stakeholders to develop and provide a number of spiritually and culturally appropriate correctional interventions including programs, counselling, traditional teaching, and services to improve correctional results for First Nations, Métis and Inuit men and women offenders and fully support their safe and successful reintegration into the community. CSC's Aboriginal Continuum of Care ensures that there are Indigenous specific interventions, staff and Elders available in all regions and institutions so that Indigenous offenders have the ability to engage in services designed specifically to respond in a culturally and spiritually appropriate and responsive manner.

The Aboriginal Continuum of Care offers a number of Indigenous specific resources and interventions to augment what is already provided within CSC, including:

The Aboriginal Continuum of Care has been implemented within all regions, at all security levels for both men and women. Services are provided based on population numbers, security level and needs; therefore, not every institution will offer the same services, but within a Region, all services will be available.

Elder services are considered essential services and as such, are available at all institutions to ensure that offenders continue to have the ability to practice Indigenous spirituality, while at the same time addressing their issues in a culturally responsive manner. ALOs are also available at all institutions to ensure that Elders have the support they need within the institutions, and to assist case managers with the interpretation of an offender's ASH, as well as the impact of specific cultural and spiritual interventions. Both of these services are funded according to the number of Indigenous offenders per site, based on resource indicators.

Aboriginal Correctional Programs, as part of the Continuum of Care, provide Indigenous offenders with an opportunity to take a program that is designed to take into consideration their history and culture, their criminogenic needs, and provide Elder support. These programs employ ACPOs who have the experience and cultural competence to work with both offenders and Elders in the delivery of the programs.

As part of the Aboriginal Continuum of Care, the Pathways Initiative, a pathways continuum for men that includes Pre-Pathways (maximum security), Pathways Units (medium security) and Transition Pathways Houses (minimum security), as well as a unique Pathways continuum (multi-level) for women at three multi-level institutions, was implemented. The Pathways Initiative is an Elder-driven healing initiative that promotes holistic healing and reinforces a traditional Indigenous way of life by providing intensive, culturally responsive healing interventions to a dedicated and committed group of participants. This includes greater ceremonial access, and an increased ability to follow a more traditional Aboriginal healing path consistent with Indigenous traditional values and beliefs, offered through counseling, teaching, circles, and ceremonies provided by the Elders.

To support an Indigenous offender's reintegration efforts, ACDOs work with offenders and their identified community to develop release plans that ensure the Indigenous community has the opportunity to propose and develop interventions to support an offender upon release. ACLOs work with offenders just prior to, and upon, release to support an offender as he or she enters the community.

In addition to these services along the Aboriginal Continuum of Care, case management teams and security personnel are engaged in supporting Indigenous offenders to achieve their full potential while incarcerated, by aiding their engagement in their correctional or healing plan, by considering an Indigenous offender's ASH at each decision point in their sentence, and by working collaboratively with healing lodges and Indigenous community organizations and service providers to determine the best plan for an Indigenous offender upon release.

CSC completed a comprehensive review of all polices in 2006 to ensure that Indigenous considerations were integrated where appropriate in every CSC policy in an effort to eliminate any unintended bias. Additionally, training has been developed to support case managers and correctional personnel to better understand Indigenous people and communities, and to better incorporate and consider ASH.

While all of these initiatives have created a solid foundation of interventions and support for Indigenous offenders, it has not resulted in greater participation in conditional release, nor has it resulted in a reduction in revocations, particularly technical revocations, suggesting that a bolder more proactive approach to case management is necessary.

A New Approach

The National Indigenous Plan is the foundation and the collective renewal of CSC actions at all levels. In order to truly impact the results in a significant way, an Indigenous First approach needs to be taken. Initiatives, interventions and approaches need to first consider what the issue is for Indigenous offenders, and then seek to find a solution specifically to address these needs. To continue to simply have Indigenous offenders fit a strategy or mold designed for the mainstream will continue to leave Indigenous offenders behind, and widen the gap in results. To impact the results for Indigenous offenders, CSC must focus its energies and efforts on case management in a significant way using an Aboriginal lens. The needs of Indigenous offenders, because they are unique, need to be considered separately, and approaches and interventions specifically designed to impact results need to be undertaken. The impact of bias, prejudice, and racism, however unintended, has resulted in serious consequences for Indigenous people and contributed significantly to their over-representation in the Justice system. Many of the interventions offered in CSC do not take into consideration that Indigenous people have a history in Canada that has resulted in significant marginalization, trauma and addictions, and this intergenerational trauma needs to be a significant focus of CSC's efforts to address the underlying issues that lead to criminal behaviors routed in addictions. Most Canadians do not have a solid understanding of this history, or its impact on the lives of Indigenous peoples.

Case management approaches may not be well integrated, and may not provide enough opportunity for staff to develop expertise to consider ASH, and understand the impacts of ceremony, Elder interventions and Pathways, and as a result, risk may be overestimated. It is unrealistic to expect that every single case management team member will understand the ASH and its impacts, or can understand the impact of interventions that are Elder driven, particularly with limited opportunity to put any limited training into practice. In order to truly take into consideration the impact of an Aboriginal offender's social history and the resulting risk, and how that risk is addressed, case management team members need specialized training and an opportunity to put that training into action on a daily basis. In order to address the gap in results between Indigenous and non-Indigenous offenders, a robust, well coordinated case management approach needs to be designed so that the expertise can be developed and refined, utilizing an Indigenous lens.

To further build on the foundation that has been created, and utilize the limited Aboriginal specific resources that currently exist, CSC needs to streamline where Indigenous offenders are housed at each security level, reinforce and support the importance of Elder engagement and the Aboriginal Continuum of Care, and focus its efforts at intake and medium security so that Indigenous offenders have earlier access to parole, at their first eligibility date, while ensuring that the Indigenous specific interventions are available and where possible supported by community based services that address the specific intergenerational traumas experiences as a result of their ASH. The Indigenous community must be actively engaged in both providing needed interventions for Indigenous offenders, and in preparing offenders for release, and supporting them upon release. Finally, all services must be coordinated and ‘front' loaded, so that they are timely and transitions to lower security and the community are seamless and earlier in an Indigenous offender's sentence.

Aboriginal Interventions Centers

There is a need to improve the conditional release rates of Aboriginal offenders, decreasing the use of statutory release as a first release, and decreasing revocation rates once released. There is the need for a strategy that better coordinates and utilizes the limited Aboriginal resources that exist, while at the same time ensuring access to Aboriginal programs, to section 84 release planning, and to reintegration options earlier in their sentence, with the support of community resources. Additionally, CSC needs to influence its culture by providing specialized training for case management teams on ASH and its impacts, as well as the Aboriginal Continuum of Care and interventions, so that the impact of these interventions can be captured accurately in reports and better present how they reduce the risk of reoffending. While the Aboriginal Continuum of Care has created the building blocks and foundation for culturally specific and responsive interventions, there is a need for case management teams to better understand how these interventions impact risk and address the needs in order for offenders to be assessed for lower security and conditional release earlier in their sentence. There is also a need for a coordinated approach between security levels, and between institutions and the community. The proposed creation of Aboriginal Interventions Centers and regional coordination of Aboriginal interventions across a smaller number of institutions will maximize existing resources, will create case management teams with specialized training, and will lead to increased transfers to lower security and conditional release. Improved engagement of the Aboriginal community earlier in an offender's sentence will increase success for offenders upon release.

Aboriginal Interventions Centers (AIC) will be a central part of a broader Regional Indigenous Population Management Approach. While the Offender Intake Assessment model is focused on offenders that have short sentences of 4 years or less, some flexibility will be required in the AIC, given the smaller numbers of Indigenous offenders in some regions.

Aboriginal Interventions Centers will incorporate an integrated correctional approach designed to meet the needs of individual Indigenous offenders through a culturally responsive approach to case management that maximizes involvement of the Indigenous community, while at the same time using an Indigenous lens at intake in the development of a healing/correctional plan. They will operate as both an intake assessment center and an interventions center, and require a realignment of existing resources within institutions and the community. The Centers will provide a robust framework for release planning involving the institutional and community case management teams (CMTs), community agencies, and community supports. Community supports include community members who are linked to the needs of the specific offender such as: educational, employment, spiritual guidance and ceremonies, cultural engagement, and trauma counselling. Effective interventions tied to reintegration planning are an integral part of the framework from which the Aboriginal Interventions Centers will address the criminogenic needs of the offenders. This approach will see offenders at intake streamed to the Aboriginal Continuum of Care as a priority, will ensure a correctional/healing plan that takes into consideration their ASH, and will engage aboriginal community development officers with all offenders who are 2 years (or less) from their first parole eligibility date at intake. The community will be engaged at the beginning and throughout the sentence so that they will be better positioned to develop and present a release plan that will support offender reintegration upon release.

The Aboriginal Interventions Centers support CSC's Corporate Objective; "Effective, culturally appropriate interventions and reintegration support for First Nations, Métis and Inuit offenders", and respond to recommendations made by the Office of the Auditor General.

The Model

Location

Aboriginal Interventions Centers in each Region will be located at medium security men's institutions, ideally at a clustered or multi-level site to facilitate smoother and timely transfer to minimum security healing lodges or sites with pathways transition units. The model is flexible enough that the concept can be expanded to women's institutions, Inuit Interventions Centers, and men's institutions with decentralized intake (Stony Mountain and Saskatchewan Penitentiary).

ALO, ACDO, ACPO, Elder and Pathways resources will be realigned to Aboriginal Interventions Centers to maximize opportunities for offenders both at intake, and those identified for the AICs. Providing adequate Elder, ACDO, ALO, ACPO and ACLO services has always been challenging. By creating a continuum and focusing energies and services for Indigenous men following a traditional path on only two medium security sites in each Region (except the Prairies and possibly the Atlantic), CSC will be better able to provide the necessary spiritual and cultural services and interventions for Indigenous offenders. Aboriginal Continuum of Care Services will still be available at Maximum security, and ideally at one other medium security institution in a region (or in the case of the Prairies, the Alberta corridor), and one minimum security facility. These facilities will all have pre-pathways, pathways units, or pathways transition units.

With the Indigenous offender population spread across all Institutions in Canada, it has become challenging to fill Pathways and Healing lodge beds, particularly with population pressures and other population management considerations. Regions will need to review their Indigenous population profile, and ensure that there is a Pathways Unit at their AIC. This may require realigning Pathways Initiatives within the Region to ensure that this can occur. Given the limited resources for the Aboriginal Continuum of Care, and the percentage of Indigenous offenders in each Region, it is not realistic to attempt to offer the same level of services at all institutions.

Creating Aboriginal Interventions Centers, and targeting Aboriginal interventions at a select number of institutions make financial and programming sense. All Indigenous offenders will have access to Elder services and ALO services, but not necessarily at the same level as an AIC, or a site with a Pathways Initiative. Indigenous offenders not interested in following a traditional Aboriginal approach while incarcerated can be streamed to any institution - but have the opportunity to engage in the Aboriginal Continuum of Care at any time in their sentence if they choose.

Specialized training will be offered first to those case management staff specifically designated to develop Aboriginal healing/correctional plans, and manage Indigenous offender caseloads at the AICs. This can include those sites with decentralized intake (women's, men's and Inuit sites). Because of limited training resources, training will be prioritized at a later date for Community Parole Offices, institutions with Pathways Initiatives, and healing lodges. Following this training, it is hoped that there will be an NTS in place for this training.

Assessment - Intake Phase

The Aboriginal Continuum of Care begins at intake and is followed by institutional paths of healing and ends with the safe and successful reintegration of Indigenous offenders into the community. Currently the Offender Intake Assessment (OIA) is completed within the first 90 days of arrival at any Federal Institution; there was a significant gap between intake completion and the commencement of programming to address offender needs. CSC recognized this gap and has created an approach where programming can begin at intake. This model; however, was not designed with Indigenous offenders in mind, and as a result there were some limitations identified. The Aboriginal Interventions Center model looks first and foremost at the needs of Indigenous offenders in its design.

While at intake, Indigenous offenders will be presented with the opportunities to work with an Elder, have a healing plan that incorporates ASH, and follow the Aboriginal Continuum of Care, including access to Aboriginal correctional programs, and Pathways. Motivational interviewing will encourage Indigenous offenders to take advantage of these opportunities; however, should an Indigenous offender wish to opt out of this stream, he or she will be offered the mainstream programs and will have a regular correctional plan that incorporates ASH. While some Indigenous offenders are not following a traditional path and may decide not to be part of the Aboriginal interventions, the ASH and section 84 application must still be considered within case planning and release preparation. The intake process for most male Indigenous offenders will be completed at the Aboriginal Interventions Center; however, not all Indigenous offenders would necessarily reside at the Center. Maximum security offenders would be placed at a maximum security facility. Some Indigenous offenders who are long term, not yet motivated, or not interested in an Indigenous healing plan, could go to another site once the healing/correctional plan has been developed, and discussions on a section 84 have been initiated. Regardless of which stream an offender participates in, they will be offered the option of working with an ACDO to develop a section 84 release plan in partnership with their chosen community. All Indigenous offenders will be provided the opportunity of developing a section 84 release plan when they have two years (or less at intake) prior to their first parole eligibility date. Correctional/Healing Plans will also be developed from intake through to their first parole eligibility date. Indigenous offenders will be offered the opportunity to begin their designated correctional program while in the intake process so as not to delay program completion.

ACDOs will be assigned to all intake Units (including women, Inuit, and decentralized sites), where they will meet with all Indigenous offenders to discuss their options for a section 84 release plan. Those with 2 years (or less) to their first parole eligibility date with interest in a plan will begin the process and the community will remain engaged throughout this 2 year timeframe. Rather than being seen as a release plan, the development of a section 84 release plan will be part of an engagement process throughout the time period so that the Indigenous community identified will have solid opportunity to participate in the offender's progress, and propose a release plan in consultation with the case management team, and the offender.

Offenders will be able to identify the community they wish to return to, and if the community agrees, the section 84 release plan will be developed with this community. The ACLOs will be provided with a list, that will be updated, of all the different communities identified, and the timeframes, so that they will be able to contribute to the process and establish linkages. ACDOs will maintain a list of all Indigenous offenders and the first parole eligibility dates, but will only work on release plans for those offenders who are 2 years from their first parole eligibility date (or less at intake). The ACLOs, as part of their role, will establish networks with the communities identified, to assist ACDOs in the process.

CMTs (POs, MAIs, correctional managers, primary workers, ALOs among others) will be identified to work with Indigenous offenders, and ideally, all Indigenous offenders will be streamed to this team at intake. These teams will be provided with specialized training on ASH, on the Aboriginal Continuum of Care, and on the development of healing plans, as well as the AIC concept, to prepare them to use an Indigenous lens when managing their cases. Correctional plans will be healing plans developed with the focus on the Aboriginal Continuum of Care, and the ASH must be considered at each stage of their healing plan, as well as every milestone or significant event such as program completion, security reclassification, and Pathways admission or discharge. This group will develop an expertise within the institutions so that the ASH is taken into consideration when developing the healing plan, and when making decisions that impact Indigenous offenders. Ideally there will be POs designated to work with these offenders following intake that will also have this specialized training, so that offenders may move through their correctional plan and participate in ETAS, UTAs, WRs based on their specific needs, and be transferred to minimum security, or go before the board for conditional release earlier in their sentence than currently.

Intervention Phase

ALOs will be in place to support POs at the Aboriginal Interventions Centers with some of the interpretation of the impacts and positive changes that Indigenous offenders are making, as a result of their work with Elders, in AICPM, or in Pathways and other interventions. There will be an increase in Elder services to ensure that while Indigenous offenders are taking AICPM, they have additional Elder support to address issues that arise as a result of their ASH, to maximize their success in the program, and to engage them in a healing process while in programming. Offenders who are successful in programs but not eligible for conditional release can be streamed, with the Elder's agreement, to a Pathways Unit at medium security, or to a Pathways Transition Unit at minimum security, or a healing lodge.

The first priority should be transfer to a healing lodge, with the second option a minimum security Pathways Transition Unit. While in Pathways, offenders should be considered for ETAs, UTAs, and WRs. Indigenous offenders who successfully complete AICPM, or who have met the objectives of Pathways after 6 months, should be considered for transfer to lower security, and conditional release. Additional interventions while in Pathways should be considered to support an offenders healing and release preparation process. These could include literacy or education programming, vocational or employment training, life or parenting skills, substance abuse or trauma counseling and consideration should be given to partnership or contracts with Indigenous organizations with the expertise to provide these interventions. Ideally offenders could continue to access their services upon release. To continue to prepare Indigenous offenders for release, engagement of the community resources while incarcerated is essential, both through ETAS and UTAs, but also by bringing these groups into the institution. As part of section 84 release planning, family members, and community resources will be encouraged to meet with offenders throughout the planning process.

One of the major factors contributing to Indigenous offenders' success upon release is their participation in spiritual and cultural activities in addition to programs delivered by Aboriginal staff and the support they receive throughout their sentence. The Aboriginal Interventions Centers focuses all interventions, including correctional programming, on the Aboriginal Continuum of Care. Aboriginal correctional programming and interventions include the day to day interactions and enhanced support from Elders and the institutional and community Aboriginal team. Elders' services will be concentrated at the Aboriginal Interventions Centers and Pathways Centers to keep offenders motivated, engaged and focussed on addressing their needs. Elders would be able to work one-on-one with the offenders in Aboriginal correctional programs to address any trauma impacting progress.

Transition to the Community Phase

As part of the transition to the community, it will be assumed that the majority of Indigenous offenders at the AICs will go before the board at their first parole eligibility date (or as soon as possible) with a section 84 release plan. The ACLO will have met with the offender, along with the ACDO, and case management teams from the institution and community, prior to their appearance. If successful, the community team and ACLO will prepare to support the offender and work with the community to put in place all the necessary components of their plan. The ACLO will support offenders upon release for a period of approximately 6 months, and will have met with the offender approximately 3 months prior to the release. If unsuccessful, the ACDO and community team will make the necessary and recommended revisions to the plan, the institutional team will continue to work with the offender to address outstanding issues. ETAS, UTAs, and WRs will continue to provide demonstrated evidence of success; community resources will continue with services and the offender will be better prepared for the next appearance. Ideally, Indigenous offenders will be at minimum security when they go before the Parole Board.

Reintegration Phase

Once released on conditional release the community supervision team would be an extension of the Indigenous institutional team and include the community parole officers, the, ACLOs, community Elders, community based organizations, and community representatives working on section 84 release plans. The Aboriginal Continuum of Care recognizes that Indigenous communities must be involved in supporting Indigenous offenders during their healing journey and reintegration every step of the offenders' sentence.

Once in the community, the community team will provide the supervision, and will work with the ACLO to identify areas of concern where risk is higher, particularly with respect to conditions. Mitigation plans will be developed in the event of a breach, and should suspension be required, the team will work with the offender to identify a plan so that revocation will not be necessary. Given substance abuse is a serious contributing factor, services and supports in this area will be available on an ongoing basis. Institutional Elders and ACLOs will identify spiritual support in the community and make referrals and connections to Elders and others, prior to release, and facilitate the transition upon release. Any mental health support services will also be in place prior to release with connections being made already. Housing, family support, identification, and other supports identified will all have been in place prior to release. With successful reintegration at 6 months, the ACLO will decrease or end regular involvement, but will continue to be available should the need arise. Because offenders will have had the opportunity to return to their chosen community with the community support in place, their likelihood of success will increase. The community will be actively engaged and invested in the success of their community member, and the offender will be invested in restoring balance and remaining in the community as a contributing member.

This approach will provide more Indigenous offenders with the opportunity to go before the board at the earliest opportunity. Upon penitentiary placement at the Aboriginal Interventions Center, offenders will commence the integrated process with specially trained staff able to address needs in a culturally sensitive manner. With the development of the Aboriginal Interventions Centers, Indigenous offenders following a traditional path will ideally no longer be penitentiary placed at all sites, but will be placed at sites within the Aboriginal Continuum of Care. Should Indigenous offenders choose to follow mainstream programming and not participate in the Aboriginal Continuum of Care, other sites can be considered.

Implementation

Prior to the implementation for AICs in Regions, a review of several areas will be necessary and short, medium and long term steps will need to be outlined in each Region. Regions will need to identify the most appropriate medium men's site for their Aboriginal Interventions Center, and there will be a need to include intake and interventions such as AICPM and Pathways. Intake does not have to be done for all offenders at the same site. Therefore, the OIA process for non-Indigenous men could be at a different institution than for Indigenous men.

If the site selected does not have a Pathways Unit, consideration as to how best to realign resources to establish the AIC will need to be given. Realignment of resources, particularly ACPOs, ACDOs, Elders, ALOs and Pathways teams will need to be assessed and facilitated. Additional resources, particularly Elder and Correctional Programming resources will need to be considered. Workload reviews for POs will also need to be conducted. Specific case management teams will need to be identified, and these teams will require specialized training to enhance their understanding of ASH, the impact of Elder services and Pathways, and the Aboriginal Continuum of Care in general so that they can develop the expertise necessary to manage Indigenous correctional/healing plans. The impact of an AIC on the Region, and the linkages to maximum security, other medium security, and minimum security/healing lodge sites will need to be part of an overall population management strategy for Indigenous offenders. Resources for the Aboriginal Continuum of Care are significantly limited and in order to ensure the best use of limited resources, streamlining and realignment is the best option.

While the OIA is focussed on short term offenders with sentences of 4 years or less; the timeframe for Indigenous offenders may be longer particularly in regions, particularly those with smaller numbers.

The establishment of clustered sites has provided both a challenge and an opportunity for Regions with respect to Indigenous offenders. While it should promote smoother and timely transition to lower security, Pathways Initiatives and programming resources were not realigned when this change occurred. Additionally, consideration for transfer to healing lodges were not factored in as a priority, and the competition between healing lodges and clustered minimum security sites for offenders continues. As part of the implementation process, Regions are being asked to look at the overall placement of existing Indigenous resources, and realign as necessary to provide the most effective continuum for offenders.

The AIC will be the central focus for interventions for Indigenous offenders, but consideration must be given to an overall regional approach to Indigenous population management.

Inuit

Inuit offender intake has already been decentralized in some regions with high Inuit populations. Consideration for Inuit Interventions Centers, particularly at Beaver Creek and the Federal Training Center where the larger numbers of Inuit are located, are ideally suited to follow this model, with some modifications. Taking into consideration that these are clustered or multi-level sites, moving to Phase 3 of the Anijaarniq should be explored.

Women

Women's facilities do their own intake, and have all security levels represented in their multi-level sites (with the exception of Okimaw Ohci Healing Village), and because of these two factors, this model is ideally suited, with some modifications, to these facilities and could be implemented as part of an overall Indigenous Women's approach. Women's institutions already have continuous intake programs, and three of the five sites are working towards the full continuum of Pathways.

Sites with Decentralized Intake

The largest numbers of Indigenous offenders are located in the Prairie Region. While an AIC makes sense in the Alberta corridor, both Stony Mountain and Saskatchewan Penitentiaries have decentralized intake and are clustered sites. These sites could become AICs, in addition to one site in the Alberta corridor.

Considerations

While there may be many different steps, each Aboriginal Interventions Center will be slightly different in terms of how it will meet the needs of its Indigenous population, and will depend on whether it is at a medium men's, a women's, an Inuit, or a men's decentralized site. It will also depend on the number of Indigenous offenders flowing through the Intake Unit at each specific site.

The objective of the National Indigenous Plan is to transform case management and corrections, and ensure Indigenous offender's timely access to culturally responsive interventions and ultimately contribute to their safe and timely reintegration into society. To foster an effective implementation of the key initiatives and monitoring of progress and performance, the following key milestones will provide foundation for success of the plan:

  1. Establishment of a minimum of one Aboriginal Interventions Centre in each region;
  2. Establishment of case management teams designated to Indigenous intake, and case management at AICs;
  3. Establishment of key training component to support case management processes and considerations;
  4. Availability of culturally responsive programs and interventions at each of the Centres;
  5. Realignment of resources, particularly ACDOs, ACPOs, Elders and ALOs, and possibly Pathways;
  6. Enhancement of policy framework as necessary(significant events) to guide implementation and day to day operations of the Centres, and implementation of any OMS requirements identified;
  7. Collaboration and engagement with Indigenous communities and agencies to increase their participation in every stage of the Continuum;
  8. Response to the needs of specialized populations including Inuit and Women offenders;
  9. Communications Plan for CSC Staff, Elders, and partners such as PBC; and
  10. An Evaluation Framework.
Key Actions: Assessment Phase - Intake (Aboriginal Interventions Centres)
Short-term (1st Year) Mid-Term (2nd Year) Long-term (3rd Year)
  • Regions to identify location of Aboriginal Interventions Centres - Intake Units for Indigenous offenders and realign resources as necessary (including Elders and ALOs)
  • Regions to designate Case Management Teams specifically for Indigenous offender intake and case management while at AICs.
  • Develop and provide Indigenous case management training to CMTs and other appropriate staff to develop their expertise in Aboriginal Continuum of Care and consideration of ASH.
  • Establishment of Healing Plans for Indigenous offenders following the ACofC from intake to first PED; for those not following a correctional plan, but BOTH streams to consider ASH and to have access to section 84 release planning.
  • Realign Program resources (Elders, ACPOs) to AICs and develop program plans for AICPM based on need and preference of Indigenous offenders.
  • Realign ACDO resources to intake to ensure that all Indigenous offenders with 2 years or less to their first parole eligibility date begin a section 84 process (if interested).
  • Enhance relevant policy framework to support presumptive movement/correctional/healing plan, and reintegration.
  • Engagement of Indigenous community and organizations early in the process to ensure true engagement in section 84 release planning.
  • Engage PBC and promote CAHs and EAHs.
  • Regional Indigenous Population Management Plan taking into consideration currently location of Pathways, existing intake units, numbers of offender at different security levels, as well as an overall of existing Indigenous specific resources (In most regions, except Prairies and possibility Atlantic, Indigenous offenders following the Aboriginal Continuum of Care could be prioritized for two medium security sites, and one minimum site.)
  • AICs to become part of broader Regional Indigenous Strategy and implement effective population management strategies in order to maximize limited Aboriginal specific resources and ensure offender access to services.
  • Develop tracking systems to monitor Indigenous offender PEDs and ensure timely offender file updates identifying impact of AICPM, Pathways, Elder and other interventions.
  • Regions to identify workload expectations for ACDOs, and Regions to implement tracking systems for First Parole Eligibility dates for all Indigenous offenders.
  • Ongoing Indigenous case management training as required to other Pathways sites, Inuit and Women's sites, healing lodges, and community parole offices.
  • Implement the Criminal Risk Index (CRI) for program referral and begin exploring other assessment tools as necessary.
  • Implementation of SAIF with Indigenous considerations.
  • Resource and workload review for case management, program resources, and other Indigenous resources to determine if additional resourcing is required at AICs.
  • Strengthened data collection and identification of future research needs.
  • Establish regularized formal case management meetings between institutional and community parole officers.
  • Evaluation of results particularly with respect to program completion, transfers to lower security, section 84 and conditional release (all prior to first parole eligibility date).
  • Review risk assessment tools for cultural appropriateness and possibly develop new tools.
  • Commence necessary adjustments (where required) to sustain efficiency and effectiveness of the AIC operations and results.
  • Identify impacts on population management and make adjustments as necessary to Regional Indigenous Population Management plans.
Key Actions: Intervention Phase - Institutions
Short-term (1st Year) Mid-Term (2nd Year) Long-term (3rd Year)
  • Provide POs at AICs designated for Indigenous case loads specialized Indigenous case management training on ASH and Aboriginal Continuum of Care.
  • Develop AICPM plans based on numbers of Indigenous offenders requiring programs, taking into consideration preference. Deliver AICPM beginning at intake to Indigenous offenders, with increased Elder support.
  • Create linkages between AICPM and Pathways to ensure that Indigenous offenders are actively supported by Elders while in programs, facilitating direct entry into Pathways or to healing lodges.
  • Establish Pathways Units at AICs and realign resources within Regions accordingly.
  • Finalization of Section 84 Release Plans prior to first PED, with active engagement of Indigenous communities.
  • Strengthen documentation and use of program completion reports, and Pathways documentation (Presumptive movement).
  • Ongoing Pathways training (NTS).
  • Establish partnerships/contracts with Indigenous organizations for the delivery of trauma based healing, life/literacy skills, vocational training, substance abuse, parenting (amongst others).
  • Establish regular case management conferences between institutional and community teams to facilitate improved and timely release planning.
  • Resource review of Program resources to determine if further realignment is necessary.
  • Ongoing monitoring of AICPM participation and results to identify Indigenous offender needs, and further realign resources as necessary.
  • Ongoing monitoring of Pathways and section 84 results to facilitate adjustments as necessary.
  • Ongoing engagement of community resources through ACDOs and ACLOs to improve access to education, employment, training, trauma interventions services for Indigenous offenders beginning in institutions and continuing to the community.
  • Continue to implement tracking systems for offenders' PEDs and other critical dates.
  • Revise policy, create tools for Pathways at AIC; presumptive movement policy.
  • Explore options for continuous intake in Aboriginal programming similar to women's programs.
  • Implementation of CIRC.
  • Explore and implement components of phase 3 of Anijaarniq Inuit Strategy, and explore opportunities for phase 4 development.
  • Evaluation of AICPM results; consideration of alternative programming models as necessary that address trauma.
  • Evaluation of overall Indigenous offender results with particular attention to conditional release rates, statutory release and revocation rates.
  • Consideration of alternative risk assessment tools specifically designed for Indigenous offenders.
  • Based on results, Indigenous population management review and realignment of resources, expansion of Pathways, as necessary.
Expanded use of section 81.
  • Steps to move toward phase 4 of the Anijaarniq Inuit Strategy.
Key Actions: Transition to Community
Short-term (1st Year) Mid-Term (2nd Year) Long-term (3rd Year)
  • Community case management teams to receive specialized Indigenous case management training.
  • Develop mechanisms to enhance integrated release planning for Indigenous offenders (strengthen linkages between institutional and community case management teams).
  • Section 84 release plans in place prior to the first PED and presented to the PBC.
  • Ensure timely reviews following significant events to facilitate transition to lower security, and PED applications.
  • Work with PBC so they fully understand the AIC model and its objectives.
  • ACLOs to be engaged with offenders prior to (3 months) and upon release (6 months) to foster successful reintegration.
  • Establishment of community partnerships that allow Indigenous offenders to engage in services prior to, and following release.
  • Promote the use of ETAs, UTAs, WRs. Promote the use of Elder-Assisted and Community Assisted hearings.
  • Revisions to section 84 plan when parole applications denied, in collaboration with ACLOs and community.
  • Engage community CMT to establish a process for revocation and suspension mitigation strategy for Indigenous offenders.
  • Workload and Resource review.
  • Enhancing tracking and monitoring process for section 84 release planning and results.
  • Framework for release planning to FNs, remote and rural communities taking into consideration alternatives to CRFs.
  • Develop strategy to renew and/or sustain community contracts in urban, rural and remote communities.
  • In collaboration with CORCAN develop and implement employment strategies for Indigenous offenders as they transition to the community with a particular focus on housing to support reintegration.
  • Implement and monitor revocation mitigation plan for Indigenous offenders to assess performance and progress.
  • Amend policy framework (if necessary) to support revocation mitigation plan and seek PBC collaboration.
  • Partnerships with community service providers in terms of residential and outpatient trauma intervention and healing from an Indigenous perspective (Mental Health).
  • Evaluation of Results and realignment of overall Indigenous Strategy as necessary.
  • Increase agreements through s.81 (when necessary) for expanded community involvement beyond healing lodges.
  • Data collection to support research on Indigenous offender performance in the community.
  • Develop and implement improved opportunities for Inuit, and offenders from the North to return to their home communities on UTAs, Work Releases and ultimately conditional release.
Key Actions: Reintegration Phase
Short-term (1st Year) Mid-Term (2nd Year) Long-term (3rd Year)
  • Formal case management conferencing between institutional (IPOs) and community (CPOs) teams.
  • ACLO engagement for released Indigenous offenders.
  • Suspension mitigation strategies.
  • Indigenous specific substance abuse support for offenders upon release.
  • Promote ongoing community leaderhsip in release and in providing services (through s.84 and contracts).
  • Specialized training to improve ASH considerations in suspension and revocation decisions (Engagement of PBC).
  • Establish linkages between institutional Elders and ALOs, with ACLOs, and community based spiritual and cultural resources.
  • Linkages for employment, education, counselling services that began in institution.
  • Explore options for community based contracts to support offenders in FNs, remote and northern locations.
  • Monitor suspension and revocation results, and develop strategies and plans to improve conditional release supervision outcomes.
  • Establish a tracking and monitoring system for released Indigenous offenders.
  • Explore Healing lodge usage as potential temporary accommodation for employment.
  • Explore options for healing lodges (CSC and Section 81) to play a greater role in reintegration.
  • Develop strategies for vocational, employment skills development with the Indigenous community.
  • Continue to monitor data collection to support evaluation/research.
  • Explore temporary and long term housing options for released offenders in partnership with other departments, governments and agencies.
  • Monitor reintegration results for urban, rural and northern locations and make necessary adjustment to respond to their needs.
  • Evaluatate conditional release results and adjust plans as necessary.
  • Collect data / release final research and performance measurement results.
  • Consideration of multi-use/multi-purpose facilities in First Nations, northern and remote communities, in partnership with other government departments.
Key Actions: Specialized Populations Indigenous Women
Short-term (1st Year) Mid-Term (2nd Year) Long-term (3rd Year)
  • WOS/AID to develop an Indigenous women-centered approach for AIC, and adopt similar approach tailored to Indigenous women.
  • Review policy, practices and processes and revise as necessary to ensure compatibility with Creating Choices model.
  • Regions to realign resources as required and assign ACDO and ACLO to Women's sites specifically.
  • Sites to identify case management teams for Indigenous women offenders, and AID to deliver specialized Indigenous case management training.
  • Community Assisted Hearings and Elder Assisted Hearings to be promoted.
  • Implement presumptive transfer to lower security and facilitate timely discretionary release.
  • Fully implement Pathways continuum at designated sites.
  • Regularize visiting Inuit Elder services for Inuit women.
  • Engage community service organizations with specialization in women's services to begin counselling and other supports while incarcerated to address trauma.
  • Implement Indigenous approach to correctional plan from intake to first PED preparation.
  • Monitor Pathways, Programming and Conditional Release rates for women.
  • Track section 84 release plans and monitor presentation to PBC at first PED.
  • Explore and facilitate access to trauma counseling, parenting, life skills as key priorities for women.
  • Review assessment tools to ensure sensitivity to Indigenous women's needs and if required, develop and implement new tools.
  • Strengthen the engagement of community and family members as part of the section 84 release planning process.
  • Explore increased section 81 opportunities.
  • Evaluation of results for Indigenous women and adjustments to site plans as necessary.
  • Engagement framework for Indigenous women to strengthen employment, education, vocation, and other opportunities upon release.
  • Leadership opportunities for the Indigenous community with respect to section 84 release planning, and potential section 81 opportunities.
  • Increased and expanded opportunities for section 81 for women.
Key Actions: Specialized Populations Inuit Offenders
Short-term (1st Year) Mid-Term (2nd Year) Long-term (3rd Year)
  • Continue to implement the Anijaarniq Holistic Inuit Strategy, Phase 2, and determine requirements for moving to Phase 3.
  • AIC model at intake with respect to case management implemented for Inuit offenders including specialized case management training on Inuit correctional planning to first PED, and section 84 release planning 2 years prior to FPED (or less at intake).
  • Deliver Inuit programming (Inuit Integrated Program, Tupiq, Inuit AOSAP) according to need.
  • Ensure Inuktitut speaking ACDO and ACLO resources available to Inuit sites.
  • Increase community engagement and capacity through partnerships to better support Inuit sites, and increase the release potential of Inuit offenders to the North.
  • Review Inuit staffing and Elder resource levels and realign as necessary.
  • Explore options for interventions and community programs to promote Inuit culture including land use/based programs.
  • Similar to women's sites, at clustered and multi-level sites, facilitate programming, Elder services, carving and other programming for both medium and minimum security Inuit (Phase 3).
  • Explore options for Inuit multi-level units, similar to women's sites, to house medium and minimum security Inuit together on the same range(s).
  • Explore increased opportunities for UTAs, work releases for the Inuit to their home communities as part of the transition for conditional release.
  • Ongoing monitoring of results for the Inuit, and adjustment of strategies as necessary.
  • Explore the establishment of a multi-use, multi-purpose facility in the North in close collaboration with other key players (territorial and/or municipal governments) - Phase 4 of Anijaarniq.
  • Implement staffing strategy and leadership development to sustain the delivery of services at the facility.
  • Explore and develop assessment tools and implementation of new tools where necessary.
  • Explore partnerships with Northern Colleges for correctional and interventions training to ensure recruitment to address future needs is possible.

Men's institutions with decentralized intake

The Aboriginal Intervention Center Model could be applied to men's institutions with decentralized intake, and large Indigenous populations, such as Saskatchewan Penitentiary or Stony Mountain Institution. The AIC model would be comparable to an institution within an institution (similar to the Inuit Intervention Center Model above), where Indigenous offenders can begin programming while at intake, but could also be participating from a range. Different population dynamics will need to be considered, but it is quite conceivable that the AIC model could work very well within a site such as Stony Mountain that has a well established Pathway Intervention, and all security levels (similar to women's institutions) as a clustered site. Given the significant size of the Indigenous population in these two sites in particular, a significant number of parole officers and case managers would require the training - but those designated would still do all Indigenous intake as a team, and parole officers would carry a caseload of Indigenous offenders following the Aboriginal Continuum of Care, as the development of expertise in these sites is particularly critical to impact CSC's overall results nationally.

Performance monitoring strategy

Shared responsibility and accountability for the National Indigenous Plan will be across the entire Service from frontline staff members to senior executives. In order to ensure success, everyone will play their part and ensure an integrated approach to foster sustained results. The key deliverables outlined under each of the phases of the implementation framework will be integrated into the Aboriginal Corrections Accountability Framework's (ACAF) reporting cycle to ensure that senior management are aware of progress and able to direct realignment where required in order to sustain momentum and progress. Building on the key actions under each phase of the implementation framework outlined in this document, each region will be required to develop their respective implementation plan that will be responsive to their unique requirements while ensuring progress as follows:

Expected Result Performance Indicators Data Source
Indigenous offenders' enrollments in culturally responsive programs Of the Indigenous offenders with an identified need for a nationally recognized correctional program, the percentage who enroll prior to first release. Of those who enrolled prior to first release, the percentage who enrolled in cultural-specific Indigenous correctional programs compared to mainstream correctional programs. new indicator
Of the Indigenous offenders with an identified need for a nationally recognized correctional program, the percentage with an accepted referral in concordance with their identified preference for cultural-specific Indigenous or mainstream correctional programs. new indicator
Indigenous offenders' completions in culturally responsive programs Of the Indigenous offenders with an identified need for a nationally recognized correctional program, the percentage who complete prior to first release. Of those who completed prior to first release, the percentage who completed cultural-specific Indigenous correctional programs compared to mainstream correctional programs. new indicator
Indigenous offenders are assessed as lower security and transferred to lower security and healing lodges Percentage of successful transitions to lower security for Indigenous offenders (successful if no reclassification to higher security within 120 days) DRF
Percentage of successful transfers to healing lodges for Indigenous offenders (successful if there is no reclassification to higher security or involuntary transfer within 120 days of the original decision to transfer to the healing lodge) new indicator
Indigenous offenders are compliant with institutional behaviors as demonstrated by less charges, urinalysis and security incidents Percentage of institutional random-sample urinalysis positives for Indigenous offenders PD
Percentage of institutional random-sample urinalysis refusals for Indigenous offenders PD
Rate of serious security charges per 1,000 Indigenous offenders in federal custody PD
More Indigenous offenders are released on Section 84 Release Plan Percentage of Indigenous offenders with an established CCRA Section 84 release plan prior to first release PI
Percentage of Indigenous offenders released to a CCRA Section 84 community (based on offenders with an established CCRA Section 84 release plan) new indicator
Indigenous offenders are successfully released on discretionary release Percentage of Indigenous offenders who were granted a discretionary release at the time of their first release PI
Less Indigenous offenders are revoked on technical violations while under supervision in the community Rate of supervision suspensions per 1,000 Indigenous offenders PD
Percentage of Indigenous offenders on conditional release successfully reaching sentence expiry date without re-admission (no revocation, charge or conviction) DRF
Community resources and support services are available to Indigenous offenders in northern, rural and remote locations The number of Indigenous offenders participating in community interventions and healing services manual data
The number of partnerships (contract) established to provide services to Indigenous offenders in northern, rural and remote locations manual data
Increased access to community support in the North The number of Indigenous offenders accessing community partners services in northern, rural and remote communities manual data

Summary

CSC has built a strong foundation of culturally and spiritually relevant and responsive interventions for Indigenous offenders, as a foundation of the Aboriginal Continuum of Care, and has reinforced the shared accountability for service standards and results across the Services as part of the Strategic Plan for Aboriginal Corrections. A strong policy framework, training, and strong Indigenous expertise as a result of a robust human resources plan are the foundation of Indigenous Corrections within CSC.

Results for Indigenous offenders have improved; however, Indigenous over-representation continues to rise, and results for conditional release and return to custody, particularly for technical revocations continue to be high. CSC's limited Indigenous specific resources can be better streamlined and concentrated to Aboriginal Interventions Centers, where expertise in Indigenous case management can be developed and nurtured, and services along the continuum and be strengthened and better coordinated. Shining a spotlight on Indigenous Corrections, with a particular focus on proactive, informed and engaged case management is the key to improving reintegration results for Indigenous offenders.

The implementation of a National Indigenous Plan with the establishment of Aboriginal Interventions Centers at its central feature, will form the cornerstone of the next phase of Indigenous Corrections with CSC and improve results for Indigenous offenders.

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