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+ Solicitor General Solliciteur général Canada Canada
ROGRAMMING
N FEDERAL CORRECTIONS
PREPARED BY THE TASK FORCE
ON INTEGRATION OF C.P.S. - N.P.S.
Published under the authority of the HON. WARREN ALLMAND, Solicitor General of Canada
IN FEDERAL CORRECTIONS,
James A. Phelps and Bram Deurloo
Co-authors
Mike Appleby Gord Helm Dana Cochrane
Scott Denoon Robert Martin Walter Roux
M1N1S7RYL r B R A ROr THE Spi ICIr,^,R
A ^ ^ 131985
Published by the Communication DivigitlftvsMinistry Secretariat
OTTAWA, 1976
FOREWORD
The cooperation and assistance of many individuals and agencies was essential to undertake this
study. Despite the fact that the implications of the data were controversial in nature, individuals from
the many private and federal agencies cooperated fully by providing information, documentation,
opinions and suggestions. The enthusiastic responses and ideas on programming process received from
those groups and individuals consulted across Canada indicates that there exists a need for an effective
and uniform approach to programming throughout the field of corrections. A list of those individuals
interviewed may be found in Appendix A.
The assistance of the field managers and representatives from the National Parole and Canadian
Penitentiary Services, vvho contributed the manpower necessary to conduct this research, is greatly
appreciated. Special thanks are extended to Joan Nuffield for her vital contribution in the review of
research on the programs studied. Warm thanks are also extended to Anne Lafontaine, Sandie Labelle
and Jocelyne Nolet, without whose resourcefulness and patience in typing the drafts, it would not have
been possible to execute this task.
For the members of the Program Planning team, the undertaking of this study was a stimulating
and rewarding experience. The research conducted and the preparation of this report required a great
deal of time, effort and commitment by the members of the regional committees. They brought
together their divergent points of view, and presented the data and their personal ideas vvith interest and
candour.
James A. Phelps
Bram Deurloo
Art Wakabayashi
Harry Meredith
John Braithwaite
Hugh Christie
Lloyd Pisapio
Yvon Gariépy
Jean-Marie Robichaud
Jean-Marie Robichaud
Normand Corbeil
Jean-Marc Bigras
Jeff Frank
Jean-Marie Robichaud
Gord Pinder
Atlantic Region
Coordinator:
Ron Lawlor
Gord Helm
Quebec Region
Coordinator:
Walter Roux
Robert Martin
Ontario Region
Coordinators:
Dana Cochrane
Dave Moore
Ralph LeBlanc
Gene Newman
Jacques Grenier
Paul-André Beaudry
Dennis Kerr
Dave Craig
Mike Appleby
Fred Luciani
John Vandoremalen
Dale McLees
Art Majkut
Gord Holloway
Dave Mills
Paul Isinger
Bruno Radigk
James A. Phelps
Prairie Region
Coordinator:
Bram Deurloo
Jack Linklater
Pacific Region
Coordinator:
Scott Denoon
Mary Steinhauser
Roger Brock
Neil Collins
Irene Blenkiron
Sepp Tschierschwitz
MEMBERS OF THE TASK FORCE ON THE NEW FEDERAL CORRECTIONS AGENCY
PROGRAM PLANNING TEAM
Team Leader: James A. Phelps
iii
The Federal Corrections Agency Task Force members and
her colleagues would like to recognize the substantial
contribution to this report made by Mary Steinhauser who
died tragically in British Columbia Penitentiary at New
Westminster, B.C.
V
23
27
TABLE OF CONTENTS
FOREWORD i
PREFACE xi
Historical Development xi
Methodology xiii
PART I — RECOMMENDATIONS AND SUGGESTIONS FOR IMPLEMENTATION 1
1. SUMMARY OF RECOMMENDATIONS 3
2. SUGGESTIONS FOR IMPLEMENTATION 9
PART II — COMMUNICATION AND CONSULTATION 11
1. DISTRIBUTION OF INFORMATION 15
2. EXTERNAL CONSULTATION 17
(a) Individual 17
(b) Organizations 17
3. INTERNAL CONSULTATION 19
(a) Selected Individuals 19
(b) General Staff 19
(c) Clients 19
4. FACTORS LIMITING CONSULTATION 21
QUESTIONS RELEVANT TO COMMUNICATION AND CONSULTATION 22
PART III — INITIATION OF PROGRAMS
1. FACTORS IN THE INITIATION OF PROGRAMS
1. Perception of Needs 27
2. Recognition of Opportunities to Meet Perceived Needs 27
3. Use of Authority 27
4. Credibility of Initiators 27
5. Communication 28
6. Assessments of Feasibility of New Programs 28
7. Delegation of Responsibility for Detailed Planning and Implementation 28
Summary 29
vii
2. WHO SHOULD DO THE PROGRAMMING . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
1. Individual Initiation Approach .................................. 31
2. Team Planning Approach ...................................... 31
3. FACTORS INFLUENCING THE INITIATION OF PROGRAMS , , , , , , , , , , , , , , 33
1. Correctional Trends and Philosophies , , , , , , , , , , , , , , , , , , , , , , , , , , , , , , 33
2. ExistingPrograms,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,,, 33
3. Social and Political Trends ...................... ................ 34
4. Literature . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
5. Other Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
6. Internal Milieu . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
7. Other .................................................... 35
Comments and Discussions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
QUESTIONS RELEVANT TO THE INITIATION OF PROGRAMS . . . . . . . . . . . . . . . . . . 36
PART IV - RESOURCES .......... .................................. 37
1. HUMAN RESOURCES -STAFF . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
1. Roles and Functions of Staff . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
2. Staff Training and Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
3. Identification with and Commitment to Programs . . . . . . . . . . . . . . . . . . . . . . 43
4. Staff Attitudes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
5. Staffing .................................................. 44
2. HUMAN RESOURCES - CLIENT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
1. Roles and Functions of Clients . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
2. Selection of Clients for Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
3. Client Attitudes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
3. PHYSICAL RESOURCES ........................................ 47
1. Financial Considerations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
(a) Private Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
(b) Government Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
2. Geographical Location . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
QUESTIONS RELEVANT TO RESOURCES . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
PART V - ORGANIZATIONAL CONSIDERATIONS . . . . . . . . . . . . . . . . . . . . . . . . . . 51
1. RELATIONSHIP OF THE ORGANIZATION TO OTHER SYSTEMS . . . . . . . . . . . . 55
viii
73
73
75
2. ORGANIZATIONAL STRUCTURE 57
3. MANAGEMENT STYLE 59
4. CAREER DEVELOPMENT 61
QUESTIONS RELEVANT TO ORGANIZATIONAL CONSIDERATIONS 62
PART VI — PROPOSED PROGRAMMING MODEL 63
1. INITIATION OF PROGRAMS 67
1. Identification of Needs 67
2. Strategic Planning 68
3. Feasibility Study 69
4. Program Proposal 70
2. IMPLEMENTATION 73
1. Decision to Implement the Program
2. Implementation Planning
3. POST IMPLEMENTATION
On-going Operations, Evaluation and Replanning 75
QUESTIONS RELEVANT TO THE PROPOSED PROGRAMMING MODEL 77
APPENDIX A: LIST OF RESPONDENTS 79
APPENDIX B: STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT 93
ix
PREFACE
It has long been recognized in the field of corrections that there is a need for a uniform and
effective approach to programming. The purpose of the programming team was three-fold. First, the
members created an inventory of all programs currently operant within the spheres of the Canadian
Penitentiary and National Parole Services. Second, the members conducted in-depth studies of eight
programs operated in Canada by both government and private agencies. Third, on the basis of an
analysis of the data generated by these eight studies, the members developed and proposed a standard
programming process, which is contained within this report.
Historical Development
In the spring of 1974, the Ministry of the Solicitor General established an inter-agency Task
Force to examine ways and means of establishing a single Federal Corrections Agency to encompass the
present National Parole and Canadian Penitentiary Services.
In July of 1974, the Task Force members established committees in each of the five regions in
Canada, consisting of three parole officers and three penitentiary officers. These committees, known
collectively as Sub-Task 2-D, were established to serve as a support group to the Organization Team of
the Task Force. The primary purpose of the regional committees was to ensure the development of a
uniform and effective programming process for the newly created Federal Corrections Agency.
As the programming responsibility of the new agency would include programs currently
operated by, or having impact on, the existing organization, the first task of the committee was to
create an inventory of such programs. This inventory detailed the number and nature of the programs,
as well as their level of initiation. Subsequently, it was analyzed with respect to a number of factors and
published under separate cover.
The second phase of the endeavour was the in-depth study of eight selected programs in
Canada, operated by both private and government agencies. The standard in-depth study format utilized
to gather this data may be found in Appendix B. The purpose of this study was to gain an
understanding of the nature and effectiveness of the existing programming process, as well as to create a
data base from which a uniform programming process could be derived. The sample programs were
selected on the criteria of: level of initiation, nature of the program, and type of agency operating the
program. A short description of each of the eight programs studied follows:
1. Mandatory Supervision Program
Mandatory Supervision was defined by that provision in the Parole Act whereby, "Anyone
transferred to a federal institution after August 1, 1970, will be, on release, subject to supervision under
the authority of the National Parole Board". In other words, Mandatory Supervision is a release process
from a federal correctional institution by which those inmates released are subject to the same
conditions as those on parole, including revocation and forfeiture.
2. Neegan Program
The Neegan Society was established in the fall of 1973 with funding from the federal
government in the form of a three year grant from the Local Employment Assistance Program. The
purpose of the society was to establish a work force composed of selected inmates from Drumheller
Institution. These were released to the Society on a special parole, which enabled them to work for the
Society during the day, with their lodgings being provided at Grierson Community Correction Centre in
Edmonton. The work of the Society consists of a federal government contract to slash and clear brush
around the perimeter of Elk Island National Park, located twenty miles east of Edmonton. The men
were transported by bus from the Grierson Centre to the job site each morning and returned to the
Centre at the end of the work day. For their work, the men were reimbursed the wage of $3.00 per
hour, for an eight hour day, and from their wages room and board of $70.00 per month was deducted,
along with the standard deductions for Unemployment Insurance and Income Tax.
xi
3. Unison Program
Unison, a Halifax based agency for the assistance of female offenders, vvas initiated on a
volunteer basis in January 1972. The initial objectives of that organization were to assist female
offenders at the Halifax County Correctional Centre in securing accommodation, employment, and
education upon release. Over a two-year period, the agency developed nevv programs, hired a fulltime
staff and expanded its operation into the Cape Breton Area. During this period, the basic objectives of
the agency were expanded and the agency developed nevv areas of concern. Presently, there is a
concentration on women's rights and awareness, and on issues such as day care.
4. Police Training Program
The Police Training program was established in Regina, Saskatchewan to serve as an interface
between the police agencies and the parole service. Under the direction of Keith Wright, District
Representative of the National Parole Service in Regina, a series of lectures on purposes, roles and procedures of the parole service were presented as part of the training programs for municipal and
R.C.M. Police departments.
5. Living Unit Program
The Living Unit program implemented by the Canadian Penitentiary Service in 1972, involved
the permanent assignment of staff to specific groups of inmates accommodated in separate units of the
institution. With emphasis on group work methods, the program intended to improve relationships
between staff and inmates. The aim was to provide an opportunity for inmates to assume greater
responsibility, and to learn better ways of dealing with social situations. The concept was to delegate
authority and responsibility to officers of the Living Unit team to work in close cooperation with the
inmates. The role of the social science staff was to become one of guidance and assistance to the staff in
the team to help to deal with problems.
6. Native Clan Program
The Native Clan was established in Winnipeg in 1972 to promote greater involvement of native
inmates in existing institutional programs, as well as the development of other programs to meet the specific needs of native offenders. Such programs were to be extended into the community to prepare
and assist native inmates in their return to the community following release. The Native Clan organization established a Board of Directors and Advisory Committee with representatives of Indian
and metis organizations, as well as government and private agencies operating in the corrections field.
Their activities included the operation of a half-way house, dissemination of information on parole
procedures, liaison between native inmates and their families and assistance in the location of employment.
7. British Columbia Forestry Projects
Consultation between Forest Service in 1973 resulted in agreement to employ selected inmates in forest management activities, including: road and camp building, slash burning, tree planting, snag falling, thinning, pruning, and fire fighting. In June 1973 an initial project was undertaken at Bute Inlet located north of Vancouver. Initially, inmates were released on Temporary Absences, which were later converted to Day/Temporary Paroles. Approximately 25 inmates were involved in the initial project.
In 1974 a more extensive formalized forestry project was developed and implemented, involving approximately 95 inmates on Day Parole from four institutions working in three remote locations: VVinslow Creek, loba Inlet and Wakeman Sound.
The inmates in this program were paid the same wage as other forestry labor, with the normal deductions for Unemployment Insurance, Income Tax, and room and board. They generally worked ten days consecutively followed by four days in their respective institutions, with some receiving week-end passes as part of Day/Temporary Parole conditions.
xii
8. Therapeutic Community Program
The Therapeutic Community program operated in one cell block in Springhill Institution and
was based on a treatment oriented philosophy of corrections. The program, based on the concepts of
Maxwell Jones, was initiated in 1969. The Therapeutic Community is an autonomous community whereits members are responsible for their own rules and regulations. Their decisions affect both the
individuals and the community as a whole, thus creating a living and learning situation where values
and beliefs at any one point in time may be considerably modified in the light of new experiences at
any future date. The techniques involved are: group interaction, including confrontation, development ofleadership, decision making by consensus, and delegation of authority to inmates within limits ofpenitentiary policy. The program demands complete immersion on a twenty-four a day basis. The focal
point of the program is the one-hour meeting of the community held each working day. These meetings
are immediately followed by approximately a one-hour post mortem session for the staff, where "whathappened" at the daily meeting is discussed for purposes of training, emotional readjustments, andpersonality growth of staff.
The third phase of the task was the analysis of the data generated by the eight in-depth studiesto isolate the factors inherent in the programming process. Once isolated, the process factors were usedas a basis for the formulation of a standard programming process. The analysis and presentation of the
relevant factors, as well as the resulting proposed programming process, form the body of the followingreport.
The programming process used in the construction and planning of the program is distinct from
the program content. The report is not intended to make inferences about the effectiveness or usefulness
of any of the programs studied, This report focuses on the process used to form a program. The primaryconcern is with the processes used in their conception and formulation.
Methodology
The methodological basis used for the analytical process was that of Multivariate, or FactorAnalysis. This approach stresses the importance of considering those factors and variables generated bythe data. That is, only those factors clearly indicated in the data were consideredo
In order to derive the relevant factors operant in the programming process, the data on
the eight studies were presented in a matrix form. The following example is a simplified version ofthis matrix. Each item, comment and event presented in the data was categorized according to its
nature. This process generated 48 loosely stuctured, itemized categories. These categories, in turn, were
cross-referenced and intercorrelated to produce a smaller number of concise, relatively independentPrimary Factors. For example, in the matrix displayed, the Primary Factors were:
(1) "roles and functions of clients",
(2) "selection criteria" used to screen perspective clients, and
(3) "client attitudes", as these related to the proposed program.
The Primary Factors were further grouped according to their general nature and occurrencewithin the programming process, to form Secondary Factors. In the example used, the three PrimaryFactors are encompassed in the Secondary Factor of "client related considerations". In other words, thesingle Secondary .Factor is a combination of the three Primary Factors outlined.
The Secondary Factors indicated in the data were further grouped into larger factors, termedGlobal Factors. The Global Factors formed the chapter headings of this paper. With reference to the
example used, the Secondary Factors of "client related considerations" combined to form the GlobalFactor of "human resources". The broader the category, the less independent of each other the factors
became. Whereas Primary Factors were relatively independent of each other, Secondary Factors oftenoverlapped. For example, the Secondary Factors termed "internal milieu" and "client relatedconsiderations" both contain the Primary Factor of "client attitudes" within their scope.
The Global Factors, of which there were six in this study, combined to form the Domain of"programming process". Thus, the programming process may be described in terms of six GlobalFactors. These, in turn, contain a set of Primary Factors.
xiii
MATRIX OF CLIENT RELATED CONSIDERATIONS
ROLES AND FUNCTIONS SELECTION CRITERIA CLIENT ATTITUDES
Clearly defined and out- Voluntary native inmates Some consultation with
N lined in job description, prospective clients at
eegan Day Parole restrictions Drumheller drew positive
and conditions applied
Expected roles and Voluntary and referred Consultation with native
functions clearly outlined. clients. Specific admis- inmates at Stony Mountain Native Clan
sion criteria clearly indicated a positive
outlined.
Client role was to be Compulsory — part of basic Not considered.
Police that of "student", training curriculum.
Training (Clients were police
officers)
Client roles and functions Compulsory for medium Not considered to any
Living Unit not clearly outlined or security inmates, great extent.
understood.
No clear definition or Compulsory for all inmates Not considered. Mandatory
understanding of expected in federal institutions Supervision
roles and functions.
Roles clearly defined. Clients to have at least I nitially distrustfu I.
Clients to be part of group 6 months remaining in sen- Some prior consultation Therapeutic
process. tence. Selection according indicated some skepticism. Community
to specific ratios of Hostility from inmates
offender categories, not involved.
Roles and functions not Selection criteria No prior consultation.
B.C. clearly outlined or initially vague. Later Initial confusion about
F orestry understood. included Day Parole. Day Parole restrictions
Projects and amount of work
expected.
Role of "recipient" of All female ex-offenders Positive attitude by
Unison assistance clearly in need. clients.
understood.
XV
PART I
Recommendations
and Suggestions
for Implementation
SUMMARY
OF RECOMMENDATIONS
The following is a list of the recommendations contained in the report on programming:
1. The Federal Corrections Agency should utilize the most modern, effective communications
technology and methodology to facilitate communications and consultation, including video-tape,
conference telephone calls, telex equipment and computer information banks.
2. The Federal Corrections Agency should develop feedback systems to ensure that messages
have been received, understood and the reaction transmitted back to the relevant authorities.
3. The Federal Corrections Agency should utilize the expertise of external consultants at all
organizational levels to facilitate programming.
4. The Federal Corrections Agency should include representatives of the National Parole Board in all
programming affecting inmates or parolees.
5. Programming in the Federal Corrections Agency should include consultation with or the direct
participation of representatives of private agencies and other external organizations that are
expected to be involved in or affected by the program.
• 6. The programming process in the Federal Corrections Agency should fully utilize the expertise of
staff members in the organization to encourage staff commitment to the program and staff
development.
7. The Federal Corrections Agency should adopt a programming policy requiring wide consultation
with staff at all levels (and in all regions where the proposed program will be national), who may
be affected by implementation of the program, in order to facilitate communication, planning and
encourage support for the programs.
8. The Federal Corrections Agency should directly involve or consult with clients in all programming
that affects them in order to plan more effectively and prepare the clients for new programs.
9. The Federal Corrections Agency should utilize both the individual and team planning approaches
where appropriate, with as much involvement of staff, inmates and others affected by the program
as possible, to carry out at all levels the programming process recommended in this report.
10. The Federal Corrections Agency should clearly delineate the responsibilities and authority of
persons to initiate and plan programs.
11. The Federal Corrections Agency should develop a program planning body or bodies whose
function would include the analysis of the influence of internal organizational pressures and
dynamics, social trends, political issues, correctional philosophies, public reactions, and other
factors in the programming process.
12. The programming process employed by the Federal Corrections Agency should require that the
expected roles and functions, including authority and responsibility, of the staff at all levels to be
involved in the program be as clearly defined and understood as possible prior to implementation.
13. Following iniplennentation, job descriptions should be reviewed and rewritten to be a more precise
reflection of the roles and functions performed.
14. The programming process employed by the Federal Corrections Agency should include a careful
comparison of the existing and traditional roles and functions of the staff with those anticipated
for new programs. Whenever possible, existing staff should be encouraged and developed to
undertake the new roles and functions in the new programs.
3
15. Implement a process to examine staff roles and functions, for example, job descriptions, to ensurethey are internally compatible.
16. Staff training and development should be emphasized to prepare staff at all levels for the new rolesand functions required by new programs.
17. (a) The staff training and development program should be based on carefully identified andverified needs using the same programming process as recommended in this report. That is, thestaff training and development should be aimed at such specific targets as:
i) having assessed the present skills and knowledge of a staff member and the requirementsof the position, and having found a "gap", the training program should be focused on theskills and knowledge required to close the gap
ii) secondly, the training and development program should be aimed at helping staff membersto develop the skills and knowledge necessary to undertake new positions anticipated intheir career pattern.
(b) The staff training and development program should avoid duplicating the public schoolmethods designed for children, and utilize adult education methods, which recognize theexperience, knowledge, position and willingness of the staff member to learn.
18. The Federal Corrections Agency should utilize methods to create commitment to programs. For
example, utilize the staff and inmates who will work in the program to plan it. Secondly, involve
staff in the program who have philosophies or vested interests that are compatible with the
objectives of the program.
19. Programming should consider the factor of staff attitudes. This may lead to alterations of
programs to be compatible with attitudes or it may be desirable and reasonable to encourage the
staff to change their attitudes. A third alternative may be to operate the program in another
organization which is more supportive.
20. The Federal Corrections Agency should improve staffing procedures to ensure that selection
boards are competent, both in ability to select qualified candidates and in selection procedures.
Positions should be filled with minimum delay.
21. Programming should consider the influence of unions, and work cooperatively , with these
organizations in the planning process, wherever possible.
22. The programming process should include a clear definition of the anticipated roles and functionsof clients, which is developed in consultation with and understood by clients.
23. Clients should be provided with orientation and training to prepare for new roles and functions thatdiffer substantially from traditional roles.
24. The selection criteria are an important factor in program planning and should be:
(a) Clearly defined and understood by all parties.
(b) Consistent with the stated purpose and objectives of the program.
(c) Realistic in terms of availability of suitable clients to participate in the program.
Clients should be involved in the development of selection criteria to facilitate communicationsand acceptance of the program.
25. The programming process should consider the attitudes of clients towards the program and, ifpossible, be implemented with the support of clients. This may be facilitated by involvement ofclients in planning and attempting to structure the program to accommodate their concerns.
26. Rather than depend on external departments to fund private correctional agencies, the FederalCorrections Agency should develop a funding policy applicable to private correctional agencies and
obtain the necessary funds from Treasury Board. The funding policy should permit long-term
planning by private agencies.
27. Programming in the Federal Corrections Agency should include careful and accurate budgeting forhuman and physical resources. The budgeting should be program specific.
4
28. Staff establishment and funds should be approved by Treasury Board prior to implementation of new programs.
29. Institutions and district offices should be strategically located close to resources that facilitate
programming.
30. The Federal Corrections Agency should be based on a stated philosophy which defines the role of
the organization within the Criminal Justice System and the Government of Canada, of which it is
an integral part. This philosophical base must be consistent with and in accord with the goals of
those systems.
31. The Federal Corrections Agency should develop guidelines and principles outlining its relationship
to other component organizations within the Criminal Justice System and the Government of
Canada. This should be done with a view to reducing fragmentation and ensuring coordination
within the systems.
32. The Federal Corrections Agency should establish an organizational structure that would include a
body or bodies responsible for the programming process.
33. The Federal Corrections Agency should clearly define staff roles at all levels, including responsibi-
lity and authority in the initiation, implementation, evaluation, and modification of programs.
34. A formal communication network should be established in the Federal Corrections Agency to
facilitate line staff input into programming.
35. The Federal Corrections Agency should decide on and implement a management style and
philosophy that is compatible with the proposed programming process, such as "participatory
management", "management by objectives", and organization development".
36. The Federal Corrections Agency should establish a career development program that encompasses
both upward mobility and a career for staff in programs at the field level.
37. Existing programs should be compared to the purpose of the organization to determine:
(i) to what extent the programs contribute to fulfilling the purposes of the
organization;
(ii) which purposes are not fully met by existing programs.
(a) Programs that do not substantially contribute to the organizational purposes should be
reviewed with a view to modification or discontinuation.
(b) To meet purposes that are not fulfilled at present, new programs should be initiated utilizing
the recommended programming process.
A computerized inventory of existing programs and basic details on the program should be
established to facilitate this process.
38. The needs that are not presently fulfilled should be clearly identified, verified, and stated before
the search for programs begins. Clients and "front line" field staff, who are closest to the
operations should be involved in the identification and verification of needs.
39. A comprehensive systematic search should be undertaken to locate and develop program
alternatives to meet the stated needs. This should include a review of literature, research, internal
programs, and programs in other jurisdictions. A variety of alternatives may be identified, from
which the most relevant and effective program may be created.
40. Feasibility studies must include consideration of the following prior to the selection and
implementation of programs:
(1) Examination of all information relevant to each alternative, through a review of the literature,
research and comparable existing programs, both within and external to the organization;
(2) compatibility of the proposed program with the stated purposes of the organization;
(3) identification of the resources required for the program, and a comparison of these with the
existing organizational resources in order to determine the additional resources required to
implement the program. The following factors which are discussed more thoroughly in
chapters under the same headings, should be considered:
(c)
5
a) Human Resources, Staff
Roles and Functions of Staff
Staff Training and Development
Identification with and Commitment to Program
Staff Attitudes
b) Human Resources, Client
Roles and Functions of Clients
Selection of Clients for Programs
Client Attitudes
c) Physical Resources
Financial Resources
Geographic Location
(4) it is recommended that the Federal Corrections Agency examine the roles, functions and
receptiveness of external organizations and individuals who will be involved in or affected by
the program alternative.
The results of the feasibility study should include identification of the assumptions underlying
the program alternative and an assessment of their validity. It should also identify "the
planning gap", that is the amount of change needed within the organizational structure in
order to effectively accommodate the new program.
41. In view of the importance of the completeness and quality of the proposal, the following format is
recommended:
PROGRAM PROPOSAL
(1) A concise description of the proposed program and the activities involved.
(2), An explanation of the relationship between the proposed program and the purposes of the
organization.
(3) A clear statement of quantifiable objectives the program intends to accomplish.
(4) A statement of client-related considerations including the following:
a) The anticipated roles and functions of clients to be involved;
b) the selection criteria to be used for the recruitment and screening of prospective clients;
c) a description of the attitudes of the clients towards the program, especially vvith respect to
their expected roles and functions in the program.
(5) A statement of the anticipated roles, functions and acceptance of other organizations, agencies
and individuals vvho will be involved in or affected by the proposed program.
(6) A statement of staff-related considerations, including the following:
a) Anticipated roles and functions of prospective administrative and support staff, including
specific job descriptions, selection criteria, and proposed methods of recruitment:
b) an outline of training and development of prospective staff;
c) a statement of the degree of identification and commitment by staff to the proposed
program;
d) an overview of staff attitudes towards the program, and their expected roles and functions
in the program.
(7) A clear and detailed statement of anticipated budget requirements for the proposed program,
including the following;
6
a) Required staff establishment and related costs;
b) required physical resources, including:
I) tools and equipment,
ii) alterations to existing buildings,
iii) rental and insurance costs, and
iv) funding sources;
c) estimated duration of the project.
(8) A statement of proposed evaluation, monitoring and feedback systems to indicate:
a) The extent to which the program meets original stated organizational purposes;
b) degree of success in meeting original stated quantifiable objectives;
c) statistical description and evaluation of program; and
d) methods of consultation with individuals, agencies and organizations involved in or
affected by the program.
(9) A description of the pilot project, or other testing mechanism, when applicable.
42. To facilitate the programming process, a clear written and dated decision to implement the
program, in addition to authorization of the funds required to operate the program, is required.
43. Implementation planning should include details of:
(1) Quantifiable objectives of the program;
(2), procedures and policy, such as Commissioner's Directives or the Parole Procedures Manual;
(3) administrative structure;
(4) job descriptions and expectations of the staff, including such details as shift schedules;
(5) staff training content and schedules;
(6) conditions and regulations affecting clients;
(7) criteria for the selection of clients;
(8) budget allocation;
(9) the liaison and coordination with external individuals and organizations that will be involved
in or affected by the program;
(10) time frame for implementation;
(11) feedback, monitoring and evaluation, including the management information system;
(12) the expected roles and functions of the individual, board, team or committee responsible for
coordination and guidance of the implementation process.
44. A systematic evaluation of the program, involving a management information system, is required
to determine whether or not the program meets the stated objectives. The results of the evaluation
should be shared with all people involved in the program, as well as those responsible for planning and implementing the program.
45. It is recommended that the Federal Corrections Agency follow a process of planning and
replanning on an ongoing basis, utilizing feedback from the evaluative components of the programs
and feedback from agencies, clients and all levels of staff.
2
SUGGESTIONS
FOR IMPLEMENTATION
To develop an awareness, understanding, and acceptance of programming process at all levels in
the Federal Corrections Agency, the following approaches may be employed:
1. Distribute the reports on the inventory analysis and "Programming" to staff at all levels. Later, it may
be desirable to share the reports with individuals and agencies who interact with the Federal Corrections
Agency, as well as inmates in the institutions.
2. Prepare and distribute a concise handbook on "Programming" outlining procedures and formats in order
to facilitate uniform and effective programming process.
3. Utilize the expertise of the members of the regional committees on program planning to coordinate
study sessions with field staff, including managers.
4. Consultation by the Task Force on the new Federal Corrections Agency with field staff based on the
"Programming" report and the questions contained in the report.
The establishment of a program planning capacity in the Federal Corrections Agency will require
considerable planning. One method would be to form a committee using the resources of the team on program
planning to develop specific proposals to implement the recommendations in this report. For example,
recommendation 32 identified the need for a body or bodies to conduct the programming process. The
proposed committee could determine the organizational structure and roles of such bodies. This may
involve national and regional program planning units vvith responsibility for facilitating programming,
ensuring that existing programs are reviewed reguiarly to determine relevance and effectiveness, act as a
consultant to initiators of programs, encourage programming where needs exist that have not been met by
existing programs, and maintain an ongoing inventory on all existing programs, with information on their
success. The exact number, type and qualifications of staff required for such units must be identified, as
well as their reporting relationships within the Federal Corrections Agency.
The suggested committee could define the relationship, interface and coordination between the
proposed programming unit and other parts of the organization, Ministry and Criminal Justice System. For
example, the programmers from the unit could interface and involve parole staff through participation in
their annual meeting of Parole Service Officers. Similarly, the programmers could become involved in the
major meetings of other staff groups in the Federal Corrections Agency. Involvement in the Joint Regional
Committees and correctional associations nnay be useful in programming that involves other parts of the
Criminal justice System. The Regional Consultants of the Ministry of the Solicitor General may also
contribute to the programming process.
9
PART II
Cornmunication
and Consultation
INTRODUCTION
The difficulty in communication and consultation in programming increased with the size of the organization. In relatively small and uncomplicated organizations, these factors did not present significant problems. Effective communication and consultation was usually achieved through informal, ad hoc meetings. For example, Unison initially consisted of only four volunteers in a loosely structured, informal organization. As Unison expanded in size and complexity to include the Advisory Committee and staff members, communication became more formal and more difficult. In larger and more complex organizations, such as the new Federal Corrections Agency, communication and consultation may be expected to pose major problems. These will be discussed in the following chapters: .
1. DISTRIBUTION OF INFORMATION
2. EXTERNAL CONSULTATION
(a) Individuals
(b) Organizations
3. INTERNAL CONSULTATION
(a) Selected Individuals
(b) General staff
(c) Clients
4. FACTORS LIMITING CONSULTATION
13
1
DISTRIBUTION
OF INFORMATION
The distribution of information during programming presented varying degrees of difficulty in
the eight programs studied. The most severe problems were encountered in the Mandatory Supervision
and Living Unit Programs.
According to the available data on Mandatory Supervision, the first document advising the field
of the program occurred October 5, 1970, approximately two months after the legislation has been
proclaimed. No documents addressed to the Canadian Penitentiary Service outlining the purposes and
procedures of this program were found. Apparently, the District Representatives of the National Parole
Service, on the basis of the limited information they had received, were responsible for assuring that
penitentiary staff and inmates were informed. As a result, the information on procedures received by the
penitentiary staff and inmates was not uniform or adequate across Canada, and problems occurred
during implementation. For example, penitentiary officials often advised parole staff only at the last
moment prior to release of inmates who had statutory remission restored. The remaining time to
complete interviews and community assessments in preparation for Mandatory Supervision was
inadequate. In Kingston, Ontario, a situation developed where penitentiary psychiatrists referred
mentally disturbed inmates to after-care agencies vvithout prior consultation with parole authorities
regarding the requirements of Mandatory Supervision.
In the Canadian Penitentiary Service, the field staff, especially industrial and vocational trades
instructors, and security staff, had limited understanding of their roles in relation to the Living Uit
program. As the inmates were further insulated from headquarters, they had even less program
information than the staff. Headquarters attempted to inform field staff and inmates on the Living Unit
program through distribution of a film, Divisional Instructions and a booklet. There was a short staff
training course for people directly involved in the Living Unit program and some meetings occurred in
institutions to discuss the Living Unit program. However, these approaches were essentially "one-way
communications" and there was no method to ensure that the information has been received and
understood.
A feedback system would have permitted headquarters to extend the distribution of this
information to the staff members and inmates who had not received or understood the information
fol lowing the initial communications attempt.
1. THE FEDERAL CORRECTIONS AGENCY SHOULD UTILIZE THE MOST
MODERN, EFFECTIVE COMMUNICATIONS TECHNOLOGY AND METHO-
DOLOGY TO FACILITATE COMMUNICATIONS AND CONSULTATION,
INCLUDING VIDEO-TAPE, CONFERENCE TELEPHONE CALLS, TELEX
EQUIPMENT AND COMPUTER INFORMATION BANKS.
2. THE FEDERAL CORRECTIONS AGENCY SHOULD DEVELOP FEEDBACK
SYSTEMS TO ENSURE THAT MESSAGES HAVE BEEN RECEIVED,
UNDERSTOOD AND THE REACTION TRANSMITTED BACK TO THE
RELEVANT AUTHORITIES.
15
2
EXTERNAL
CONSULTATION
The consultation process implies a mutual exchange of information with the primary purpose of
gathering information. While distribution of information usually follows the decision to implement a
program, consultation is associated with the earlier planning stages of the programming process. Most of
the programs studies utilized sonne form of consultation.
(a) Individuals
The Living Unit and Therapeutic Community programs utilized external consultants in the
programming process. For example, Maxwell Jones, a social psychiatrist with extensive experience in
Therapeutic Communities in mental hospital in-patient settings, contributed to the design of the Living
Unit program. Similarly, Norm Baker, who had considerable experience in forestry in British Columbia,
assisted in the design and implementation of the British Columbia Forestry projects. He later was
appointed Director of Forestry programs (Pacific Region) in the Canadian Penitentiary Service. The use
of expertise from outside of the organization appeared to be a valuable facilitator in the programming
process.
3. THE FEDERAL CORRECTIONS AGENCY SHOULD UTILIZE THE EXPERT-
ISE OF EXTERNAL CONSULTANTS AT ALL ORGANIZATIONAL LEVELS TO
FACILITATE PROGRAMMING.
(b) Organizations
Many of the programs studied were dependent upon the cooperation of external agencies for
their successful implementation. Neegan and British Columbia Forestry projects required approval of
Day Paroles from the National Parole Board to permit inmates to participate in the programs. Initial
failure to consult the National Parole Service during planning delayed program implementation and
resulted in a work overload situation in the parole offices. Similarly, the planning of Mandatory
Supervision appeared to involve inadequate consultation with the Canadian Penitentiary Service and the
private agencies. This resulted in criticism and resistance by the staff of the Canadian Penitentiary
Service, John Howard Society and other organizations following implementation of the Mandatory
Supervision program. In comparison, the Native Clan program was based on extensive consultation
during planning with relevant agencies and funding authorities. This appeared to facilitate the
development of a program design that received financial support and, following implementation, received
cooperation from the other social service agencies necessary for its operation.
4. THE FEDERAL CORRECTIONS AGENCY SHOULD INCLUDE REPRESENT-
ATIVES OF THE NATIONAL PAROLE BOARD IN ALL PROGRAMMING
AFFECTING INMATES OR PAROLEES.
5. PROGRAMMING IN THE FEDERAL CORRECTIONS AGENCY SHOULD
INCLUDE CONSULTATION WITH, OR THE DIRECT PARTICIPATION OF
REPRESENTATIVES OF PRIVATE AGENCIES AND OTHER EXTERNAL
ORGANIZATIONS THAT ARE EXPECTED TO BE INVOLVED IN OR
AFFECTED BY THE PROGRAM.
17
3
INTERNAL
CONSULTATION
(a) Selected Individuals
In large organizations with extensive human resources, the initiator(s) occasionnally utilized
selected staff in the planning process. Bill Westlake, Director of Warkworth Institution, prepared a
preliminary proposal for the Living Unit program. His proposal was reviewed by Dr. Jean Garneau,
Director of Classification and Psychological Services, who was later assigned the responsibility to
implement the Living Unit program. Similarly, a planning team was developed at Springhill Institution to
implement the Therapeutic Community program.
6. THE PROGRAMMING PROCESS IN THE FEDERAL CORRECTIONS AGENCY
SHOULD FULLY UTILIZE THE EXPERTISE OF STAFF MEMBERS IN THE
0 R GAN I Z ATI ON TO ENCOURAGE STAFF COMMITMENT TO THE
PROGRAM AND STAFF DEVELOPMENT.
(b) General Staff
The programming process employed in the National Parole Service and Canadian Penitentiary
Service programs studied appeared to have been autocratic. That is, the initiation and a large proportion
of the planning was generally performed by a single individual or a small group of senior staff at
headquarters or regional headquarters. There was little consultation with field staff, especially with those
below the level of Director or District Representative. Mandatory Supervision appears to have been
conceived, the legislation written, and staff establishment obtained from Treasury Board, all in relative
isolation. Possibly due to a conflict in philosophy between field staff and headquarters, the field staff
resisted the Mandatory Supervision program. Field staff objected to the compulsory nature of the
program, the necessity to supervise less cooperative clients, and the emphasis on "control" rather than
"help". It is hypothesized that the resistance may have been reduced or overcome by consultation
during planning. Alternatively, consultation may have resulted in the creation of a different and more
widely acceptable program. The Living Unit program provides a similar example of limited consultation
with field staff and inmates during planning, which may be related to the resistance to and delay in
implementation apparent in several institutions.
7. THE FEDERAL CORRECTIONS AGENCY SHOULD ADOPT A PROGRAM-
MING POLICY REQUIRING VVIDE CONSULTATION VVITH STAFF AT ALL
LEVELS (AND IN ALL REGIONS WHERE THE PROPOSED PROGRAM WILL
BE NATIONAL), WHO MAY BE AFFECTED BY IMPLEMENTATION OF THE
PROGRAM IN ORDER TO FACILITATE COMMUNICATION, PLANNING AND
ENCOURAGE SUPPORT FOR THE PROGRAMS.
(c) Clients
All of the programs studied involved clients directly, with the exception of Police Training. Most
of the programs created in the field, such as Native Clan, Unison and Neegan programs, were in contact
with clients during the planning stages and it was noted that one program, Unison, had one ex-offender
on staff. In contrast, the Mandatory Supervision, Living Unit and British Columbia Forestry programs
appeared to have been initially imposed on the inmates with little or no prior consultation. As was the
case with the staff, many inmates objected to the Mandatory Supervision and Living Unit programs.
VVhile the British Columbia Forestry projects were generally well received by the inmates, the problems
related to visits, mail and recreation at the camps might have been foreseen and avoided if inmates had
been involved during planning.
19
It would appear that consultation with clients would give them more time to adjust to andprepare for new programs, which may result in smoother implementation.
8. THE FEDERAL CORRECTIONS AGENCY SHOULD DIRECTLY INVOLVE ORCONSULT WITH CLIENTS IN ALL PROGRAMMING THAT AFFECTS THEMIN ORDER TO PLAN MORE EFFECTIVELY AND PREPARE THE CLIENTSFOR NEW PROGRAMS.
20
4
FACTORS LIMITING
CONSULTATION
Although the data supports the consultation process, it is recognized that certain factors may limit the extent of the process and the choice of techniques employed. It has been suggested that this process may be lengthy, costly, and incompatible with the concept of "administrative secrecy". Futhermore, the expectations of those consulted may be raised without likelihood of fulfillment. Regardless of these potential limitations, it is believed that some form of consultation during progrannming is always possible and should take place.
21
QUESTIONS RELEVANT TO COMMUNICATION AND CONSULTATION
1/4
An effective communication and consultation policy for programming in the Federal Corrections Agency should consider the following questions:
1. What communications technology exists that could be used by the Federal Corrections Agency .to facilitate the communication process?
2. What feedback mechanisms could be developed to ensure messages are received, understood, and the reaction to the messages transmitted to the responsible manager(s)?
3. (a) What types of consultants could help the Federal Corrections Agency with programming?
(b) Where could consultants be used?
(c) What types of activities could consultants help with?
4. (a) What method should be developed to ensure that the National Parole Board is involved in program planning in the Federal Corrections Agency?
(b) What organizational structures are needed to facilitate the involvement of the National Parole Board in programming?
5. What methods should be developed to ensure consultation with or the direct participation of representatives of private agencies and other external organizations that are expected to be involved in or affected by the program?
6. (a) What staff resources possessing expertise valuable to the programming process exist in the Federal Corrections Agency?
(b) How may these staff be used in programming?
7. (a) What methods may be developed for broad consultation vvith staff in the programming process?
(b) What is the best method to integrate, analyze, absorb and work with the responses?
8. What methods may be developed to involve or consult with clients during programming?
9. What criteria should determine who should be consulted during the programming process?
22
PART III
Initiation
of Programs
INTRODUCTION
The initiation of the programs studied has been traced with reasonable certainty to specific
individuals, with the exception of the Living Unit program. A review of the skills demonstrated by the
initiators of the programs revealed a number of process factors. The skills of the initiators and the
factors are described in the following sections:
1. Perception of Needs
2. Recognition of Opportunities to Meet Perceived Needs
3. Use of Authority
4. Credibility of Initiators
5. Communication
6. Assessment of Feasibility of New Programs
7. Delegation of Responsibility for Detailed Planning and Imple-
mentation
Having identified several process factors in the initiation of programs, two alternatives as to
"who should do the programming" are examined. They are:
1. Individual Initiation Approach
2. Team Planning Approach
Finally, the factors that were found to influence the initiation of programs are discussed:
1. Correctional Trends and Philisophies
2. Existing Programs
3. Social and Political Trends
4. Literature
5. Other Agencies
6. Internal Milieu
7. Other
25
1
FACTORS IN THE
INITIATION OF PROGRAMS
1. Perception of Needs
The eight programs under study revealed that initiation of programs involved a generalrecognition, understanding and conceptualization of needs. For example, the Deputy Commissioner ofInmate Programs of the Canadian Penitentiary Service, John Braithwaite, who initiated the Neegan andthe British Columbia Forestry projects, was aware of the overcrowded situation inside the institutions,and the related need for additional space and work for inmates. Similarly, George Street, formerChairman of the National Parole Board, in the creation of Mandatory Supervision, perceived a need forassistance and control of released inmates who did not receive parole.
2. Recognition of Opportunities to Meet Perceived Needs
Having a general understanding of the needs, the initiators demonstrated an ability to recognizeand exploit opportunities to meet those needs. This often required a substantial knowledge of agenciesother than the agency with which the initiator was identified. In order to develop Neegan and theBritish Columbia Forestry project, John Braithwaite had to have an understanding of forestryoperations, as well as corrections. He recognized the requirement of British Columbia Forest Service formanpower and was able to relate this to his knowledge of the capability of inmates to do forestry work.In relation to the Therapeutic Community program at Springhill, the institutional Director, BenHamilton, was able to understand the Therapeutic Community concept as it was applied in otherjurisdictions and social service agencies, and could relate this to the correctional setting at SpringhillInstitution. The ability to relate opportunities from the surrounding environment to perceived needsseems to have been a fundamental skill in the initiation of the programs.
3. Use of Authority
In addition to the above skills, the initiators either possessed authority, that is, they held a
senior position in the organization, or were able to enlist the assistance of people in positions of
authority. Keith Wright, as District Representative for the National Parole Service in Regina, utilized his
position to approach administrators in the Regina Police Force and Royal Canadian Mounted Police to
propose the Police Training program. Similarly, the other initiators, John Braithwaite, as Deputy
Commissioner of Inmate Programs (Neegan and British Columbia Forestry projects), George Street, as
Chairman of the National Parole Board (Mandatory Supervision), Ben Hamilton as Director ofSpringhill Institution (Therapeutic Community), and Ted Smith as the Executive Secretary of the John
Howard Society in Halifax (Unison), occupied senior positions in their organizations that gave them abasis of authority and power. In contrast, in developing the Native Clan organization, Al Chartrand had
limited authority. However, lie effectively utilized the influence of Dave Remple, District Representative
of the National Parole Service in Winnipeg, as well as John Braithwaite, Deputy Commissioner (Inmate
Programs) of the Canadian Penitentiary Service and Don McComb, Director of the Consultation Centre,
to obtain the resources necessary for the program. Therefore, the use of inherent or enlisted authority
appears to be a common variable in the initiation of programs.
4. Credibility of Initiators
In addition to occupying positions of authority in their organizations, all initiators has"credibility". They had sufficient respect amongst colleagues, employees, and/or other individuals relatedto the program to enlist and obtain their support and assistance in the implementation. Ted Smith,initiator of Unison, was able to obtain the voluntary assistance of Judy Murray, Counsellor with Canada
27
Manpower in Halifax; Jo-Ann Kean, a Social Worker with Halifax Social Services; and Janet LaRusic, an
ex-offender. With respect to Neegan and British Columbia Forestry projects, John Braithwaite was able
to obtain the cooperation and support of Mr. H.B. Robinson, Deputy Minister of Indian and Northern
Affairs; and, the representatives of the British Columbia Forest Service. Without credibility, it is unlikely
that the initiators would have received an audience with, or assistance from, the people necessary to
implement the programs.
5. Communication
The initiators each demonstrated the ability to communicate the idea for the program and to
win support for the program. In order to initiate the Native Clan project, Al Chartrand successfully
explained the concept to Dave Remple of the National Parole Service, John Braithwaite of the
Canadian Penitentiary Service, and Don McComb of the Consultation Centre. All three of these
individuals subsequently assisted Al Chartrand in the development of the Native Clan. This pattern was
also apparent in the ability of George Street, Chairman of the National Parole Board, to persuade the
Solicitor General, George McIlraith, to propose legislation that would provide supervision to all inmates
released from federal penitentiaries. On both a logical basis and from the findings, the ability to
communicate the concept of the program to other people is essential in the initiation of programs.
6. Assessments of Feasibility of New Programs
The initiators appeared to have conducted intuitive assessments as to the feasibility of
alternative programs in order to decide whether or not it would be possible to pursue the program. To
be effective, the assessment of feasibility should be based on a general knowledge of the human
resources in the organizations, including staff and clients, as well as knowledge of the physical resources
available. Such a review would also require an understanding of the nature of each program alternative
under consideration and what the new programs would involve in terms of resources. Finally, the
feasibility should require knowledge of the people, agencies, and organisations to be involved in any way
in the program. Perhaps Neegan project provides the best example. John Braithwaite realized that
inmates possessed the necessary skills to work in forestry, could be released on day parole for this
purpose, and could be housed in the Grierson Centre. In addition, he recognized the manpower
requirements of the Department of Indian and Northern Affairs and he understood that the Department
of Manpower and Immigration would be able and willing to fund the project under their Local
Employment Assistance Program. Therefore, the initiation of programs should include an assessment of
the feasibility of the identified program alternatives to determine their relevance to perceived needs and
to anticipate problems of implementation.
7. Delegation of Responsibility for Detailed Planning and Implementation
In those programs initiated by senior management in public or private organizations, the
initiator generally delegated the detailed planning and implementation of the program to other person(s).
Having conceived the idea for the Neegan and British Columbia Forestry projects, John Braithwaite
delegated the detailed planning and implementation to Chester Cunningham, Director, Alberta Native
Coufisellinag Services, and to Norm Baker, Director of Forestry Programs. Similarly, in the initiation of
Mandatory Supervision, George Street delegated detailed planning to the Executive Director and legal
staff of the National Parole Service.
The process that was used during the planning and implementation appears to have had
important implications with regard to the success of the programming process. The Living Unit program
experienced considerable resistance and delay in its implementation. Furthermore, there have been
inconsistencies in implementation and operation of the program in those institutions where it has been
established. A number of reasons may be:
1. The Living Unit program proposed by the former Director of Warkworth Institution, Bill
Westlake, was modified in emphasis from a management orientation to a therapeutic
orientation by headquarters staff. Possibly, this alteration created a situation where the
program was no longer aimed at the needs perceived by some Directors of institutions for
better institutional management.
28
2. Communication between headquarters and field staff throughout implementation was not
effective. Headquarters was not made fully aware of the operation and problems of the
Living Unit program as it existed in the various institutions. In addition, the Directors of the
institutions involved did not receive sufficient information and guidance from headquarters
during the implementation„
3. No Treasury Board approval was received for the additional staff establishment required, or
the additional funds for salaries and physical resources, to implement the Living Unit
program in advance of implementation. As a result, the Living Unit program caused
considerable strain on the security resources, from which the manpower resources were
transferred, as well as on the physical resources of the institutions.
As evidenced by the above, the detailed planning and implementation is very important in the
programming process. Therefore, it is essential that this task be delegated to people who are aware of
programming processes and capable of carrying out the processes.
Summary
The following skills and processes were identified in the initiation of the programs studied:
1. Perception of organizational, client, staff and other needs;
2. identification of feasible program alternatives to meet the
perceived needs on the basis of knowledge of the organisation and
impinging external agencies and other organizations;
3. communication of the program proposal(s) to all those likely to
be involved in, or affected by, the implementation of the program;
4. utilization of inherent and/or enlisted authority or credibility to
obtain the necessary human and physical resources to implement
the program;
5. identification of and assistance from a person or persons
competent to plan and implement the program.
29
2
WHO SHOULD DO
THE PROGRAMMING
An examination of the process of initiation of programs by identifiable individuals reveals that
a complex set of skills, knowledge, authority and credibility is required for this task. Although the
studies showed that certain people in corrections possess these skills to a sufficient extent to initiate
programs, people with all of these characteristics are rare. At least two choices presented themselves in
relation to "who" should initiate programs:
1. Individual Initiation Approach
The Federal Corrections Agency could train and develop staff in the areas identified as
important to the initiation of programs. This approach may result in a greater number and more highly
skilled initiators than presently exist in corrections. A disadvantage is that programs initiated by a single
individual may depend on his continued support for their continued existence. If the initiator leaves or
loses interest in the program or if priorities change, the program may collapse. Also, such planning may
not bring the support of staff and inmates to the program believed to occur when both staff and
initiators are involved in planning.
A variation of the individual approach would be to utilize consultants and specialists. They
could do the groundwork in some of the stages of programming, and provide their information to an
"initiator" in order to facilitate and improve the effectiveness of his programming. For example,
specialists may assess the needs of the inmates, staff, and organization, and provide this information to a
"programmer", who would be expected to initiate programs to meet the identified needs. The
programmer may be further assisted by a specialist to conduct comprehensive feasibility studies,
including pilot projects, on the alternative programs identified by the programmer.
2. Team Planning Approach
The Federal Corrections Agency could analyze the process of programming, including initiation,
to determine the stages of the process. It may be possible to find or develop persons with the specialskills to perform the functions at some or all of the stages. Thus, while it may be difficult or impossible
to find one person with the complex array of skills, knowledge, authority and credibility needed to
initiate programs, it may be feasible and effective to have a team of persons, who together possess the
necessary abilities to program. A team may have a greater capacity than a single individual to conduct
extensive consultation with staff, inmates, external agency personnel, and other individuals to be
affected by the programs developed. Besides the potential for effective programming in this approach,
the staff chosen for such teams may develop programming skills and abilities through participation in
this process.
As in the individual initiation approach, consultants or specialists may be employed to perform
complex functions in the programming process when staff with the necessary skills are not available
within the Federal Corrections Agency.
9. THE FEDERAL CORRECTIONS AGENCY SHOULD UTILIZE BOTH THEINDIVIDUAL AND TEAM PLANNING APPROACHES WHERE APPROPRIATE,WITH AS MUCH INVOLVEMENT OF STAFF, INMATES AND OTHERSAFFECTED BY THE PROGRAM AS POSSIBLE, TO CARRY OUT AT ALLLEVELS THE PROGRAMMING PROCESS RECOMMENDED IN THIS REPORT.
10. THE FEDERAL CORRECTIONS AGENCY SHOULD CLEARLY DELINEATETHE RESPONSIBILITIES AND AUTHORITY OF PERSONS TO INITIATE ANDPLAN PROGRAMS.
31
3
FACTORS INFLUENCING
THE INITIATION
OF PROGRAMS
The factors, both external to the organization and internal, that appeared to be responsible or
influential in the initiation of the eight programs studied were, in order of frequency of occurrence:
1. Correctional Trends and Philosophies2. Existing Programs
3. Social and Political Trends
4. Literature
5. Other Agencies
6. Internal Milieu
7. Other
1. Correctional Trends and Philosophies
The prevailing correctional philosophies most frequently influenced the creation of the programs
studied. For example, the recent emphasis on "community corrections", that is, the belief that "successful
rehabilitation" cannot occur in institutions operated in isolation from the community environment, was
found to be instrumental in the development of seven of the eight programs under study. Unison and NativeClan were created to provide assistance to female ex-offenders and native ex-offenders, respectively, duringtheir reintegration with the community. British Columbia Forestry and Neegan projects were fostered, in
part, to provide a normal work situation for inmates in the community. Mandatory Supervision was designed
to provide assistance and control in the community to ex-offenders immediately following release. The
Living Unit and Therapeutic Community programs were an attempt to create an environment inside theinstitution similar to that found in the outside community.
2. Existing Programs
The second most frequent factor leading to the initiation of the programs under study was the
influence of programs already in existence within the organization or in other jurisdictions. The best
examples of this influence were found in the British Columbia Forestry and Neegan projects, both ofwhich were modeled on existent forestry operations involving inmates as manpower resources. British
Columbia Forest Service utilized inmates from provincial institutions for the past twenty years. While
Director of Haney Correctional Institution, John Braithwaite, experienced the operation of forestry
programs. On the basic of this experience, he initiated British Columbia and Neegan projects, and
introduced the payment of wages to the inmates for forestry work.
The Therapeutic Community and living Unit programs were modeled, in part, on the "C Unit"in California and the "hall" system in England. This occurred in consultation with Maxwell Jones, whooperated a therapeutic community in a psychiatric hospital in the United States.
Working models of programs within the organization or in other jurisdictions provide valuable
information on the effectiveness of the programs and in the identification of potential problem areas.
Where comparable programs do not provide useful evaluative information to assist the planners in
examining the potential of a program, it may be desirable to establish an experimental or pilot project
to evaluate the program alternative. This would be expecially important in the case of programs
33
involving major organizational changes and/or expenditures, or where the program is likely to be replicated in other locations. In spite of the existence of comparable "therapeutic communities" to study, the creation of a pilot project may have proved helpful in planning the Living Unit program, which involved major organization and physical changes in institutions across Canada.
3. Social and Political Trends
A third factor that frequently influenced the creation of nevv programs was the existence of contemporary social and/or political issues. Specifically, the "wonnen's movement" strongly influenced the emphasis and direction of Unison, which was designed to assist female ex-offenders and later expanded its scope to include such activities as: presentations on day-care centres to the Nova Scotia legislature, marriage counselling, surveillance of court activities to protect the interests of female offenders, and assistance to wives wishing to visit their husbands in prison. A similar social and political issue influenced the develop-ment of the Native Clan and Neegan projects, vvhere the "native problem" in Canada was met with programs to provide specialized opportunities and assistance to native inmates and ex-offenders.
4. Literature
At least four of the eight programs studied vvere initiated to some extent on the basis of literature. The Therapeutic Community and Living Unit programs were heavily influenced by Maxwell Jones. (The Therapeutic Community) and Elliot Studt (C Unit). The Native Clan vvas proposed with the aid of reports by Ian Dubienski (Analysis of Arrests for the Year of 1969 in Winnipeg), Don McCaskill (A Study of Needs and Resources Related to Offenders of Native Origin in Manitoba) and Arthur Laing (Indians and the Law). The concept of Mandatory Supervision was outlined in the Fauteux report (Report of a Committee Appointed to Inquire into the Principles and Procedures Followed in the Remission Service of the Department of Justice of Canada) and the Ouimet report (Report of the Canadian Committee on Corrections).
Descriptions of programs, general studies of the field of corrections and some systematic research may be found in the literature, which made it difficult to hypothesize the amount of influence research alone had in the creation of these programs. With the vast increase in management information systems, statistics, research, and evaluation in recent years, the influence of these operations on the initiation of new programs may be greater in the future.
5. Other Agencies
The initiation of many of the programs was affected by the activities and staff of other agencies and organizations. Unison provided an excellent example of this factor. The necessity for assistance to female ex-offenders in Halifax increased substantially when Coverdale and Cape Breton prisons closed in January 1972 and the inmates were transferred to the Halifax Correction Centre. Staff members of the John Howard Society, Canada Manpower Centre and Halifax Social Services initiated Unison to provide housing, employment and other basic services to these ex-offenders.
Several of the other programs studied required the direct or indirect assistance of external agencies. Neegan project required financial assistance from Department of Manpovver and Immigration, assistance from the Department of Indian and Northern Affairs to provide forestry work, and the assistance of the National Parole Board to grant parole to selected inmates to leave the institution and work in the project. Similarly, the Native Clan, British Columbia Forestry and Police Training programs required the cooperation and assistance of external agencies. Ideally, treatment inside the institution is aimed at preparing inmates for release under Parole or Mandatory Sypervision. Hence, involvement of the National Parole Service in programming the Living Unit program may have facilitated continuity of the treatment program.
6. Internal Milieu
Several factors operating within the organization gave rise to the development of programs. The conflict and friction between staff and inmates, the conflict between security and treatment staff, pressures from the large and powerful component of correctional officers in the Public Service Alliance of Canada, the vvillingness of the penitentiary administration at the time to pursue innovative programs, and the interest of the treatment staff in new approaches to corrections combined to create an
34
organizational atmosphere conductive to the development of the Living Unit and Therapeutic
Community programs. Similarly, the over-crowding in the western penitentiaries prompted the creation
of the Neegan and British Columbia Forestry projects.
7. Other
Although less prevalent, several other factors were found to be operative in one or more of the
programs studied. Al Chartrand of the Native Clan, himself a native, had a strong identification vvith the
"Indian cause" vvhich gave impetus and credibility to his effort to establish additional resources for
natives. Boards of Inquiry and Royal Commissions also had influence on program initiation. Keith
Wright, District Representative of the National Parole Service in Regina, had attempted to become involved in police training for years without success. A Board of Inquiry examined the Regina Police Force,
and recommended broad changes in the philosophy and operation of that department, including a closer
liaison with other agencies in the Criminal Justice System and the community. Subsequently, Keith
Wright was able to initiate the Police Training program.
It may be noted that public reaction did not emerge as a specific factor leading to the
conception of any of the eight programs. However, this factor may have been included as part of "social
and political trends".
Comments and Discussion
It is apparent from our data that none of these factors operate in isolation. At one extreme, Native
Clan was based on "correctional trends and philosophies" (community corrections), "existing programs"
(half-way houses), "social and political trends" (native problems), literature (reports of Messrs. Dubiensky,
McCaskill and Laing), "other agencies" (assistance by National Parole Service, the United Church and native
groups) and the personal identification of the Director with the native cause (Al Chartrand was himself a
native). In contrast, Mandatory Supervision involved a combination of three factors, the lowest number of
factors found to influence any of the programs studied. They were: "correctional trends and philosophies"
(community corrections and the belief in supervision as a rehabilitative technique), "existing programs"
(Wisconsin program), and "literature" (Fauteux and Ouimet reports). It is interesting to note that these
three factors were the most frequently observed in all of the programs studied.
Correctional programmers should be aware of factors that influence programming and how
these factors operate in the programming process. Concise summaries of research, statistical analysis,
program evaluations and other related literature should be made available to correctional programmers.
The Secretariat research section performs such a role for the Secretariat at this time. A similar body
nnay be required in the Federal Corrections Agency.
Correctional programmers should be encouraged to work closely vvith their counterparts in
agencies of other Criminal Justice Systems, to enable them to study programs in other jurisdictions. In
addition, an inventory of correctional programs operated by the Federal Correctional Agency should be
maintained for use by programmers. Other jurisdictions and countries could be invited to prepare such
inventories in order that information on programs may be exchanged. The Atlantic Joint Regional
Committee has expressed interest in a total correctional program inventory for the region.
11. THE FEDERAL CORRECTIONS AGENCY SHOULD DEVELOP A PROGRAM
PLANNING BODY OR BODIES WHOSE FUNCTION WOULD INCLUDE THE
ANALYSIS OF THE INFLUENCE OF INTERNAL ORGANIZATIONAL
PRESSURES, AND DYNAMICS, SOCIAL TRENDS, POLITICAL ISSUES,
CO R R ECTIONAL PHILOSOPHIES, PUBLIC REACTIONS, AND OTHER
FACTORS IN THE PROGRAMMING PROCESS.
35
QUESTIONS RELEVANT TO THE INITIATION OF PROGRAMS
When considering the initiation of programs in the Federal Corrections Agency, the following
questions nnay be relevant:
1. Is it desirable to depend on individual initiators in correctional programming?
2. Could everyone or a large number in the organization be involved in the initiation of programs
by, for example, defining organization purposes, defining needs, defining roles?
3. Is team planning feasible?
(a) Who should be involved in the team planning?
(b) Do specialists exist in programming?
(c) Can specialists be created if not presently available?
4. What other approaches to programming exist?
5. What correctional trends and philosophies are currently operant? How could we monitor
factors and predict them?
6. What are the social and political issues affecting correctional programming at this time? How
could such issues be monitored or predicted?
7. VVhat methods would help correctional programmers to become aware of the programs and
related evaluations already in existence in various jurisdictions?
8. VVhat are some methods to initiate the process of developing and sharing program inventories
between jurisdictions, that is, federal-provincial or internationally?
9. How could correctional programmers in the Federal Corrections Agency become aware of the
relevant research, statistics, program evaluations and other literature?
10. How could correctional programmers in the parole and penitentiary services work together with
the programmers of the other areas in the Criminal Justice System to meet perceived needs?
11. How could correctional programmers become more aware of the internal milieu, that is, the
problems, pressures and general dynamics operating within their organizations that influence
program planning?
12. What mechanisms should be developed to respond to the recommendations of Boards of
Inquiry or Royal Commissions?
36
PART IV
Resources
INTRODUCTION
The resource considerations in programming are reviewed in three sections:staff, client and physical.
Staff related factors:
1. Roles and Functions of Staff
2. Staff Training and Development
3. Identification with and Commitment
4. Staff Attitudes
5. Staffing
Client related factors:
1. Roles and Functions of Clients
2. Selection of Clients for Programs
3. Client Attitudes
Physical factors:
1. Financial Considerations
(a) Private Agencies
(b) Government Agencies
2. Geographical Location
to Programs
39
HUMAN RESOURCES
STAFF
1. Roles and Functions of Staff
All new programs involving staff require conceptulization of the expected roles and functions to
be performed by the staff. Some of the programs under study defined staff roles prior to
implementation. The Native Clan, in their program proposal entitled "A Model for Half-way Houses
Operation and Staff", clearly outlined the anticipated roles and duties of the Director, House Parents, support staff, administrative body and a variety of related considerations. Other programs that were
studied did not define staff roles and functions as clearly. The Living Unit program failed to define the new roles of "Head of Living Unit" (previously Supervisor of Classification) and "Living Unit Development Officer" (previously Classification Officer). The lack of a clearly understood role seems to
have resulted in some problems. The Head of Living Unit and Living Unit Development Officers have interpreted and performed their roles and functions inconsistently within and between the various
institutions operated under the Living Unit concept. On the basis of our findings, it is imperative that
the expected roles and functions of staff be as clearly defined and understood as possible prior to implementation of new programs.
In some of the programs studied there existed well established traditional staff roles and functions prior to the conception of the new program. The cell areas within the Canadian Penitentiary Service were traditionally supervised by Custodial Officers, vvho were rotated between posts within
institutions and discouraged from establishing personal relationships with the inmates. In contrast, the Living Unit concept required that the staff be assigned permanently to a specific cell block area and develop personal relationships with the inmates. Since the Canadian Penitentiary Service decided to
utilize existing staff members to perform the new roles and functions central to the Living Unit concept, a complex process of adaptation and development was required of the staff members. This process
involved a shift in philosophy, from an emphasis on custody to that of treatment. Difficulties were
encountered in at least two areas:
(a) The Living Unit Officers and Living Unit Development officers had difficulty adjusting to
the new role, The latter were frequently unable to adapt to the group process and some
reverted to the previous approach of individual case work.
(b) Those divisions of the institutional operations not directly involved in the Living Unit program, such as security, vocational shops, industrial shops, and academic training, experienced problems of adjustment to role changes that resulted from the implementation
of the Living Unit program. That is, the security staff became smaller, less powerful, and lost status.
From the above, it is evident that, when planning a new program to be implemented within an existing organizational structure, it is necessary to assess present staff roles and functions as they will
relate to those in the new program. Having recognized the differences between the roles and functions,
steps must be planned and implemented to facilitate the required changes. For example, the transition from the traditional roles to the new roles required by the Therapeutic Community at Springhill
Institution was facilitated by a six-month training period on group processes prior to implementation.
The difficult transition from traditional to new roles may be avoided by establishing the program outside of the organizational structure. Instead of establishing camps operated by penitentiary
staff, which would have resulted in nevv roles and functions for the staff, the British Columbia Forestry
project utilized the provincial forest service camps and personnel to house and manage the inmates.
41
Similarly, the Neegan project recruited civilian staff to coordinate and manage the bush-cleaning project
by inmates, rather than use Canadian Penitentiary Service Staff. Vilhile this approach successfully avoided
the difficulties of staff role adjustment, it also limited the related career opportunities and development
of Canadian Penitentiary Service staff. For example, some of the British Columbia custodial staff
expected and expressed an interest in opportunities to work in forestry camps when this project became
known. However, the expected opportunities have not materialized to date. By comparison, the
Therapeutic Community and Living Unit programs provided some opportunity for staff development and
promotions within the Canadian Penitentiary Service.
Another problem related to staff roles and functions is the degree of internal compatibility of
the various functions. The Living Unit program anticipated that the Living Unit Officer could provide a
helpful, supportive relationship to the inmates in the unit, while, at the same time, maintaining
surveillance and ensuring security within the unit. Similarly, Mandatory Supervision assumed that the
Parole Officer could provide assistance to the ex-offender and, simultaneously, provide surveillance and
control over him. Staff members found these functions to be in conflict and difficult to fulfil. By
comparison, the staff of Unison project appeared to find their roles and functions internally compatible,
in that they involved only "assistance to female ex-offenders".
12. THE PROGRAMMING PROCESS EMPLOYED BY THE FEDERAL CORREC-
TIONS AGENCY SHOULD REQUIRE THAT THE EXPECTED ROLES AND
FUNCTIONS, INCLUDING AUTHORITY AND RESPONSIBILITY, OF THE
STAFF AT ALL LEVELS TO BE INVOLVED IN THE PROGRAM BE AS
CLEARLY DEFINED AND UNDERSTOOD AS POSSIBLE PRIOR TO IM-
PLEMENTATION.
13. FOLLOVVING IMPLEMENTATION, JOB DESCRIPTIONS SHOULD BE RE-
VIEWED AND REWRITTEN TO BE A MORE PRECISE REFLECTION OF THE
ROLES AND FUNCTIONS PERFORMED.
14. THE PROGRAMMING PROCESS EMPLOYED BY THE FEDERAL CORREC-
TIONS AGENCY SHOULD INCLUDE A CAREFUL CAMPARISON OF THE
EXISTING AND TRADITIONAL ROLES AND FUNCTIONS OF THE STAFF
WITH THOSE ANTICIPATED FOR NEW PROGRAMS. WHENEVER POSSIBLE,
EXISTING STAFF SHOULD BE ENCOURAGED AND DEVELOPED TO
UNDERTAKE THE NEW ROLES AND FUNCTIONS IN THE NEW PROGRAMS.
15. IMPLEMENT A PROCESS TO EXAMINE STAFF ROLES AND FUNCTIONS;
FOR EXAMPLE, JOB DESCRIPTIONS; TO ENSURE THEY ARE INTERNALLY
COMPATIBLE.
2. Staff Training and Development
The training and development of staff appeared to be a significant factor in only two of the eight
programs studied, that is, the Living Unit and Therapeutic Community programs. While these programs
required sweeping changes in the duties of the staff involved, the remaining programs studied did not seem
to require a great deal of additional knowledge or skills of the staff. For example, although the Parole
Officers may have perceived a change due to the compulsory nature of the program duties of Parole Service
Officers did not change substantially with the introduction of Mandatory Supervision. The officers were
exPected to provide the same assistance and control to Mandatory Supervision clients as they provided to
parolees, although the former may have been less cooperative.
During the planning stages of the Living Unit program, it was anticipated that custodial staff
selected to become Living Unit Officers would be required to undergo an extensive training period to
prepare them for their new roles and functions. This, hovvever, did not occur and the two-week
orientation courses provided at staff colleges proved to be inadequate. In contrast, the implementation
of the Therapeutic Community program at Springhill Institution, which involved similar changes in staff
roles and functions, was facilitated by a six-month training period in group processes. The greater the
anticipated change in staff roles and functions in the new program, the more important the factor of
staff training and development becomes.
42
16. STAFF TRAINING AND DEVELOPMENT SHOULD BE EMPHASIZED TOPREPARE STAFF AT ALL LEVELS FOR THE NEW ROLES AND FUNCTIONSREQUIRED BY NEW PROGRAMS.
17. (a) THE STAFF TRAINING AND DEVELOPMENT PROGRAM SHOULD BEBASED ON CAREFULLY IDENTIFIED AND VERIFIED NEEDS USINGTHE SAME PROGRAMMING PROCESS AS RECOMMENDED IN THISREPORT. THAT IS, THE STAFF TRAINING AND DEVELOPMENTSHOULD BE AIMED AT SUCH SPECIFIC TARGETS AS:
i) HAVING ASSESSED THE PRESENT SKILLS AND KNOWLEDGE OF ASTAFF MEMBER AND THE REQUIREMENTS OF THE POSITION,AND HAVING FOUND A "GAP", THE TRAINING PROGRAM SHOULDBE FOCUSED ON THE SKILLS AND KNOWLEDGE REQUIRED TOCLOSE THE GAP.
ii) SECONDLY, THE TRAINING AND DEVELOPMENT PROGRAMSHOULD BE AIMED AT HELPING STAFF MEMBERS TO DEVELOPTHE SKILLS AND KNOWLEDGE NECESSARY TO UNDERTAKE NEWPOSITIONS ANTICIPATED IN THEIR CAREER PATTERNS.
(b) THE STAFF TRAINING AND DEVELOPMENT PROGRAM SHOULD AVOID
DUPLICATING THE PUBLIC SCHOOL METHODS DESIGNED FOR CHILD-
DREN,AND UTILIZE ADULT EDUCATION METHODS,WHICH RECOGNIZE
THE EXPERIENCE, KNOWLEDGE, POSITION AND WILLINGNESS OF THESTAFF MEMBER TO LEARN.
3. Identification with and Commitment to Programs
In five of the programs studied, the staff appeared to have a stong identification with andcommitment to the program, which may have been facilitative. At least three bases for suchcommitment may be hypothesized;
(a) The staff may have a strong belief system or philosophy that finds expression in the
program. The staff of Neegan and Native Clan, although not necessarily natives themselves,
strongly identified with the native cause and welcomed the opportunity to help natives to
selfactualize. Similarly, the treatment staff in the Therapeutic Community were motivated
by their belief in "rehabilitation" as the purpose of corrections.
(b) Staff may be members of a social group that was assisted by the program and, therefore,would be strongly committed. For example, women working in Unison to help femaleoffenders and wives of male offenders, and natives working in Neegan or Native Clan tohelp Indian offenders, were members of the group, that is, women and natives, beinghelped.
(c) Involvement of staff in planning may result in a strong identification with and commitment
to the program and its subsequent success. For example, the staff operating the NativeClan, Neegan Training, Unison and, to a lesser extent, the Therapeutic Community were
involved in the planning and implementation of these programs. This involvement seemed
to facilitate the implementation of the programs.
These three bases for commitment to programs were not evident in Mandatory Supervision. Thephilosophy of the staff appeared to be in opposition to the phiposophy underlying Mandatory
Supervision. The staff seemed to view themselves as "helpers" to a voluntary and cooperative type of
client, rather than helpers and "controllers" to a group of compulsory clients. Secondly, staff did not
personally identify with the clientele of Mandatory Supervision. Finally, staff were not involved in theplanning of Mandatory Supervision and, therefore, had no vested interest in the success of the program.
18. THE FEDERAL CORRECTIONS AGENCY SHOULD UTILIZE METHODS TO
CREATE COMMITMENT TO PROGRAMS. FOR EXAMPLE, UTILIZE THE STAFFAND INMATES WHO WILL WORK IN THE PROGRAM TO PLAN IT.SECONDLY,INVOLVE STAFF IN THE PROGRAM WHO HAVE PHILOSOPHIES ORVESTED INTERESTS THAT ARE COMPATIBLE WITH THE OBJECTIVES OFTHE PROGRAM.
43
4. Staff Attitudes
Attitude is defined as readiness to support the program under study. This is different than
"morale", which is viewed as a feeling of satisfaction or happiness with the organization. A positive staff
attitude existed in the case of Native Clan, Unison and Neegan, all of vvhich appeared to be relatively
well accepted by staff, the personnel of other agencies and clients. By contrast, the staff of the National
Parole Service and many of the private agencies generally were not willing to support Mandatory
Supervision, a program that is still under question by staff, clients and external agencies. This indicates
that the development of a receptive attitude prior to implementation of a program may facilitate the
programming process.
19. PROGRAMMING SHOULD CONSIDER THE FACTOR OF STAFF ATTITUDES.
THIS MAY LEAD TO ALTERATIONS OF PROGRAMS TO BE COMPATIBLE
WITH ATTITUDES OR IT MAY BE DESIRABLE AND REASONABLE TO
ENCOURAGE THE STAFF TO CHANGE THEIR ATTITUDES. A THIRD
ALTERNATIVE MAY BE TO OPERATE THE PROGRAM IN ANOTHER
ORGANIZATION WHICH IS MORE SUPPORTIVE.
5. Staffing
Staffing presented a considerable problem in the Living Unit Program. There was evidence that
some selection boards were not familiar with the Living Unit concept and, therefore, were in a difficult
position to make decisions as to which staff would be suitable for work in living units. Another problem
was delay in recruiting, which resulted in a large number of unfilled positions and staff in acting
positions for lengthy periods of time in the Living Unit program. This shortage of staff resources made
operations difficult. To some extent, this problem in staffing was related to Public Service Commission
policies and rules, in that appeals frequently caused long delays in the appointment of staff. Improved
staffing procedures could facilitate the implementation of programs.
A related factor is the influence of unions on the programming process. In the Living Unit
program, the Public Service Alliance of Canada influenced the reclassification of positions. Instead of
falling into the Welfare Program category, the Living Unit Officers were included in the Correctional
Officer category. The factor of unions did not seem to significantly influence the other programs
studied, However, as a result of the continuing labour movement, unions may be expected to play a
greater role in programming in the future.
20. THE FEDERAL CORRECTIONS AGENCY SHOULD IMPROVE STAFFING
PROCEDURES TO ENSURE THAT SELECTION BOARDS ARE COMPETENT,
BOTH IN ABILITY TO SELECT QUALIFIED CANDIDATES AND IN
SELECTION PROCEDURES. POSITIONS SHOULD BE FILLED WITH MINI-
MUM DELAY.
21. PROGRAMMING SHOULD CONSIDER THE INFLUENCE OF UNIONS, AND
WORK COOPERATIVELY WITH THESE ORGANIZATIONS IN THE PLAN-
NING PROCESS, WHEREVER POSSIBLE.
44
2
HUMAN RESOURCES
CLIENTS
1. Roles and Functions of Clients
The expected activities of clients in the programs may be referred to as their roles and functions. There were programs, such as Police Training, that did not involve inmates or parolees directly. However,
seven of the programs studies involved identifiable roles and functions of the clients. In some programs, the
roles were uncomplicated and, consequently, clear definition of roles seemed to be of limited importance in the programming process. For example, in Unison the role of "recipient of assistance" was clearly under-
stood. In other programs, such as Mandatory Supervision, where the complex role of "parolee" was
imposed on all inmates released from federal penitentiaries, there appeared to be some confusion about
roles during the implementation of the program. For example, the client subject to Mandatory Supervision
was not clear as to requirements to maintain regular contract with a parole supervisor, and seek and accept
the guidance of the supervisor. Similarly, clients selected by the National Parole Board to work in the
Neegan and British Columbia Forestry projects were required to undergo major role changes, from that of
"inmate" in an institution to that of "forestry worker" on Temporary Day Parole status. In the Living and
Therapeutic Community programs, inmates were expected to change from the traditional inmate role,
characterized by non-involvement and isolation, to role characterized by involvement in the shared admin-
istration of their units.
Where substantial role changes were required in new programs, and the new roles were complex,
for example, in the development of forestry work or group skills, it was essential that the expected roles
be clearly defined and understood by all parties, including clients, prior to implementation. A process,
such as training, was required to adequately prepare clients for new roles. For example, instruction in
forestry skills for the British Columbia Forestry project or group process skills for the Therapeutic
Community may have prepared clients to participate more effectively in these programs. Some inmates
perceived the Living Unit program as a vehicle to increase surveillance and security, rather than an
opportunity to participate in the administration of their unit. Failure to clearly define and communicate
the expected roles of the client in the new program resulted in misinterpretation and distrust by the
clients. Consultation with clients during planning may be an effective method to define the roles and
functions, and to obtain the support of clients for the program.
22. THE PROGRAMMING PROCESS SHOULD INCLUDE A CLEAR DEFINITION
OF THE ANTICIPATED ROLES AND FUNCTIONS OF CLIENTS, WHICH IS
DEVELOPED IN CONSULTATION WITH AND UNDERSTOOD BY CLIENTS.
23. CLIENTS SHOULD BE PROVIDED WITH ORIENTATION AND TRAINING TO
PREPARE FOR NEW ROLES AND FUNCTIONS THAT DIFFER SUB-
STANTIALLY FROM TRADITIONAL ROLES.
2. Selection of Clients for Programs
The seven programs directly involving inmates or parolees had varying degrees of difficulty in
defining and adhering to criteria for the selection of clients. Mandatory Supervision included all inmates
released from federal penitentiaries. The Living Unit program was applied to all inmates in all
institutions operating under the Living Unit concept. Unison had clear criteria. They initially included
female ex-offenders and later accepted the wives of inmates as clients. The Native Clan program had
detailed criteria that accepted native offenders on a voluntary basis. Those clients referred by National
Parole Service or Probation authorities to Native Clan had, as a condition of parole or probation, an
order "stipulating residence in the agency residency program". Excluded were those who had a "pattern
45
of violence", a history of "sexual deviance behaviour", severe mental retardation or psychosis. The
British Columbia Forestry project vaguely defined criteria to include day parole status and a sufficient
degree of health, strength, and skill to work in forestry. The Neegan project requested that the client be
of native descent, have day parole status and possess an attitude conducive to forestry work. In some
programs, such as Neegan and the British Columbia Forestry programs, the criteria were too restrictive
to provide adequate manpower for the program. By contrast, Unison exemplified a program which
expanded its criteria to the point vvhere the initial objectives became obscured.
24. THE SELECTION CRITERIA ARE AN IMPORTANT FACTOR IN PROGRAM
PLANNING AND SHOULD BE:
(a) CLEARLY DEFINED AND UNDERSTOOD BY ALL PARTIES.
(b) CONSISTENT WITH THE STATED PURPOSE AND OBJECTIVES OF THE
PROGRAM.
(c) REALISTIC IN TERMS OF AVAILABILITY OF SUITABLE CLIENTS TO
PARTICIPATE IN THE PROGRAM.
CLIENTS SHOULD BE INVOLVED IN THE DEVELOPMENT OF SELECTION
CRITERIA TO FACILITATE COMMUNICATIONS AND ACCEPTANCE OF THE
PROG RAM.
3. Client Attitudes
Attitudes have been defined as readiness to support the program under study. In the Neegan and British Columbia Forestry projects, clients had a positive attitude towards the opportunity to work
outside of the institution for wages, which appeared to be a facilitating factor. By contrast, inmates had
a skeptical attitude towards the Living Unit program and were opposed to the Mandatory Supervision
program. This may have contributed to difficulties experienced during the implementation of the
programs.
25. THE PROGRAMMING PROCESS SHOULD CONSIDER THE ATTITUDES OF
CLIENTS TOVVARDS THE PROGRAM AND, IF POSSIBLE, BE IMPLEMENTED
VVITH THE SUPPORT OF CLIENTS. THIS MAY BE FACILITATED BY IN-
VOLVEMENT OF CLIENTS IN PLANNING AND ATTEMPTING TO
STRUCTURE THE PROGRAM TO ACCOMMODATE THEIR CONCERNS.
46
3
PHYSICAL
RESOURCES
1 Financial Consideration
The financial considerations varied depending on whether the agency was operated privately or
by the government.
(a) Private Agencies
The private agencies studied had a variety of funding sources. For example, Native Clan
received funds from the Ministry of the Solicitor General, United Church, Winnipeg Founda-
tion, Manitoba Department of Health St Social Development, Department of Manpower and
Immigration, United Way, Canadian Penitentiary Service and National Parole Service. Unison
and Neegan obtained funding from the Department of Manpower and Immigration. Many of the
funding sources had specific conditions and restrictions governing the granting of funds, which
affected the development of the program. The restriction disallowing the purchase of
equipment, tools and other physical resources, inherent in the Department of Manpower and
Immigration grant to Neegan Society had the effect that additional sources of funds had to be
located for the purchase of such items as a school bus, chain saws and hand-tools. In addition,
the planning of both Neegan and Unison lacked continuity and long-range considerations due to
the short-ternn nature of the grants. Since all of these agencies provided direct services to the
clients of the Canadian Penitentiary and National Parole Services, the question should be raised
as to why the major funding was furnished by sources outside the Ministry of the Solicitor
General. Neegan and British Columbia Forestry projects, similar in nature and apparently
conceived by the same individual, were funded differently. Neegan was funded by the
Department of Manpower and Immigration as a private agency, while the British Columbia
Forestry project was funded by the Canadian Penitentiary Service and British Columbia Forest
Service.
26. RATHER THAN DEPEND ON EXTERNAL DEPARTMENTS TO FUND PRI-
VATE CORRECTIONAL AGENCIES, THE FEDERAL CORRECTIONS AGENCY
SHOULD DEVELOP A FUNDING POLICY APPLICABLE TO PRIVATE
CORRECTIONAL AGENCIES AND OBTAIN THE NECESSARY FUNDS FROM
TREASURY BOARD. THE FUNDING POLICY SHOULD PERMIT LONG-TERM
PLANNING BY PRIVATE AGENCIES.
(b) Government Agencies
Of thb three government programs studied which required funding it would appear that
only Mandatory Supervision planned the necessary submission to Treasury Board in order to
obtain the staff establishment required to implement the program. Although the Living Unit
program required a major increase in staff and extensive physical alterations to accommodate
the new program, the necessary positions and funds were not obtained from Treasury Board
prior to implementation. Since the required staff was obtained from the "CX" category, the
resulting depletion caused problems in security and morale within the institutions. In addition,
alterations to existing buildings had to be funded through transfers of institutional funds from
budgets allocated for other scheduled activities, thus disrupting normal maintenance functions.
Similarly, the financial resources for British Columbia Forestry project do not appear to have
been obtained from Treasury Board specifically for this program. On the basis of experience in
these programs, it may be concluded that additional staff positions and funding should be
obtained from Treasury Board prior to implementation of new programs.
47
27. PROGRAMMING IN THE FEDERAL CORRECTIONS AGENCY SHOULD IN-
CLUDE CAREFUL AND ACCURATE BUDGETING FOR HUMAN AND PHYSICAL RESOURCES. THE BUDGETING SHOULD BE PROGRAM
SPECIFIC.
28. STAFF ESTABLISHMENT AND FUNDS SHOULD BE APPROVED BY
TREASURY BOARD PRIOR TO IMPLEMENTATION OF NEW PROGRAMS.
2. Geographical Location
Certain programs depend on a specific geographical location. The existence of a National Park was essential for the creation of the Neegan project. It provided forestry work located within commuting distance of a Community Correctional Centre where inmates on day parole status could be accommodated. Similarly, the British Columbia forestry projects were feasible through the existence of a strong forest industry within the province. The establishment of the Native Clan organization in Winnipeg was facilitated by the proximity of Stony Mountain Penitentiary. Conversely, it would be difficult to establish a similar program in Edmonton involving federal inmates due to the great distances to the nearest penitentiaries. The proximity of institutions to resources for programs is an important consideration in programming.
29. INSTITUTIONS AND DISTRICT OFFICES SHOULD BE STRATEGICALLY LOCATED CLOSE TO RESOURCES THAT FACILITATE PROGRAMMING.
48
QUESTIONS RELEVANT TO RESOURCES
In establishing policies on resources in programming, the following questions may be relevant:
1. What methods may be used to define roles and functions of staff prior to implementation?
Considering the difficulty of defining job descriptions for new programs before the program
becomes operational, would it be preferable to assign people to anticipated roles on a
developmental or trial basis, and write the specific job descriptions after some experience in the
work?
2. Are there advantages in using existing staff within the organization to implement programsrequiring skills different from those inherent in their traditional roles?
3. Are there advantages in hiring new staff to implement new programs?
4. Are there advantages in creating new programs outside of the Federal Corrections Agency, aswas the case in Unison, Neegan and Native Clan?
5. What provision could be made in the operations of the organization to analyse roles andfunctions to ensure that they are internally compatible?
6. Should staff training and development be planned by line managers or staff personnel? At whatlevel(s) should this planning occur?
7. What methods are available to develop staff attitudes that are supportive of programming?
8. What structural and procedural changes would improve the staffing process?
9. What should be the role of unions in the programming process?
10. When developing new programs, what mechanisms may be used to ensure that clients are madeaware of the expectations as to their roles and functions in the programs?
11. What action could be taken to orient and train clients for new roles and functions?
12. What methods should be used to establish criteria and to select clients for programs?
13. What methods may be used to develop the support and involvement of clients in programs?
14. What should be the responsibility of the Federal Corrections Agency in relation to fundingprivate correctional agencies that provide services to federal clients?
15. What, if any, "conditions" should be attached to funds given to the private agencies by theFederal Corrections Agency?
16. What mechanisms would ensure that new programs are not implemented without approval forrequired staff establishment and funds by Treasury Board?
49
PART V
Organizational
Considerations
INTRODUCTION
The team established to study program planning did not have as part of its mandate an analysis
of the organizational structure. However, the programming process does not occur independently of
organizational factors. The Federal Corrections Agency will operate as a part of the total Criminal
Justice System and as one of many departments in the Government of Canada. In addition, the
organizational structures of the Canadian Penitentiary and National Parole Services must contain an
identifiable capacity to perform the program planning function. Finally, management style and career
development programs influence the programming process.
These considerations are discussed in the following sections:
1. Relationship of the Organization to other Systems
2. Organizational Structure
3. Management Style
4. Career Development
53
1
RELATIONSHIP
OF THE ORGANIZATION
TO OTHER SYSTEMS
The correctional process is only one of many integral parts that constitute the Criminal Justice
System. If the common purpose of this system is to provide for the protection of individuals and
institutions in society, it is necessary that these components interrelate as effectively as possible and do
not function in isolation of each other. Each must clearly understand the roles of all other components
and have a definition of its own goals in relationship to the overhall purpose of the system. Similarly,
the Federal Corrections Agency is one of many departments in the Government of Canada, and must
function in concert with these departments to accomplish the overall purposes of the government.
No formal statement exists as to the purposes or objectives of the Canadian Penitentiary and
National Parole Services. As a result, it seems that these organizations function, to some extent, in
isolation. The lack of a philosophical foundation does not allow for the provision of a framework to
ensure that programming is a part of a sequence contributing to the objectives of the organization and
in accord with those of the Criminal Justice System and the Government of Canada.
To ensure coordination within the system, any organization within the system should have
clearly delineated purposes which are directly related to the philosophies of the organization and systems.
Principles defining the relationship of one organizational component to another may evolve as a method
of ensuring coordination within the system. In this way, segmentation may be reduced, and broadly
defined goals could be achieved.
30. THE FEDERAL CORRECTIONS AGENCY SHOULD BE BASED ON A STATED
PHILOSOPHY WHICH DEFINES THE ROLE OF THE ORGANIZATION WITHIN
THE CRIMINAL JUSTICE SYSTEM AND THE GOVERNMENT OF CANADA,
OF WHICH IT IS AN INTEGRAL PART. THIS PHILOSOPHICAL BASE MUST
BE CONSISTENT WITH AND IN ACCORD WITH THE GOALS OF THOSE
SYSTEMS.
31. THE FEDERAL CORRECTIONS AGENCY SHOULD DEVELOP GUIDELINES
AND PRINCIPLES OUTLINING ITS RELATIONSHIP TO OTHER COMPONENT
ORGANIZATIONS WITHIN THE CRIMINAL JUSTICE SYSTEM AND THE
GOVERNMENT OF CANADA. THIS SHOULD BE DONE WITH A VIEW TO
REDUCING FRAGMENTATION AND ENSURING COORDINATION WITHIN
THE SYSTEMS.
55
2
ORGANIZATIONAL
STRUCTURE
From the programs studied, it was apparent that each evolved in a different way. In many of
the programs, poor coordination and dispersed accountability was evident, and no one person or body seemed to have provided consistent direction or had clear authority to plan. This segmentation vvas detrimental to effective progrannming.
The programming process is a complex function that should be centralized in a body with the
authority to plan. The existence of such a body could provide a uniform approach to programming and
a vehicle for consultation by line staff. This body could provide leadership and assume responsibility for
the programming process.
The existing structure fails to define the roles of line staff in the progrannnning process, or the
lines of communication and consultation process to be followed. Confusion in roles and absence of
communications and consultation nnay result in resentment and reduce motivation amongst staff. This
would have a detrimental effect on programnning.
32. THE FEDERAL CORRECTIONS AGENCY SHOULD ESTABLISH AN ORGANI-
ZATIONAL STRUCTURE THAT WOULD INCLUDE A BODY OR BODIES
RESPONSIBLE FOR THE PROGRAMMING PROCESS:
33. THE FEDERAL CORRECTIONS AGENCY SHOULD CLEARLY DEFINE STAFF
ROLES AT ALL LEVELS, INCLUDING RESPONSIBILITY AND AUTHORITY
IN THE INITIATION, IMPLEMENTATION, EVALUATION, AND MODIFICATION OF PROGRAMS.
34. A FORMAL COMMUNICATION NETWORK SHOULD BE ESTABLISHED IN
THE FEDERAL CORRECTIONS AGENCY TO FACILITATE LINE STAFF
INPUT INTO PROGRAMMING.
57
3
MANAGEMENT
STYLE
The programs initiated in headquarters of the Canadian Penitentiary and National Parole
Services appeared to be created in an autocratic manner. The Living Unit, British Columbia Forestry and
Mandatory Supervision programs were initiated by a few people at headquarters with little consultation
with field staff and inmates. The programming process proposed in this report may be more compatible
with a "participatory management" style.
Clearly defined, understood and accepted objectives were seldom found in the programs
studied, vvhich made evaluation impossible. However, in view of the emphasis in this report on
formulating objectives and conducting evaluations, the proposed programming process may be suitable to
the approach of "Management by Objectives" and "Organization Development".
35. THE FEDERAL CORRECTIONS AGENCY SHOULD DECIDE ON AND IM-
PLEMENT A MANAGEMENT STYLE AND PHILOSOPHY THAT IS COMPATI-
BLE WITH THE PROPOSED PROGRAMMING PROCESS, SUCH AS
"PARTICIPATORY MANAGEMENT", "MANAGEMENT BY OBJECTIVES", AND
"ORGANIZATION DEVELOPMENT".
59
4
CAREER
DEVELOPMENT
In the National Parole and Canadian Penitentiary Services, the traditional pattern of career
development has involved promotion from operational field positions to administrative positions.
Competent line staff are often removed from their roles in programs, where their expertise has beendemonstrated. The specific programs may suffer as a result of their removal. For maximum effectiveness of
the organization, it may not be desirable to limit career development to upward mobility. If should be
possible to provide a satisfying career to staff within programs at the operations level. The contribution of
staff in field operational positions should be recognized and rewarded, and the full potential of the staffmembers utilized by the organization.
36. THE FEDERAL CORRECTIONS AGENCY SHOULD ESTABLISH A CAREERDEVELOPMENT PROGRAM THAT ENCOMPASSES BOTH UPWARD MOBILITYAND A CAREER FOR STAFF IN PROGRAMS AT THE FIELD LEVEL.
61
QUESTIONS RELEVANT TO ORGANIZATIONAL CONSIDERATIONS
When reviewing the influence of organizational factors on the programming process, the following
questions may be relevant'.
1. What methods may be used to identify the purposes and underlying philosophy of the Criminal
Justice System, and how could the Federal Corrections Agency ensure that its programs contribute
to and are consistent with these purposes?
2. What methods may be used to identify the purposes of the Government of Canada? How could
the Federal Corrections Agency ensure that its programs contribute to these purposes and are
consistent with the programs in other government departments?
3. What type of organizational structure should be created in the Federal Corrections Agency to
ensure effective programming?
4. What should the management style and philosophy be in the Federal Corrections Agency? How
could a uniform management style and philosophy be implemented?
5. How could the Federal Corrections Agency provide a rewarding career to staff in field operational
positions?
62
PART VI
Proposed
Programming Model
INTRODUCTION
The terms of reference of the program planning team were to examine eight programs in-depth and,
through an analysis of the data, identify the essential factors in the programming process. On the basis of
the analysis, in conjunction with a review of relevant literature, the proposed programming model was
developed.
This model should be considered as a technique which, if adhered to, will promote more effective
and uniform programming within the Federal Corrections Agency. It is a conceptual frame-work that may
be adapted to the unique circumstances of each body required to plan or approve programs. The relative
priority or emphasis on each factor depends on the body using the model. For example, program proposals
to be presented to Treasury Board for approval require detailed analysis of cost factors. While the proposals
to the National Parole Board require greater emphasis on client related considerations. The model basically
outlines the important factors or stages that must be considered in the programming process.
While the proposed model describes the total process to be followed in programming, no one
person in the organization would likely be involved in all of the stages. It was found that the initiator
generally had to obtain approval of the program from other sources. Furthermore, the responsibility for
implementation was usually delegated to other individuals. Despite the fact that different individuals
perform the various functions in the programming process, its effectiveness is dependent on the continuity
and completemess of the process.
The programming process is described under:
INITIATION OF PROGRAMS
1. Identification of Needs
2. Strategic Planning
3. Feasibility Study
4. Program Proposal
IMPLEMENTATION
1. Decision to Implement the Program
2. Implementation Planning
POST I MP LEMENTAT ION
Ongoing Operations, Evaluation and Replanning
65
1
INITIATION
OF PROGRAMS
The initiation of programs was influenced by a number of factors, including correctional trends
and philosophies, social and political trends, literature, existing programs, the internal milieu of the
organization, and other agencies. These factors were described in a separate chapter entitled "Factors Influencing the Initiation of Programs".
1. Identification of Needs
As indicated in the chapter "Factors in the Initiation of Programs", the initiators appeared to be
aware of the needs in seven of the eight programs studied. In the remaining program, Living Unit, no
individual initiator could be identified, although those involved in the planning process were able to identify needs for the program when interviewed. Whereas the exact process or procedures used to identify needs were not evident, many of the individuals interviewed were able, in retrospect, to outline needs for the programs. For example, in the Neegan and British Columbia Forestry projects, the interviewees identified the needs to relieve over-crowding in institutions and to provide constructive employment for inmates. However, no outline of the needs was found in the documentation of the programs, nor did any of the respondents indicate that needs for these programs had been formally identified during the planning of the program.
In theory, programs should be designed to fulfil the basic purposes of an organization. However, the purposes of the organizations studied were only vaguely understood or defined. Through analysis of the data, it is possible to infer certain purposes of the organization. With respect to the Canadian Penitentiary Service, for example, the needs for British Columbia Forestry, Neegan, Living Unit and Therapeutic
Community programs included:
(a) to relieve over-crowding of institutions;
(b) to provide constructive employment with wages to inmates;
(c) to reduce the disproportionate representation of native inmates in the institutional population as compared to the proportion of natives in Canadian society;
(d) to reduce friction between staff and inmates in the institutions.
From these needs it may be inferred that the purposes of the Canadian Penitentiary Service include:
(a) the provision of adequate housing for inmates;
(b) the creation of salaried employment opportunities for inmates;
(c) that no racial or cultural minority group is over-represented amongst the institutional
population as compared to the ratio found in the general population in Canada; and
(d) harmonious and orderly operations within institutions including workable inmate-staff
relationships.
The above approach was utilized to define possible purposes on the assumption that existing programs are relevant to the actual purposes of the organization. It would appear more logical to define the purposes first, then design programs to contribute to the purposes. This may be accomplished through consultation with the Canadian public, in addition to the staff and inmates of the organization.
67
It is believed that a clear identification of the purposes of the organization, a thorough assessment
of the external and internal programs relating to the purposes, and a precise statement of perceived needs
would facilitate programming. In other words, it appears necessary to be aware of the purposes of the
organization in order to evaluate the existing programs and activities to determine:
1. their relevance to the purposes, and
2. whether purposes remain that are not fulfilled by existing programs.
These unfulfilled purposes give rise to the needs for new programs. The final choice of a program to meet
these identified needs will in part be dependent on factors referred to in the Chapter entitled "Factors
Influencing the Initiation of Programs". In seven of the eight programs studied, the above described process
appeared to have been performed informally by a single individual, largely on an intuitive basis.
37. EXISTING PROGRAMS SHOULD BE COMPARED TO THE PURPOSES OF THE
ORGANIZATION TO DETERMINE:
(i) TO WHAT EXTENT THE PROGRAMS CONTRIBUTE TO FULFILLING
THE PURPOSES OF THE ORGANIZATION.
(ii) WHICH PURPOSES ARE NOT FULLY MET BY EXISTING PROGRAMS.
(a) PROGRAMS THAT DO NOT SUBSTANTIALLY CONTRIBUTE TO THE ORGAN-
IZATIONAL PURPOSES SHOULD BE REVIEWED WITH A VIEW TO MODIFICA-
TION OF DISCONTINUATION.
(b) TO MEET PURPOSES THAT ARE NOT FULFILLED AT PRESENT, NEW
PROGRAMS SHOULD BE INITIATED UTILIZING THE RECOMMENDED
PROGRAMMING PROCESS.
(c) A COMPUTERIZED INVENTORY OF EXISTING PROGRAMS AND BASIC
DETAILS ON THE PROGRAM SHOULD BE ESTABLISHED TO FACILITATE
THIS PROCESS.
38. THE NEEDS THAT ARE NOT PRESENTLY FULFILLED SHOULD BE CLEARLY
IDENTIFIED, VERIFIED, AND STATED BEFORE THE SEARCH FOR
PROGRAMS BEGINS. CLIENTS AND "FRONT LINE" FIELD STAFF, WHO ARE
CLOSEST TO THE OPERATIONS SHOULD BE INVOLVED IN THE IDENTIFI-
CATION AND VERIFICATION OF NEEDS.
2. Strategic Planning
Strategic planning is defined as the search for feasible program alternatives to meet perceived
needs, leaving to subsequent planning the details of implementation. The data indicates that there was no
systematic search for program alternatives to meet identified needs. However, the initiators of some of the
programs, operating on an intuitive understanding of the organizational purposes and related needs, reviewed
literature and examined programs operating in other jurisdictions in order to find suitable programs."
For example, the planners of the Living Unit program were generally aware of the organizational purpose
to accommodate inmates in a harmonious and orderly environment, and recognized the related need to
reduce friction between staff and inmates. They reviewed the "hall" system in England and studied the
"C Unit" in California, In addition, the planners examined literature on therapeutic communities and
group therapy. Further description of strategic planning in the programs studied is contained in the Chapter
entitled "Factors in the Initiation of Programs" in the section "Recognition of Opportunities to Meet
Perceived Needs".
It is likely that a more thorough and systematic search for alternatives to meet identified needs by
either an initiator, task force, planning team or committee, would produce a variety of alternatives. From
these the most relevant and effective program may be developed.
39. A COMPREFiENSIVE SYSTEMATIC SEARCH SHOULD BE UNDERTAKEN TO
LOCATE AND DEVELOP PROGRAM ALTERNATIVES TO MEET THE STATED
NEEDS. THIS SHOULD INCLUDE A REVIEW OF LITERATURE, RESEARCH,
INTERNAL PROGRAMS, AND PROGRAMS IN OTHER JURISDICTIONS. A
VARIETY OF ALTERNATIVES MAY BE IDENTI FED, FROM WHICH THE MOST
RELEVANT AND EFFECTIVE PROGRAM MAY BE CREATED.
68
3. Feasibility Study
While it is assumed that the initiators of the other programs studied must have considered the
feasibility of the programs on an intuitive basis, only the British Columbia Forestry project commissioned
formalized feasibility studies prior to implementation. The studies identified the physical resources
required, assessed the prospective locations of forestry camps, and discussed relationships with the British
Columbia Forest Service and Correctional Service. While the studies were generally viewed as helpful to the
programming process, the mandate was not broad enough and thus some vital factors were neglected.
Examples of this were:
1. The authorization of inmates to leave the institutions to work in the camps was not adequately considered initially. Consequently, the relations with and roles of the National Parole Board and Service were not clearly defined, and no provision was made for the Day Parole Supervision of the inmates in the camps,
2. the source of additional funds to implement the program was not stipulated,
3. specific client needs, such as visits, mail recreation, clothing and personal supplies, were not
adequately considered prior to implementation of the first forestry project, and
4. criteria for the selection of inmates to work in the project were not adequately specified.
It was necessary to resolve these issue during implementation and ongoing operations.
40. FEASIBILITY STUDIES MUST INCLUDE CONSIDERATION OF THE FOLLO1A/- ING PRIOR TO THE SELECTION AND IMPLEMENTATION OF PROGRAMS:
(1) EXAMINATION OF ALL INFORMATION RELEVANT TO EACH ALTER-
NATIVE, THROUGH A REVIEW OF THE LITERATURE. RESEARCH AND
COMPARABLE EXISTING PROGRAMS, BOTH VVITHIN AND EXTERNAL TO
THE ORGANIZATION;
(2) COMPATIBILITY OF THE PROPOSED PROGRAM WITH THE STATED PURPOSES OF THE ORGANIZATION;
(3) IDENTIFICATION OF THE RESOURCES REQUIRED FOR THE PROGRAM,
AND A COMPARISON OF THESE WITH THE EXISTING ORGANIZATIONAL
RESOURCES IN ORDER TO DETERMINE THE ADDITIONAL RESOURCES
REQUIRED TO IMPLEMENT THE PROGRAM. THE FOLLOWING FACTORS
WHICH ARE DISCUSSED MORE THOROUGHLY IN CHAPTERS UNDER THE
SAME HEADINGS, SHOULD BE CONSIDERED:
a) HUMAN RESOURCES, STAFF
ROLES AND FUNCTIONS OF STAFF
STAFF TRAINING AND DEVELOPMENT
IDENTIFICATION WITH AND COMMITMENT TO PROGRAM
STAFF ATTITUDES
b) HUMAN RESOURCES, CLIENT
ROLES AND FUNCTIONS OF CLIENTS
SELECTION OF CLIENTS FOR PROGRAMS
CLIENT ATTITUDES
c) PHYSICAL RESOURCES
FINANCIAL RESOURCES
GEOGRAPHIC LOCATION
(4) IT IS RECOMMENDED THAT THE FEDERAL CORRECTIONS AGENCY EXAM-
INE THE ROLES. FUCTIONS AND RECEPTIVENESS OF EXTERNAL ORGAN-
IZATIONS AND INDIVIDUALS WHO WILL BE INVOLVED IN OR AFFECTED
BY THE PROGRAM ALTERNATIVE.
69
THE RESULTS OF THE FEASIBILITY STUDY SHOULD INCLUDE IDENTIFICA-
TION OF THE ASSUMPTIONS UNDERLYING THE PROGRAM ALTERNATIVE AND AN ASSESSMENT OF THEIR VALIDITY. IT SHOULD ALSO IDENTIFY "THE PLANNING GAP", THAT IS, THE AMOUNT OF CHANGE NEEDED
WITHIN THE ORGANIZATIONAL STRUCTURE IN ORDER TO EFFECTIVELY
ACCOMMODATE THE NEW PROGRAM.
4. Program Proposal
On the basis of the relative feasibility of the program alternatives studied, specific proposals may
be developed on one or more of the most promising programs reviewed. The purpose of the proposal is to
obtain authorization for the project. Therefore, the proposals must include sufficient information to permit
those in authority to make intelligent decisions. For example, the Neegan Society proposal described: the
Board of Directors, the project activity, the objectives, the criteria for selection of prospective clients, the
time frame for implementation, the management structure, the equipment requirements, and the
anticipated budget for human and physical resources. The thorough proposal enabled Department of
Manpower and Immigration to authorize the necessary funds for the Neegan program.
41. IN VIEW OF THE IMPORTANCE OF THE COMPLETENESS AND QUALITY OF
THE PROPOSAL, THE FOLLOWING FORMAT IS RECOMMENDED:
PROGRAM PROPOSAL
(1) A CONCISE DESCRIPTION OF THE PROPOSED PROGRAM AND THE ACTIV-
ITIES INVOLVED.
(2) AN EXPLANATION OF THE RELATIONSHIP BETWEEN THE PROPOSED
PROGRAM AND THE PURPOSE OF THE ORGANIZATION.
(3) A CLEAR STATEMENT OF QUANTIFIABLE OBJECTIVES THE PROGRAM
INTENDS TO ACCOMPLISH.
(4) A STATEMENT OF CLIENT-RELATED CONSIDERATIONS INCLUDING THE
FOLLOWI NG:
a) THE ANTICIPATED ROLES AND FUNCTIONS OF CLIENTS TO BE IN-
VOLVED;
b) THE SELECTION CRITERIA TO BE USED FOR THE RECRUITMENT AND
SCREENING OF PROSPECTIVE CLIENTS;
c) A DESCRIPTION OF THE ATTITUDES OF THE CLIENTS TOWARD THE
PROGRAM, ESPECIALLY WITH RESPECT TO THEIR EXPECTED ROLES
AND FUNCTIONS IN THE PROGRAM.
(5) A STATEMENT OF THE ANTICIPATED ROLES, FUNCTIONS AND ACCEPT-
ANCE OF OTHER ORGANIZATIONS, AGENCIES AND INDIVIDUALS VVHO VVILL BE INVOLVED IN OR AFFECTED BY THE PROPOSED PROGRAM.
(6) A STATEMENT OF STAFF-RELATED CONSIDERATIONS, INCLUDING THE
FOLLOVVI NG:
a) ANTICIPATED ROLES AND FUNCTIONS OF PROSPECTIVE ADMINISTRA-
TIVE AND SUPPORT STAFF, INCLUDING SPECIFIC JOB DESCRIPTIONS,
SELECTION CRITERIA, AND PROPOSED METHODS OF RECRUITMENT;
b) AN OUTLINE OF TRAINING AND DEVELOPMENT OF PROSPECTIVE STAFF.
c) A STATEMENT OF THE DEGREE OF IDENTIFICATION AND COMMIT-
MENT BY STAFF TO THE PROPOSED PROGRAM;
d) AN OVERVIEW OF STAFF ATTITUDES TOVVARDS THE PROGRAM, AND
THEIR EXPECTED ROLES AND FUNCTIONS IN THE PROGRAM.
(7) A CLEAR AND DETAILED STATEMENT OF ANTICIPATED BUDGET RE-
QU I REMENTS FOR THE PROPOSED PROGRAM, INCLUDING THE
FOLLOVVING:
70
a) REQUIRED STAFF ESTABLISHMENT AND RELATED COSTS;
b) REQUIRED PHYSICAL RESOURCES, INCLUDING:
I) TOOLS AND EQUIPMENT,
ii) ALTERATIONS TO EXISTING BUILDINGS,
iii) RENTAL AND INSURANCE COSTS, AND
iv) FUNDING SOURCES;
c) ESTIMATED DURATION OF THE PROJECT.
(8) A STATEMENT OF PROPOSED EVALUATION, MONITORING AND FEEDBACK SYSTEMS TO INDICATE:
a) THE EXTENT TO WHICH THE PROGRAM MEETS ORIGINAL STATED ORGANIZATIONAL PURPOSES:
b) DEGREE OF SUCCESS IN MEETING ORIGINAL STATED QUANTIFIABLE OBJECTIVES;
c) STATISTICAL DESCRIPTION AND EVALUATION OF PROGRAM; AND
d) METHODS OF CONSULTATION WITH INDIVIDUALS, AGENCIES AND ORGANIZATIONS INVOLVED IN OR AFFECTED BY THE PROGRAM.
(9) A DESCRIPTION OF THE PILOT PROJECT, OR OTHER TESTING MECHANISM, WHEN APPLICABLE.
71
2
IMPLEMENTATION
1. Decision to Implement the Program
In some of the programs studied, it was difficult to identify:
(1) who made the decision to implement,
(2) when the decision was made, and
(3) what the precise nature of the approved program involved.
Verbal authorization to implement the Living Unit program was given in November 1971, before a clear description of the program had been agreed upon at headquarters. On May 30, 1972, the Commissioner of Penitentiaries first stated in writing that the Living Unit program was to be implemented. During the interval between November 1971 and May 30, 1972, a considerable amount of time and effort was expended in planning the Living Unit program. This occurred in an atmosphere in which it was not known for certain that the program had, in fact, been authorized. The available documents did not indicate that the new program, which required many additional positions, conversion of existing positions, and funds for structural changes to institutions, had been submitted to Treasury Board for approval. In the absence of the approved positions and funds, the question may be raised as to whether the Commissioner of Penitentiaries had the authority to implement the Living Unit program The British Columbia Forestry projects suffered a similar problem. It was never clear from the data who made the decision to implement, vvhen the decision was made, or where the funds for the project were obtained.
In the private agency programs the most clear indication of formal authorization to implement was the approval of funds. Neegan and Unison programs were both authorized by the decision of the Department of Manpower and Immigration to provide funds for the programs. The authorization of the Native Clan program was complicated by the fact that more than seven funding agencies were involved. In general, the definition of authorization of a new program would include an allocation of funds for the program. However, there were some programs, such as Police Training, that required no additional funds and could be authorized directly by the administrators involved.
42. TO FACILITATE THE PROGRAMMING PROCESS, A CLEAR, WRITTEN AND
DATED DECISION TO IMPLEMENT THE PROGRAM, IN ADDITION TO
AUTHORIZATION OF THE FUNDS REQUI RED TO OPERATE THE PROGRAM,
IS REQUIRED.
2. Implementation Planning
In some cases, implementation involved solving new problems as they arose. For instance, in the
British Columbia Forestry project:
initially the problem of releasing inmates from institutions to be employed in forestry camps
did not receive adequate consideration;
(b) there were problems of deciding which agencies would fund the various aspects of the project;
and
(c) there were problems at first with respect to the living conditions of the inmates in the camps, such as visits and recreation.
These problems resulted in:
(a) a work overload within the institutions and the National Parole Service in the preparation of
cases for review by the National Parole Board;
(a)
73
(b) a perception of exploitation amongst staff of British Columbia Corrections Service, who believed that the Canadian Penitentiary Service had used provincial funds that could have gone to fund larger provincial inmate forestry programs; and
(c) inmate dissatisfaction with the living conditions in the camps.
Problems such as the above may have been avoided through careful planning prior to implementation.
43. IMPLEMENTATION PLANNING SHOULD INCLUDE DETAILS OF:
(1) QUANTIFIABLE OBJECTIVES OF THE PROGRAM;
(2) PROCEDURE AND POLICY, SUCH AS COMMISSIONER'S DIRECTIVES OR THE PAROLE PROCEDURE MANUAL;
(3) ADMINISTRATIVE STUCTURE;
(4) JOB DESCRIPTIONS AND EXPECTATIONS OF THE STAFF, INCLUDING SUCH DETAILS AS SHIFT SCHEDULES;
(5) STAFF TRAINING CONTENT AND SCHEDULES;
(6) CONDITIONS AND REGULATIONS AFFECTING CLIENTS;
(7) CRITERIA FOR THE SELECTION OF CLIENTS;
(8) BUDGET ALLOCATION;
(9) THE LIAISON AND COORDINATION WITH EXTERNAL INDIVIDUALS AND ORGANIZATIONS THAT WILL BE INVOLVED IN OR AFFECTED BY THE PROGRAM;
(10) TIME FRAME FOR IMPLEMENTATION;
(11) FEEDBACK, MONITORING AND EVALUATION, INCLUDING THE MANAGE-MENT INFORMATION SYSTEM;
(12) THE EXPECTED ROLES AND FUNCTIONS OF THE INDIVIDUAL, BOARD, TEAM OR COMMITTEE OF THE IMPLEMENTATION PROCESS.
74
3
POST
IMPLEMENTATION
Ongoing Operations, Evaluation and Replanning
Despite careful program planning prior to and during implementation, unforeseen problems
are likely to occur. For example, the rapid increase in inmate population experienced at Springhill
Institution caused a change in the selection criteria for the Therapeutic Community program. In addition,
social and correctional philisophies are constantly changing, as are perceived needs and objectives. Unison
expanded its scope from assistance to female offenders to include: assistance to wives of inmates, marriage
counselling, and representation to the Legislature on day care centres. These program changes appeared to
be the result of recent emphasis on "status of women" and "community corrections".
Effective programming is dependent on the ability of the organization to determine whether or
not the program implemented is meeting the defined objectives. Systematic feedback, monitoring and
evaluation mechanisms are required to assist managers to determine the strengths, weaknesses and
effectiveness of programs, and permit them to take appropriate corrective action. Such systematic
evaluation presupposed that program objectives may be translated into observable and measurable events.
Few of the programs studied had identifiable feedback, monitoring or evaluation mechanisms. The
importance of such systems may be exemplified on the basis of interviews with police trainees who had
received the lectures on the parole system by Keith Wright in the Police Training program These interviews
indicated that the trainees had not retained a significant amount of the information on parole that had been
presented in the content of the lectures. Such monitoring information may indicate that a search for a more
effective approach to informing police about parole was needed.
44. A SYSTEMATIC EVALUATION OF THE PROGRAM, INVOLVING A
MANAGEMENT INFORMATION SYSTEM, IS REQUIRED TO DETERMINE
WHETHER OR NOT THE PROGRAM MEETS THE STATED OBJECTIVES. THE
RESULTS OF THE EVALUATION SHOULD BE SHARED WITH ALL PEOPLE
INVOLVED IN THE PROGRAM, AS WELL AS THOSE RESPONSIBLE FOR
PLANNING AND IMPLEMENTING THE PROGRAM.
45. IT IS RECOMMENDED THAT THE FEDERAL CORRECTIONS AGENCY
FOLLOW A PROCESS OF PLANNING AND REPLANNING ON AN ONGOING
BASIS, UTILIZING FEEDBACK FROM THE EVALUATIVE COMPONENTS OF
THE PROGRAMS AND FEEDBACK FROM AGENCIES, CLIENTS AND ALL
LEVELS OF STAFF.
75
External Funding Authority External Line — Management
Interne Funding Authoety Internal Line — Management
Identification of
Needs
Search for
Alternatives
Evaluation Re-Planning
DIAGRAM OF PROPOSED PROGRAMMING MODEL
INITIATION STRATEGIC PLANNING IMPLEMENTATION PLANNING ON-GOING OPERATION
External Consultants
Internal Consultants
External Advisory Committee
Line — managers Planning Body
External Factors
Correctional Trends and Philosophies Existing Programs Social and Political Trends Literature Other Agencies
Statement of
Organizational Purposes
Internal Factors
Internal Milieu . Organizational Factors
Philosophy of Organization Existing Programs
External Agencies and I ndividuals
--t.— Fees bility
studies
Examination of information relevant to the alternatives
Compatibility of proposed program with stated purpose
Comparison of existing organize-
3 tional resources with those required
Effect on and reaction to
4 alternatives by external agencies
Human and Physical Resources
Program Proposal
Concise description of proposed program
1
Relationship between program and
2 organizational purposes
Clear statement --- of quantifiable
3 objectives
Statement of anticipated roles, function and
4 acceptance of other agencies and individuals
Statement of staff-related
5 considerations
Statement of client-related
6 considerations
Anticipated budget 'including staff and
7 physical resources
Statement of proposed evaluation,
8 monitoring and feedback systems
Description of pilot and other
3 testing mechanisms
Implementation
Statement of objectives
1
Procedures and
2 Policy
Administrative structure
3
Job descriptions and expectations
4
Staff training schedule
5
Client-related conditions and
6 regulations
Client-selection criteria
7
allocutionBu dget 8
Liaison and coordination with
9 external/internal agencies
Time-frame for implementation
10
Incorporate feedback monitoring,
11 evaluation component
QUESTIONS RELEVANT TO THE PROPOSED PROGRAMMING MODEL
If the Federal Corrections Agency decides to implement the proposed programming model, thefollowing questions may be considered relevant:
1. What mechanism could be utilized to determine and monitor changing purposes of the FederalCorrections Agency?
2. What systematic process could be used to identify the changing needs of the clients, staff andorganization?
3. Who should be involved in strategic planning and what organizational structure is required for thisprocess?
4. Recognizing that programs have been initiated by clients, staff at all levels, and external
organizations, what methods would ensure that these initiators are aware and make use of the
recommended programming process? How could the Federal Corrections Agency encourage
initiators to use the recommended format of program proposals for submissions requiringapproval?
5. What action would foster management techniques to ensure that decisions to implement are madeand recorded by line managers in the Federal Corrections Agency?
6. Who should do the implementation planning and what organizational structure is required toensure that this planning is done effectively?
7. What monitoring, evaluation and feedback mechanisms are feasible and likely to be effective in theFederal Corrections Agency?
77
APPENDIX A
LIST OF RESPONDENTS
Mandatory Supervision Program Ontario
George Street Former Chairman,
National Parole Board
George McIlraith Former Solicitor General of Canada
Frank Miller Former Executive Director,
National Parole Service
William Carabine
Gerry Genest
Don Renaud
Hector Leroux
Dr. Justin Cia le
André Therrien
Roger S. Beannes
tan Hermiston
Yvonne Downey
Bruno Schincariol
Alfred Babin
Aussie Edwards
Charl ie Brooks
Former Chief of Case Preparation
Former Chief of Case Supervision
Case Analyst,
National Parole Service
Former Assistant Executive Director,
National Parole Service
Professor, University of Ottawa,
Part-time N.P.B. member
Commissioner, Canadian Penitentiary Service
Formerly, Vice-Chairman
National Parole Board
District Representative,
National Parole Service,
Toronto
Assistant District Representative,
National Parole Service,
Toronto
Parole Service Officer,
Toronto
Parole Service Officer,
Toronto
Parole Service Officer,
Toronto
District Representative,
National Parole Service,
Kingston
Assistant District Representative,
National Parole Service,
Kingston
79
Walter Van Der Mark Field Supervisor
Neegan Society
Chris Trowbridge Parole Service Officer,
Kingston
Frazer McVie Parole Service Officer,
Kingston
Dalla Yeo Parole Service Officer,
Kingston
Art Trono Regional Director,
Canadian Penitentiary Service,
Ontario
J. Harrigan
J. Woods
E. Gorman
Al Setterington
Sentence Administrator Regional Reception Centre,
Canadian Penitentiary Service,
Kingston
Classification Officer,
Regional Reception Centre,
Canadian Penitentiary Service,
Kingston
Classification Officer,
Regional Reception Centre,
Canadian Penitentiary Service,
Kingston
Supervisor of Classification,
Regional Reception Centre,
Canadian Penitentiary Service,
Kingston
Two inmates at Regional Reception Centre, Canadian Penitentiary Service, Kingston
Four inmates at Collins Bay Institution, Canadian Penitentiary Service, Kingston
Two Mandatory Supervisees, Toronto .
Representatives of Metro Toronto Police, Parole Bureau; Representatives of John Howard Society, Toronto
Neegan Program Alberta
Lorne Brooks Administrator for the Neegan Society
Norman Ferguson President, Neegan Society
Doug Clarke Director of Grierson Centre,
Canadian Penitentiary Service,
Edmonton
Marian Sjoberg Canada Manpower Officer
Unison Program Nova Scotia
Judy Murray Chairman, Board of Directors,
Unison
80
Barb Unroe
Ted Smith
Vince MacDonald
Coordinator of Unison
Immediate Past President of Unison
District Representative,
National Parole Service,
Member of Board of Directors of Unison
Ainsley Allen Canada Manpower Centre Representative
Oona Landry Assistant Coordinator,
Unison
Stella Roberts Case Worker, Unison
Mary Goldman Case Worker (Sydney), Unison
Libby Chausen Case Worker (Sydney), Unison
Janice Aitken Probation Officer,
Department of Attorney General
Father Mike McKee Chaplain, Dorchester Penitentiary
Canadian Penitentiary Service
Ruth Donald Halifax Police Department
Paul Crosby Chaplain, Springhill Institution,
Canadian Penitentiary Service
Muriel Barryman Matron, Halifax Correctional Centre
Police Training Program Saskatchewan
Keith Wright
Ken Howland
District Representative,
National Parole Service,
Regina
Parole Service Officer,
National Parole Serivce,
(presently involved in lecturing to Police),
Regina
Superintendent Bill McRae Officer in Charge of Royal Canadian
Mounted Police Training,
Regina
Staff Sergeant Dave Giljam Administrator,
Saskatchewan Police College,
Regina
Constable Ivy Baker 1974 graduate from the Saskatchewan
Police College,
Regina
81
Sergeant Tom Savage
Superintendent Norm Collins
George F. Moore
Living Unit Program
Ken Bigelow
Bob Childs
Dave Chitty
Eric Fielder
Offa Gaudet
Willie Gibbs
Doug MacAloney
Dan MacDonald
Officer in Charge of Planning
and Research,
Regina City Police
Former member,
Saskatchewan Police College Advisory Committee
Former Training Officer,
Regina City Police
Member of Saskatchewan Police
College Advisory Committee
Deputy Director,
Policy and Analysis Division,
Coordinated Law Enforcement Unit (CLEU), Department of Attorney General,
British Columbia
Former Deputy Police Chief,
Regina City Police
Former Member of Saskatchewan Police
College Advisory Committee
Atlantic Region
Carpentry Instructor (Maintenance),
Springhill Institution,
Canadian Penitentiary Service
Head Living Unit,
Springhill Institution,
Canadian Penitentiary Service
Living Unit Supervisor,
Springhill Institution,
Canadian Penitentiary Service
Living Unit Development Officer,
Springhill Institution,
Canadian Penitentiary Service
Psychologist,
Springhill Institution,
Canadian Penitentiary Service
Assistant Director (Socialization),
Springhill Institution,
Canadian Penitentiary Service
Living Unit Officer,
Springhill Institution,
Canadian Penitentiary Service
Recreation Officer,
Springhill Institution, Canadian Penitentiary Service
82
Jack MacDonald
Ervin McCormack
Chris Murphy
Pat O'Brian
John Richard
Arden Thurber
Harry Van Shaayk
Tiny Watson
Yvon Brodeur
Pierre Choquette
Roger Dufort
Living Unit Officer,
Springhill Institution,Canadian Penitentiary Service
Acting Assistant Director (Security),Springh i I I Institution,Canadian Penitentiary Service
Living Unit Development Officer,
Springhill Institution,Canadian Penitentiary Service
School Teacher,Springhill Institution,Canadian Penitentiary Service
Vocational Plumbing Instructor,
Springhill Institution,
Canadian Penitentiary Service
Head Social Development,
Springhill Institution,Canadian Penitentiary Service
Supervisor of Industries,
Springhill Institution,Canadian Penitentiary Service
D i recto r,Springhill Institution,Canadian Penitentiary Service
Three inmates from Springhill Institution,C.P.S.
Quebec Region
Living Unit Supervisor,Cowansville Institution,Canadian Penitentiary Service
Living Unit Officer,
Cowansville Institution,Canadian Penitentiary Service
Roman Catholic Chaplain,Cownasville Institution,Canadian Penitentiary Service
83
Carole Dussault
Arthur Fauteux
René Ferland
Luc Genest
Robert Gravel
Sylvain Guévremont
Raymond Houde
Roger Jourdain
Living Unit Development Officer,
Federal Training Centre,
Canadian Penitentiary Service
Head Living Unit,
Cowansville Institution,
Canadian Penitentiary Service
Assistant Director (Security),
Covvansville Institution,
Canadian Penitentiary Service
Regional Director,
National Parole Service,
Quebec
Living Unit Development Officer,
Cowansville Institution,
Canadian Penitentiary Service
Living Unit Supervisor,
Federal Training Centre,
Canadian Penitentiary Service
Parole Service Officer,
Granby
Assistant Regional Director,
(Inmate Programs),
Canadian Penitentiary Service,
Quebec
André Lacroix Correctional Officer,
Cowansville Institution,
Canadian Penitentiary Service
J. Aubert La Ferrière Regional Director,
Canadian Penitentiary Service,
Quebec
Gilles Lanctot Living Unit Development Officer,
Cowansville Institution,
Canadian Penitentiary Service
Jacques Laverdière Psychologist,
Cowansville Institution,
Canadian Penitentiary Service
Gilles Lemire Head Living Unit,
Federal Training Centre,
Canadian Penitentiary Service
Guy Lemire Director,
Cowansville Institution,
Canadian Penitentiary Service
84
Elias Mercier
Denis Paquin
Ted Preston
Living Unit Officer,
Federal Training Centre,
Canadian Penitentiary Service
Regional Coordinator,
Living Unit,
Canadian Penitentiary Service, Quebec
Chief Social Development,
Cowansville Institution,
Canadian Penitentiary Service
Five inmates from Cowansville Institution, C.P.S. Two inmates from Federal Training Center,
C.P.S.
Headquarters
John Braithwaite Deputy Commissioner, (Inmate Programs),
Canadian Penitentiary Service
John Garneau
Jim Stone
Hugh Haley
D irector, Living Unit and Human Relations,
Canadian Penitentiary Service
Former Director,
Classification and Psychological Services,
Canadian Penitentiary Service
Retired Deputy Commissioner,
Canadian Penitentiary Service
Chief of Psychological Services,
Canadian Penitentiary Service
Ontario Region
Rob Arbucle
William Baccal
Jim Blockler
Al Boothroyd
Classification Officer,
Warkworth Institution,
Canadian Penitentiary Service
Living Unit Officer/Induction Training Officer,
Joyceville Institution,
Canadian Penitentiary Service
Classification Officer,
Joyceville Institution,
Canadian Penitentiary Service
Assistant Director (Socialization),
Warkworth Institution,
Canadian Penitentiary Service
85
Bob Burnett Correctional Officer,
Warkworth Institution,
Canadian Penitentiary Service
Lloyd Campbell Living Unit Officer,
Warkworth Institution,
Canadian Penitentiary Service
Bill Chitty Director,
Joyceville Institution,
Canadian Penitentiary Service
Bob Clark Director,
1Narkworth Institution,
Canadian Penitentiary Service
Paul Crookall Acting Head Living Unit,
Joyceville Institution,
Canadian Penitentiary Service
Bob Dawson Living Unit Supervisor/
Acting Staff Training Officer,
Warkworth Institution,
Canadian Penitentiary Service
Mary Dawson
Ross Duff
Ben Fox
Ed Graham
Bill Haggerty
Jean-Guy Légère
Clive MacDonald
Ed McDonnell
Jerry Muldoon
Secretary to Director,
Warkworth Institution,
Canadian Penitentiary Service
Director,
Collins Bay Institution,
Canadian Penitentiary Service
Head Living Unit,
Joyceville Institution,
Canadian Penitentiary Service
Classification Officer,
Joyceville Institution,
Canadian Penitentiary Service
Classification Officer,
Warkworth Institution,
Canadian Penitentiary Service
Psychologist,
Joyceville Institution,
Canadian Penitentiary Service
Classification Officer,
Joyceville Institution,
Canadian Penitentiary Service
Living Unit Supervisor,
Joyceville Institution,
Canadian Penitentiary Service
Executive Secretary,
John Howard Society,
Kingston
86
Jim Painchaud Living Unit Officer,
Warkworth Institution,
Canadian Penitentiary Service
Harry Pineau Acting District Representative,
National Parole Service,
Peterborough
Brendon Reynolds Classification Officer,
Joyceville Institution,
Canadian Penitentiary Service
Al Stevenson Head Living Unit,
Warkworth Institution,
Canadian Penitentiary Service
Theodor Van Petegem Director, Beaver Creek Correctional Camp/
Ex-Supervisor of Classification,
Warkworth Institution,
Canadian Penitentiary Service
Dan VVeir
Ralph Wilson
Two inmates from Warkworth
Institution, C.P.S.
Assistant Director, (Socialization),
Collins Bay Institution,
Canadian Penitentiary Service
Living Unit Supervisor,
Joyceville Institution,
Canadian Penitentiary Service
Prairie Region
E. Archibald Living Unit Supervisor,
Drumheller Institution,
Canadian Penitentiary Service
B. Benner Director,
Bowden Institution,
Canadian Penitentiary Service
Ray Desrochers Director,
Stony Mountain Institution,
Canadian Penitentiary Service
T. Ewaschuck Living Unit Officer,
Stony Mountain Institution,
Canadian Penitentiary Service
Al Ferguson Head Living Unit,
Drumheller Institution,
Canadian Penitentiary Service
D. Ford Living Unit Supervisor,
Stony Mountain Institution,
Canadian Penitentiary Service
87
D. Garson Living Unit Supervisor,
Bowden Institution,
Canadian Penitentiary Service
Bob Gillies Regional Director, Prairies
National Parole Service
Richard Zubrycki Assistant Director (Socialization),
Stony Mountain Institution,
Canadian Penitentiary Service
C. Haanen Living Unit Officer,
Drumheller Institution,
Canadian Penitentiary Service
A. Hryn Living Unit Supervisor,
Drumheller Institution,
Canadian Penitentiary Service
Pierre Jutras Member,
National Parole Board/Ex-Director,
Drumheller Institution,
Canadian Penitentiary Service
M. Lazurick
Ken Lowden
Ernie Noel
B. Nowell
Paul Oleniuk
F. Otto
O. Quinlan
L. Steveson
John Steward
Living Unit Officer,
Stony Mountain Institution,
Canadian Penitentiary Service
Assistant Director (Security),
Drumheller Institution,
Canadian Penitentiary Service
Director,
Drumheller Institution,
Canadian Penitentiary Service
Classification Officer,
Drumheller Institution,
Canadian Penitentiary Service
Deputy Regional Director (Inmate Programs),
Prairie Region,
Canadian Penitentiary Service
Classification Officer,
Drumheller Institution,
Canadian Penitentiary Service
Psychologist,
Drumheller Institution,
Canadian Penitentiary Service
Living Unit Officer,
Bowden Institution,
Canadian Penitentiary Service
Assistant Director (Socialization),
Drumheller Institution,
Canadian Penitentiary Service
88
Gary Sudal
Don Vickers
Bill Westlake
Dewey Callahan
Al Casselman
John Stonoski
George Humphries
PaulJacks
Jim Murphy
Doug McGregor
Ken McLennen
Jim Phelps
Bob Swan
Head Living Unit,
Stony Mountain Institution,Canadian Penitentiary Service
Acting Head Living Unit,
Drumheller Institution,
Canadian Penitentiary Service
Regional Director,
Canadian Penitentiary Service,Prairie Region
Former Director,Warkworth Institution,Canadian Penitentiary Service
Pacific Region
Former Parole Service Officer,
Victoria
Living Unit Development Officer,
Matsqui Institution,
Canadian Penitentiary Service
Director,
Agassiz Correctional Work Camp,
Canadian Penitentiary Service
Living Unit Supervisor,
Matsqui Institution,Canadian Penitentiary Service
Acting Deputy Regional Director (Inmate Programs),Pacific Region,Canadian Penitentiary Service
Regional Director,
Pacific Region,
Canadian Penitentiary Service
Acting Regional Director,
Pacific Region,
Canadian Penitentiary Service
Parole Service Officer,
Abbotsford
Former Director,
Matsqui Institution,
Canadian Penitentiary Service
Assistant Director (Security),
Matsqui Institution,
Canadian Penitentiary Service
89
Four inmates, C.P.S. Pacific Region
Native Clan Program
Daivd Rempel
Al Chartrand
Bill Chippeway
L. Harper
D. Goulet
C. Fontaine
J. Courtorei I le
Dennis Wiginton
Manitoba
District Representative,
National Parole Service,
Winnipeg,
Chairman,
Board of Directors,
Native Clan
Parole Service Officer,
Winnipeg
Former Liaison Officer,
Native Clan
Program Director,
Native Clan
Supervisor,
Native Clan
Former Resident,
Native Clan
Regional Consultant,
Ministry of the Solicitor General
British Columbia Forestry Projects British Columbia
Norman McRae Executive Secretary to
Forestry Corrections Committee
Ted Whiting Former Executive Secretary to
Forestry Corrections Committee
Bernie Robinson Director,
Institutional Programs,
British Columbia Correction Service
Mike Pogue
Mel Larue
George Williamson
John Braithwaite
District Forester,
Vancouver Forest District
Special Crew Supervisor,
Vancouver Forest District
Camp Supervisor,
British Columbia Forest Service
Deputy Commissioner (Inmate Programs),
Canadian Penitentiary Service,
Ottawa
90
Jim Murphy
Norm Baker
Charles Argast
William Hall
Ben Smythe
Mike Maccagno
Stan MacDonald
William Mussell
Peter DeVink
Jim Stabler
Therapeutic Community Program
Willie Gibbs
Ossie LeBlanc
Dr. Edmond Ryan
Paul Crosby
Regional Director,
Canadian Penitentiary Service,Pacific Region
Director,
Forest Program,
Canadian Penitentiary Service,Pacific Region
Coordinator of Employment Development,Canadian Penitentiary Service,Pacific Region
D i rector,
Ferndale Institution,Canadian Penitentiary Service
Head Living Unit,Agassiz Correctional Work Camp,Canadian Penitentiary Service
Member,National Parole Board,Ottawa
Supervisor of Special Categories,National Parole Service,Ottawa
Member,Nationale Parole Board,Pacific Region
District Representative,
National Parole Service,
Abbotsford
Student Parole Service Officer
Four inmates, C.P.S. Pacific Region
Nova Scotia
Assistant Director (Socialization),
Springh i I I Institution,
Canadian Penitentiary Service
Former Deputy Warden,
Springh iI I Institution,
Canadian Penitentiary Service
Consulting Psychiatrist,Spri nghil I Institution,
Canadian Penitentiary Service
Chaplain,Springhill Institution,Canadian Penitentiary Service
91
Keith McLeod
Gerry Cyr
Bob Childs
Joe Connor
Bob Allaby
Tiny Watson
Acting Assistant Director (Security),
Springhill Institution,
Canadian Penitentiary Service
Psychologist,
Springhill Institution,
Canadian Penitentiary Service
Head Living Unit Development,
Springhill Institution,
Canadian Penitentiary Service
Maintenance Plumbing Instructor,
Springhill Institution,
Canadian Penitentiary Service
Living Unit Supervisor,
Therapeutic Community,
Springhill Institution,
Canadian Penitentiary Service
Director,
Springhill Institution,
Canadian Penitentiary Service
Three inmates,
Springhill Institution, C.P.S.
92
e.g. a) client
b) staff
c) public
d) experts
e.g. a) personal experience
and observation
b) survey
c) consultation
d) literature review
APPENDIX B
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
IDENTIFICATION
OF NEED(S) FOR THE
PROGRAM SUB-
CATEGORY
OR ELEMENT
1. What situation existed before the needs for the
program were identified?
2. What were the needs?
3. When were these needs identified?
(earliest dates upon which needs were identified
and time during which needs were discussed).
4. Who identified the need(s)?
(Specific names of people involved)
5. How were the needs identified?
(include specific indicants or occurances).
e.g. a) client needs
b) personnel needs
c) 'organizational needs
(e.g. institutional)
d) political needs
e) community needs
f) key player needs
(initiator)
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
PLANNING TO
MEET THE NEEDS
1. VVould you describe what you know about the
planning that was involved to meet the needs?
(Continue with a few more questions regardless
of an "I don't knovv" answer in case you are
able to help the interviewee remember
forgotten details).
2. When did planning to meet the needs begin?
3. Who was involved in planning to meet the
needs?
4. What alternatives vvere considered in planning
to meet the needs?
5. What considerations vvere given to each
alternative?
6. What techniques were used to examine the
alternatives?
7. How much time was involved in examination of
the alternatives?
8. Who was involved in the selection of the
adopted aternative?
9. What were the reasons for the choice of the
adopted alternative?
e.g. a) pilot projects
b) literature revievv c) consultation
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
FORMULATION AND
STATEMENT OF
OBJECTIVES OF
THE PROG RAM
SUBCATEGORY OR
ELEMENT
1. What were the initial stated objectives (historical
or original)?
2. (a) What alternative objectives were examined?
(b) What considerations were given to each
alternative objective?
(c) What were the resons for the choice of
the adopted abjectives?
3. Who participated in the formulations of the
objectives?
4. VVhat techniques were used to formulate
objectives? (Provide as much details as
possible).
5. Who made the final decision on the objectives?
6. Over what period of time were the objectives
formulated?
(a) When vvere the initial objectives first
stated formally?
(b) In what form were the objectives first
stated?
e.g. a) autocratic
b) consultation
(Delphi) How and
with whom?
c) brainstorming
d) Other
e.g. i) in legislation
ii) in directives
iii) in procedures
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE - DATA SOURCE
7. Were you informed about the objectives? If yes,by whom?
8. Was there a process for sharing the statedobjectives?
(a) Describe the processes.(b) Who were the stated objectives shared
with?
9. Are the objectives measurable in quantifiable(numerical) terms? If yes, describe how.
e.e. i) number of inmatesreturned to custodyas measure of reha-bilitation objective.
(O.P.M.S.)
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
PLANNING OF
THE CHOSEN
PROGRAM
1. What considerations were given to effects on
and of existing:
(a) Legislation
(b) Departmental Policy
e.g. i) Federal
ii) Provincial
iii) Municipal
i.e., Procedural Manuals,
Commissioners Directives
Divisional Instructions,
Standing Orders, etc.
(Specify changes necessary and perceived
effects in as much detail as possible).
2. (a) Personnel requirements
i — Administrative Personnel
ii — Program Personnel
iii — Security Personnel
iv — Other categories of personnel
v — Recruitment
vi — Training/Development
vii — Career Development
(b) Capital Expenditures e.g., new or alterations to
buildings, additional
equipment etc.
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
(c) Community Resource Contracting
(d) Other
3. Were there short and long term considerations in
each of the above budget areas? (Specify in as
much detail as possible in each area).
e.g., Public Service
Commission, Public
Service Alliance of
Canada, Public Works,
etc.?
4. Who was involved in each of the above areas of
budget considerations?
5. What was the projected budget? (Planning stage
budget as distinct from operational budget
eventually approved).
(a) Where was the funding obtained?
6. What considerations were given to:
(a) Clientele to be involved
(b) Acceptance of prospective program by
clientele
(c) Screening or admission procedures
(d) Roles and activities of lcients in program
subcategory or element
i.e., specific categories,
everyone, voluntary, com-
pulsory, select
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQURIED EXAMPLES CAN BE - DATA SOURCE
(e) Did you have any other considerations
regarding clients?
7. Were prospective clientele involved in the clientrelated considerations in the planning stages?How were they involved?
8. Who was involved in the client-related considera-tions? How were they involved?
9. What considerations were given to staff?
(a) acceptance of program(b) demands on time(c) training necessary
(d) effects on careers
(e) did you have any other considerationsregarding staff?
10. Who was involved in the staff-relatedconsiderations? How were they involved?(Be specific).
11. What considerations were given to communityresources?
(a) Who was involved in these considerations?
e.g., service clubs volunteer
organizations, religious
organizations, self-help
groups, Manpower,
Welfare.
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
(b) How were they involved in these
considerations?
(c) What effect did these considerations have on
the planning of the program?
(d) What roles and activities did you expect the
stated community resources to play in the
program?
12. What considerations vvere given to agencies
in the criminal justice system?
(a) Who vvas involved in these considerations?
(b) How were they involved?
(c) What effect did these considerations have on
the planning of the program?
(d) What roles and activities did you expect the
stated agencies in the criminal justice
system to play?
13. Were the effects on and of other programs in
operation considered?
(a) Who was involved in these considerations?
e.g., Police Courts,
John Howard, Legal
Aid, Lawyers.
STANDARD FORMAT FOR INDPETH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQURIED EXAMPLES CAN BE — DATA SOURCE
(b) How were they involved?
(c) What effect did these considerations have on
the planning of the program?
(d) Were the effects on and of the roles and
activities of staff in other programs
considered?
14. Was a research or evaluative (quantitative)
connponent planned into the program?
(a) If yes, what was it?
(b) Who was involved in this aspect of the
planning?
Exannple of evaluative
component would be
number of clients placed
in architectural firms or
other drafting employnnent as a result of participation
in drafting course in
institution).
e.g. a) Headquarters
b) Regional H.Q.
c) People outside the
Ministry
e.g. a) Consultation. How?
VVith whom?
b) training sessions.
With whom?
c) literature
distribution
d) other.
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
1. IMPLEMENTING THE
PROGRAM (estimated 6
months from Living
Unit staff assigned to
Units and started Work)
Did the program planning process bring about
changes in
(a) the initially stated needs;
(b) the initially stated objectives?
How? (Specific dynamic).
2. What period of time elapsed betvveen
initiation of planning the program and
the implementation?
(a) Were there delays?
(b) What were they? (reasons)
(c) Specify dates, including specific date
to implementation.
3. Who was involved in the implementation of
the program? (Specific names, if possible).
4. What techniques were used to implement the
program? •••
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE - DATASOURCE
the leadership?
5. What leadership was provided? Who provided
6. (a) What was done to develop:
i- understanding of the program?
ii - acceptance of the program?
(b) To whom was this directed?
7. What was the budget at the time of
implementation? (Detail changes from planning
stage).
(a) Were there any changes in the budget fromthe planning stage (Give details).
8. What were the roles and activities of the staffto be at implementation? Were they clearlydefined?
9. What were the roles and activities of the clientsto be at implementation? Were they clearlydefined?
10. What were the roles and activities of otheragencies in the criminal justice system to beat implementation? Were they clearlydef i ned?
11. Did the initially implemented roles andactivities of the staff, client and agenciesdiffer from those planned?
i) roles
ii) activities?
e.g.
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
e.g.
12. How did implementation of this program effect
re:
(a) Staff i) recruiting
ii) training/development
iii) career development
iv) roles and activities
v) other?
(b) Clients
(c) Community resources?
(d) Agencies in the criminal justice system?
(e) Other programs?
13. Was any evaluative technique included in the
implementation of program? (Describe it).
14. Were there methods established to monitor
the roles and activities of staff, inmates and agencies in relation to those that were
intended to be implemented?
needs
objectives
budget
roles and activities of:
e.g.
(a)
(b)
(c)
(d)
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
ONGOING
OPERATION OF
PROGRAM SUB-
CATEGORY OR
ELEMENT
1. Have changes been observed in the following
since implementation?
2. What effect has there been on the operation of
the program subcategory or element? (Specify
changes, their causes, and effects in detail).
i) staff (various levels
and categories)
ii) clientele
iii) community
resources
iv) criminal justice
system agencies
v) other programs
(e) physical resources
(f) number of staff
(various levels and
categories)
(g) staff training/
development
(h) screeening and admis-
sion procedures
(i) other e.g.
management and staff
priorities.
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
3. What action was taken in response to the
changes to ensure that objectives and needs
are met? (Be specific).
(a) Who was involved in this observation and
action?
(b) How were they involved?
4. Were changes observed anticipated?
(a) at time of planning?
(b) at time of implementation?
By whom? (Be specific).
5. To what extent are the stated objectives of
this progrann being met? (Narrative in as
much detail as possible. An overview, including
basis of response.)
6. How are the roles and activities in this program
monitored to ensure that they are related to
meeting the stated objectives?
7. If there was an evaluative (quantitative)
component built into the progrann, how has it
affected operation of the progrann?
I i) Who was involved in the evaluation program? e.g., research
contracted out
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED EXAMPLES CAN BE — DATA SOURCE
ii) What did the evaluative component
entail?
iii) Did such evaluation yield operationally
useful data? Explain in detail.
8. Has information in literature on similar
programs affected the operation of this
program?
9. What form of communication is used to
disseminate information on this program
between:
(a) program field personnel
(b) field managers
(c) regional H.Q. personnel
(d) headquarters personnel?
(Vertical and horizontal communication)
10. What additional steps might be taken to
increase the effectiveness of the program?
(a) Have there been attempts to implement
these additional steps? (Describe the
attempts, and the results in detail).
STANDARD FORMAT FOR INDEPTH STUDY DESIGN
NATIONAL PROGRAM SUBCATEGORY OR ELEMENT
AREAS OF CONCERN INFORMATION OR DATA REQUIRED
11. Are there any techniques or criteria by which
client's participation in this program may be
term i nated?
(a) What are they?
EXAMPLES CAN BE -
e.g. i) completion of
activity
ii) client has met
objectives of
activity set for him
iii) client is not
benefiting from
activity
DATASOURCE
