What we examined (see Focus of the audit)

This audit focused on whether Correctional Service Canada provided correctional interventions in a timely manner to Indigenous offenders to assist with their successful reintegration into the community.

Why we did this audit

This audit is important because Correctional Service Canada is mandated to provide programs and interventions that are responsive to the unique needs of Indigenous offenders.

What we concluded

We concluded that Correctional Service Canada provided correctional programs to Indigenous offenders to assist with their rehabilitation and successful reintegration into the community, but did not do so in a timely manner. Correctional Service Canada staff did not adequately define or document how offenders’ participation in culturally specific correctional interventions contributed to their potential for successful reintegration into the community. As well, staff was not provided with sufficient guidance or training on how to apply Aboriginal social history factors in case management decisions.

What we found

Releases into the community

Overall, we found that of the Indigenous offenders who were first released from custody to serve the remainder of their sentences in the community in the 2015–16 fiscal year, very few had been released on parole: 69 percent were released at their statutory release dates. Moreover, we found that three quarters of Indigenous offenders who were released at their statutory release dates were released directly into the community from maximum-security (14 percent) and medium-security (65 percent) institutions, limiting their ability to benefit from a gradual release supporting successful reintegration.

We found that significantly fewer Indigenous offenders were released on parole relative to non-Indigenous offenders. In the 2015–16 fiscal year, 31 percent of Indigenous offenders were released on parole, compared with 48 percent of non-Indigenous offenders.

These findings are important because Correctional Service Canada is required to support the successful reintegration of offenders into the community. Offenders who have more time to benefit from a gradual and structured release into the community under supervision to the end of their sentences are less likely to reoffend.

• Most releases of Indigenous offenders were directly from maximum- or medium-security institutions

  Recommendation. Correctional Service Canada should ensure that Indigenous offenders are assessed for a possible reduction in their security level following a significant event—such as the successful completion of a correctional program—to support their reintegration.

• Relatively few Indigenous offenders were released on parole

  Recommendation. Correctional Service Canada should ensure that low-risk Indigenous offenders are prepared for parole hearings when they are first eligible for conditional release.

Access to culturally specific correctional programs and interventions

Overall, we found that Indigenous offenders did not have timely access to Correctional Service Canada’s correctional programs, including those specifically designed to meet their needs. We found that 20 percent of Indigenous offenders were able to complete their correctional programs by the time they were eligible to be considered for conditional release by the Parole Board. We also found that case files did not document how offenders’ participation in Indigenous correctional interventions, such as Healing Lodges or Pathways Initiatives, contributed to their potential for successful reintegration into the community.

These findings are important because Correctional Service Canada is required under the Corrections and Conditional Release Act to provide programs and practices that address the unique needs of Indigenous offenders.

• Access to culturally specific correctional programs was limited

  Recommendation. Correctional Service Canada should ensure that Indigenous offenders have timely access to correctional programs—including culturally specific programs—according to their needs and preferences, to support their successful reintegration.

• The impact of culturally specific correctional interventions was not assessed

  Recommendation. Correctional Service Canada should examine the extent to which Pathways Initiatives and Healing Lodges contribute to the timely and successful release of offenders into the community and how they may be better utilized. Correctional Service Canada should develop guidelines and training for staff working with Indigenous offenders on how to demonstrate the impact of culturally specific interventions on an offender’s progress toward successful reintegration into the community.

Consideration of an offender’s Aboriginal social history

Overall, we found that Correctional Service Canada staff did not adequately consider Aboriginal social history factors in their case management decisions.

We also found that the information that Correctional Service Canada staff used to assess Indigenous offenders for their security levels and required correctional programs was limited. Correctional Service Canada had not obtained many of the relevant official documents related to the offenders or their offences before completing the intake assessments.

We found that, on average, Indigenous offenders were classified at higher security levels, and were more likely to be referred to correctional programs, than non-Indigenous offenders.

This is important because, to ensure accuracy, Correctional Service Canada is required to use objective and verifiable information to determine an offender’s security level and correctional plan. Moreover, Correctional Service Canada policy requires parole officers to consider an offender’s Aboriginal social history throughout the case management process.

• Administrative delays hindered offender assessments

  Recommendation. Correctional Service Canada should work with its provincial and territorial partners to ensure that it has timely access to available offender criminal histories and court documents.

• Assessment tools indicated higher risk for Indigenous offenders

  Recommendation. Correctional Service Canada should explore additional tools and processes to assess the security classification of Indigenous offenders, including the development of structured guidance for the consideration of an offender’s Aboriginal social history.

  Recommendation. Correctional Service Canada should use the most appropriate assessment tools available to refer Indigenous offenders to correctional programs.

• Consideration of Aboriginal social history was insufficient

  Recommendation. Correctional Service Canada should develop structured guidance to support the consideration of Aboriginal social history factors in case management decisions. It should then ensure that staff are adequately trained on how to consider Aboriginal social history in case management decisions.

Entity Responses to Recommendations

Correctional Service Canada agrees with our recommendation(s) and has responded (see List of Recommendations).

Related Information

Report of the	Auditor General of Canada
Type of product	Performance audit
Topics	Aboriginal Affairs Justice and Law Enforcement
Audited entities	Correctional Service Canada
Completion date	23 July 2016
Tabling date	29 November 2016
Related audits	Report 6—Preparing Male Offenders for Release—Correctional Service Canada, 2016 Spring Reports of the Auditor General of Canada Chapter 4—Expanding the Capacity of Penitentiaries—Correctional Service Canada, 2014 Spring Report of the Auditor General of Canada

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