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Response and Action Plan for Inspection of Nova and Grand Valley Institution by Her Majesty’s Inspectorate of Prisons
CURRENT STATUS:
Practices and procedures are in place at the women offender institutions to assist new admissions in familiarizing themselves with the institutional environment, including an orientation session and a comprehensive inmate handbook. During their first day/night at the institution, staff on duty are accessible to a woman to address questions or concerns, including during patrols of the living units.
ACTION
CURRENT STATUS
Primary Workers (PW’s) undergo extensive initial and refresher women-centred training toward skills development to effectively perform their duties. The role of the PW’s is crucial as they are CSC’s front line staff who have daily direct interactions with the women offenders in the institutions.
Over the past decade, there have been more stringent security requirements and procedures required in all CSC institutions, including the women’s institutions to address, among other related issues, the introduction of contraband, especially drugs, into institutions. This is an issue which was not a significant concern at the time of Creating Choices but which is now a critical contributing factor affecting the safe operation of our institutions. With additional security duties and the need to dedicate considerable time to the completion of case management reports, there was a direct impact on the amount of time available for direct interaction between PW’s and women offenders.
Prior to the inspection at Nova and GVIW, the role of PW’s was in the process of being reviewed as part of operational reviews and discussions with staff and union representatives. As a result of these reviews and discussions, the preparation of case management reports and the presentation of recommendations to the National Parole Board (NPB) was reassigned from PW’s to Institutional Parole Officers in June 2006. This will allow PW’s to spend more time in areas where they are visible to the women offenders and can interact with the women in a variety of environments such as in the houses, program areas and yard. As well, a more balanced approached is achieved between the completion of case management responsibilities and the ongoing requirement for dynamic and static security. Although NPB casework will no longer be the responsibility of PW’s, they will continue to be actively involved in the case management and reintegration process. They will retain a caseload of women offenders and will be responsible for certain reintegration reports and activities.
The findings of the inspection supported the findings of the initiatives already underway regarding the role of PW’s.
ACTION
CURRENT STATUS
CSC achieved a major objective in establishing a more equitable and appropriate correctional regime for women in Canada with the opening of five regional women’s institutions and an Aboriginal Healing Lodge commencing in 1995. The design and structure of the new institutions was based on an independent living model of stand alone houses that is intended to promote a healthy environment conducive to change where women can make meaningful and responsible choices in their daily lives. The absence of staff in the houses on a full time basis, with the exception of the Structured Living Environment houses and Secure Units, is reflective of a correctional model that empowers women and promotes shared responsibility. However, one of the unintended results of this model is an increased opportunity for bullying among the women including such behaviour as intimidation and muscling. While assaults also fall within the definition of bullying, identification and intervention in such instances is easier as there is usually physical evidence such as bruises. In these cases, immediate action is taken to protect the safety of all concerned.
Given the impact of bullying on safe operations, CSC’s Business Plan identifies five strategic priorities for the next three years including the “safety and security of staff and offenders” in institutions. This strategic priority will form the basis for the action plan to address this recommendation.
ACTION
CURRENT STATUS
It is critical that offenders are assessed and then assigned a security classification based on an integrated intake assessment process that uses actuarial tools combined with the judgement of experienced and specialized staff, rather than relying on one method of assessment. Research has also confirmed the importance of having gender-informed classification tools and programs for women offenders. In recent years, various stakeholders and external reports (in particular, the Public Accounts Committee, in November 2003 and the Canadian Human Rights Report of January 2004) have made recommendations to CSC in support of improved tools and programs in this regard. To this end, a number of tools and programs have been developed:
Tools
The gender-informed Security Reclassification Scale for Women (SRSW) was reviewed by an external expert committee and implemented nationally in September 2005. The three-year field test indicated that the SRSW is valid and reliable for both Aboriginal and non-Aboriginal women. All reclassification reviews now use the application of the SRSW as part of that process.
CSC has contracted with external experts to develop a specific initial classification instrument for women offenders. This is a multi-year project due to the complexity of instrument development and the need for lengthy field testing to gather sufficient data, given the relatively few women admitted each year. The tool will be designed to ensure it is valid for Aboriginal and non-Aboriginal women offenders.
ACTION
Programs
As outlined in the Program Strategy for Women Offenders (2004), programs for women offenders are developed and updated based on gender-informed research, criminogenic needs and women-centred principles.
In March 2005, CSC established a National Committee on Programs for Aboriginal Women to provide direction in the development and implementation of programs to address the specific needs of Aboriginal women.
Development of numerous programs and initiatives for intervention with women offenders involve national working groups which include representation from advocates and operational staff to ensure the needs of women offenders are met.
The Aboriginal Pathways program is offered at Fraser Valley Institution in the Pacific Region, where approximately 45% of the incarcerated population is Aboriginal. The Pathways program was also recently implemented at Edmonton Institution for Women, where Aboriginal women represent 55% of the inmate population. An environment is provided where Aboriginal women may access services in a culturally appropriate manner through a continuum of Aboriginal specific programs, activities and spiritual ceremonies from Intake Assessment to community release and finally to warrant expiry.
For Aboriginal women classified at the maximum security level, CSC has implemented a Healing Readiness Commitment Process. The process is driven by Aboriginal staff and Elders who work individually with the women to develop a culturally relevant plan to address the specific needs and areas of concern of Aboriginal women, with the goal of reducing their security level in support of an eventual transfer to Okimaw Ohci Healing Lodge.
Given the numbers of Aboriginal women with maximum security classification at EIFW, a dedicated space has been set up to afford them the opportunity to participate in spiritual activities on the Secure Unit.
ACTION
Several new programs are currently under development or in the implementation phase, including:
CURRENT STATUS
Although formal corporate analysis and monitoring of trends generally occurs at the regional and national levels, there are established practices at the women’s institutions that assist in identifying concerns and patterns pertaining to race and ethnicity issues. For example, in institutions where women have formed a particular race/ethnic group, e.g., Black Inmates and Friends Association (BIFA), group representatives attend meetings with the Warden as part of the Inmate Committee, providing a formal forum for raising their specific concerns so that appropriate modifications to institutional practices can be made. As well, the smaller offender population within the women’s institutions provides an environment that allows staff to interact with the women and gain insight into concerns and patterns regarding race/ethnic issues.
The number of visible minority women in the women’s institutions has historically been low and few race-based concerns have been noted; concerns have generally focused on specific needs around language, diet and appropriate hygiene products. A number of measures are in place to address concerns, including the use of translators and ensuring that requested cultural food/specialty items are made available.
ACTION
CURRENT STATUS
Maximum Security
The security classification process is a crucial one for many reasons, including potentially impacting on physical environment, privileges and reintegration potential. Understanding and differentiating offenders based on the risk that they pose to others is essential for both the safety of staff and offenders and for the operation of the institution. Since the Corrections and Conditional Release Act and Regulations came into effect in 1992, CSC is required to assign a security classification of minimum, medium, or maximum to each offender. As outlined in legislation, the security classification is based on an assessment of the offender’s escape risk, risk to public safety in the event of an escape and institutional adjustment. This assessment directs the Warden to place a woman within the security environment that provides the appropriate regime of control, supervision, programs and services consistent with her assigned security classification and establishes a plan to assist the woman in reducing her security classification where appropriate and prepare herself for safe release to the community. Within the women’s institutions, CSC’s policy is to place women with maximum security classification in the Secure Units.
While offenders are required to have their security classifications reviewed annually it should be noted that the security classification reviews of women offenders at the maximum security level are more closely monitored – security classification reviews for these women are conducted every six months in order to assess each woman’s level of change and potential for reclassification.
ACTION
Multi-Disciplinary Strategy, including Mental Health Support
The women’s institutions, with the exception of Okimaw Ohci Healing Lodge, each have a Structured Living Environment House (SLE) that accommodates offenders classified as minimum and medium security who have significant cognitive limitations or mental health concerns. The multidisciplinary mental health treatment team that works in the SLE is responsible for the overall management of each woman’s case and works closely with other areas of the institution.
In addition, a multi-disciplinary team exists within each Secure Unit that is responsible for the overall management of the women offenders they accommodate. This team ensures that mental health, program, reintegration and security issues are addressed within the unit and for communicating relevant information to staff in other areas of the institution.
ACTION
Expert Advisory Committee
In terms of reviewing conditions for women in segregation, including those on the Management Protocol, CSC has recently established a two-year pilot Segregation Advisory Committee at Edmonton Institution for Women in response to Recommendation 6(b) of the Canadian Human Rights Commission report. This Committee reviews the cases of women in segregation over 30 consecutive days, and all women whose cumulative stay in segregation exceeds 60 days over a one-year period. The review of cases includes women on the Management Protocol. The purpose of the Committee is to identify possible reasonable alternatives to both short- and long-term segregation that are in the context of acceptable risk management.
Membership includes one CSC staff member and two external members with knowledge of, and experience working with, Aboriginal women offenders and knowledge of mental health issues. Two reviews have taken place and an evaluation framework has been developed.
ACTION
CURRENT STATUS
As multi-level institutions, minimum and medium security women are accommodated together in a community-living environment. Therefore, CSC faces the challenge of ensuring that there is a differentiation in the management of minimum security women and in terms of community access.
The women’s institutions explore potential opportunities with local businesses in their communities to increase the utilization of Unescorted Temporary Absences (UTA’s) and Work Releases. From 2004-05 to 2005-06, there was a significant increase in the number of Work Releases for women offenders, and UTA’s for program purposes represent the vast majority of all UTA’s.
ACTION
CURRENT STATUS
CSC has a comprehensive policy with respect to the use of restraint equipment, including both hard and soft restraints, within and outside the institutional setting. The policy objective is to ensure the safety of staff, inmates and the public through the appropriate use of restraint equipment as a temporary control measure.
CSC’s policy provides for the use of leg irons within very specific parameters including the requirement for an individualized risk assessment that considers the need to ensure the least restrictive measures are utilized taking into account the protection of the public, staff members and offenders. In addition, Primary Workers are trained both in the application of restraints and the need to ensure a woman-centred approach is used while applying restraints.
ACTION
CURRENT STATUS
In response to recommendations from external reviews, CSC has focused increased attention in the area of employment and employability for women offenders. CSC’s Research Branch completed an employment needs survey for both incarcerated women and women on conditional release. The information derived from this survey served as the basis for CSC’s development of a draft National Employment Strategy for Women Offenders. The objective of the Employment Strategy is to increase viable and meaningful employment opportunities for women offenders both in the institution and upon release to contribute to their successful reintegration.
ACTION
CURRENT STATUS
CSC recognizes the value of family and community relationships and that the establishment and maintenance of positive relationships will assist offenders in their reintegration as law-abiding citizens.
CSC has demonstrated strong support for families through a number of initiatives beginning at intake and continuing into the community, including:
CSC also provides contribution funding to various voluntary sector organizations throughout Canada each year in support of their work to address the needs of families of offenders, in areas such as:
ACTION
CURRENT STATUS
Recommendations related to monitoring mechanisms for the correctional system have been made in various contexts over the past few years, including by the Canadian Human Rights Commission and the Correctional Investigator. As such, these issues have been the subject of discussion between CSC and stakeholders, notably on issues of the segregation review process, the grievance process and an external redress body for federally sentenced offenders.
At this time, CSC will not be pursuing the establishment of further monitoring mechanisms. Our focus will be to continue to strengthen existing mechanisms within the correctional system that are consistent with the principles of a national preventive mechanism, as set out in the Optional Protocol to the UN Convention against Torture:
ACTION
Given existing monitoring mechanisms and based on the above, no further action will be pursued at this time.