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Good morning, everyone. We welcome you. This is meeting number four of the Standing Committee on Public Safety and National Security, on September 29, 2011.
Today we are commencing our study on drugs and alcohol in prisons. This is pursuant to our committee's adoption of the subcommittee report. Part of the motion was that we will study how drugs and alcohol enter the prisons and the impacts they have on the rehabilitation of offenders, the safety of correctional officials, and crime within institutions.
In our first hour we will hear from the Correctional Service of Canada. Returning again to provide testimony is Don Head, Commissioner of Correctional Service Canada.
First of all, on behalf of our committee members old and new, as chair I always thank you for being willing to appear before our committee and to sometimes appear with very little notice. That is indeed the case today, so we're very thankful for that.
Also, the commissioner is accompanied by Chris Price. He is the assistant commissioner of correctional operations and programs.
In our second hour we're going to hear from the Union of Canadian Correctional Officers on the same topic that we're looking at in the first hour.
I do welcome you here this morning. We look forward to your comments. We appreciate you being here.
Mr. Head.
Just for information, according to my atomic time-keeping watch, that clock is right.
Good morning, Mr. Chair and members of the committee.
I'm pleased to have the opportunity to appear before you today to discuss how the Correctional Service of Canada manages the issue of drugs and alcohol within our federal penitentiaries.
Let me start by saying that addiction is the most serious crime-related factor among the federal offender population. In the 2007 report A Roadmap to Strengthening Public Safety, it was noted that about 80% of offenders arrive with a serious substance abuse problem, with fully half indicating that drugs or alcohol were a factor in the commission of their offence. This statistic has remained constant for many years.
The use of drugs and alcohol presents a serious security risk to our staff and to offenders themselves. It is a well-known fact that in Canada, as well as in other jurisdictions, much of the violence that occurs within institutional walls is directly related to drugs. Instances of violence destabilize our institutions and put my great staff at risk. This instability also limits our ability to manage a complex and diverse offender population, which in turn limits our ability to effectively prepare offenders to be released into society as productive, law-abiding citizens.
There are also serious public health implications related to offenders’ addiction to intravenous drugs. Our data shows that one in five male offenders has injected drugs in his lifetime. Of these, half report having injected in the year prior to incarceration. Intravenous drug users have a much higher incidence of blood-borne diseases, such as hepatitis C and HIV, than the general population. The reality is that we are dealing with one of the most seriously addicted segments of Canadian society, evidenced by the lengths they go to, and the crimes they commit, to obtain and use drugs.
This dependency does not magically disappear when they arrive at our gates. While inside, addicted offenders go to extremes to secure any illicit substance that will feed their addiction. These are the challenges that correctional staff face every day in institutions across the country, and indeed around the world, and these are the challenges I am concerned with, as the commissioner of our federal correctional agency.
In order to more effectively understand and develop strategies to address offender substance abuse, the Correctional Service of Canada has implemented a focused, evidence-based strategy around addictions. This includes engaging with other jurisdictions on this issue and sharing information and best practices on how countries around the world detect and deter drugs. Our staff are dedicated to helping CSC better understand the dynamics of offender substance abuse, which contributes to the development of effective programming and overall efforts to eliminate drugs from our federal penitentiaries.
Mr. Chair, I'm committed to continuous improvement and seeking the best public safety results for Canadians. This is why, starting back in 2007, the organization took the recommendations of the report I referenced earlier and set about to fundamentally transform our operations. This transformation agenda included a suite of initiatives designed to address the problem of drugs within our institutions. These efforts complemented and improved upon our existing drug strategy. This strategy focuses on detecting and deterring drugs from entering our institutions, as well as recognizing and treating substance abuse issues among federally sentenced offenders.
On August 29, 2008, the Minister of Public Safety announced that $122 million in funding would be provided over five years to help eliminate drugs in federal institutions. This funding supports a more rigorous approach to drug interdiction in order to create safe and secure environments where staff and offenders can focus on the business of rehabilitation.
The funding supports an increase in drug detector dog teams, and we will see over 100 teams across the country by the end of this fiscal year; an increase in the security intelligence capacity in both institutions and communities; enhanced perimeter security through better use of technology; and the reinforcement of search policies to better prevent drugs from entering our institutions.
Beyond these transformation measures, CSC has recently implemented a number of other initiatives in an effort to reduce both violence and illicit drugs in our institutions. These include more rigorous searches of cells, buildings, and grounds, and physical searches of offenders. We are also using innovative technologies such as thermal imaging and infrared equipment to detect intruders at our perimeter fences. We are also enhancing our dynamic security practices and our security intelligence capacity to better monitor and interpret offender activity.
Additionally, we have augmented the search of all visitors entering institutions, using technology such as metal detectors and ion scanners and, as I mentioned previously, with the increased use of drug detector dogs and teams.
I would also like to note that urinalysis testing of offenders is an important tool in detecting drug use and in deterring offenders from using illicit substances. Over the past decade, we have seen an encouraging decrease in the percentage of positive tests, and we've also seen a drop in the rate of refusals to provide a sample. The most dramatic decrease in positive testing and refusal rates has been observed in our maximum security institutions. Statistics also show a decrease in offender deaths by drug overdose and an increase in drug seizures.
Simply put, our results point to the effectiveness of our interdiction efforts and the tremendous work that my staff do every single day across this country. But again, I will always seek ways of improving our correctional results, to achieve safer communities for Canadians across the country.
Beyond addressing the supply of drugs, we must also address the demand for drugs. To this end, the Correctional Service of Canada provides a range of accredited substance abuse programs. The more significant the offender's problem, the higher the intensity of intervention provided. There are also substance abuse programs designed specifically for women and for aboriginal offenders.
It would not be an exaggeration to say that CSC is an international leader in the development and implementation of effective substance abuse programming. Indeed, numerous countries have added our programs to their efforts to help offenders get off drugs and stay off drugs. These include the United Kingdom, Norway, and Sweden, to name a few.
By participating in substance abuse programs and aftercare, offenders learn to manage their patterns of abusing drugs and alcohol. Our ultimate goal is to decrease recidivism and create safer communities for Canadians. We know that offenders who participate in substance abuse programs are 45% less likely to return with a new offence and 63% less likely to return with a new violent offence.
Mr. Chair, I know the committee is specifically interested in a number of related issues, which I'll briefly address here before welcoming any questions you may have.
I believe I've already indicated to you the link between substance abuse and institutional crime, as well as the impact on staff safety. Drugs and alcohol feed criminal behaviours that include muscling, threats, intimidation, and serious violence. Violence against staff and between offenders is not compatible with creating secure and safe environments, nor is it conducive to the safe reintegration of offenders into communities.
The continuation of these criminal behaviours inside our institutions is clearly counterproductive to offender rehabilitation. Institutional instability also affects our ability to consistently deliver programs. Furthermore, we will not see success in rehabilitative programming if we cannot keep drugs away from offenders whose substance abuse is key to their criminality.
Finally, with respect to how drugs get inside our institutions in the first place, we have uncovered a wide variety of methods over the years: everything from throwing drugs over the fence to hiding drugs in body cavities and even in babies' diapers. This is why it's so vitally important for the organization to maintain a robust security and intelligence capacity, coupled with rigorous search procedures and physical security.
CSC has also implemented a heightened public awareness campaign to communicate the hazards and repercussions of smuggling drugs into institutions. This includes a video entitled “Keeping Drugs Out” that clearly demonstrates the consequences of bringing drugs into our federal correctional facilities.
We've also established a toll-free national drug tip line to facilitate reporting of any suspected drug activity.
Safe, drug-free institutions are necessary to enhance public safety and help ensure the successful reintegration of inmates into the community. The presence of drugs creates violence within institutions and prevents offenders from coming out of their cells and participating in programming, as outlined in their correctional plans.
While we must all recognize that these efforts are a work in progress, I am proud of the measures that the Correctional Service of Canada and my staff have put in place to address these issues. It is our common goal to ensure safe communities for all Canadians, and this includes providing offenders with the skills necessary to live a life free of substance abuse, and to be productive and law-abiding citizens of society.
I welcome any questions you may have at this time. Thank you.
:
That's a good question.
As part of our assessment, if we've identified that they've had a substance abuse problem during their life, we'll identify that up front and they'll be put on a waiting list to participate in the programs.
We're in the process right now of changing how we deliver our programs across the country. We're doing a pilot project out in the Pacific region in British Columbia and one in the Atlantic region covering the Atlantic provinces where we're actually getting individuals, within the first 45 days they come through the gate, involved in program primers to start to get them engaged in programming. That will set the stage for the more intensive programs, such as the high-intensity substance abuse program.
If somebody has been identified as an individual who was involved, for example, in trafficking in the community or on the street, these individuals would be flagged through our security intelligence section and we would be watching their activities very closely. If there is indication that they might be trying to carry on that enterprise while they're under our care, we would be putting in place various methods for observing them, monitoring phone calls, additional approaches to dealing with searching, and those kinds of things.
So we'll take that into account. We'll know, for example, if somebody has come in after sentencing--and it doesn't matter what they've been sentenced for--and we'll have the history as to whether they might have been involved in trafficking out on the street, so we'll take that into account.
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Yes, thank you. That's a very good question.
We have seen a couple of indicators that we consider to be positive.
As I mentioned early on in my speech, we have seen some decreases in the number of positive urinalysis tests. When we did the random testing of inmates in the penitentiaries, we saw a decrease in the percentage of individuals who were showing a positive urinalysis test. That indicates to us that there are still drugs getting into our institutions, which is a problem for us, but it indicates that, overall, the percentage is coming down.
We also have seen that the number of seizures of drugs at the front entrance and in the institutions has gone up. Now, you can argue that more seizures means one thing or more seizures means another. From my perspective, every seizure is a good seizure, because it means those drugs are not getting into the hands of inmates who can harm my staff, harm themselves, or, ultimately, harm another inmate. Last year we had just over 1,700 drug seizures in the institutions, and that's a significant find for us.
There is another indicator, though it's not necessarily as scientific as some of the other data. We do know that at times, when the supply of drugs coming into the institutions has been cut off, inmates will look to other means for some kind of intoxicant. Usually they'll start to try to make brews, homemade alcohol, in the institution. You can make homemade alcohol from a lot of different commonly available substances. Some of the worst ones I've seen were made out of those little ketchup things that you get from McDonald's. It's not very good tasting and it smells terrible, but you can get a brew out of that.
When we see the number of drug seizures going down and the number of brews that the staff are seizing going up, we see those as partial indicators that our efforts around seizing drugs are working and moving in the right direction. It's an indication that we're cutting off the drug supply coming in. But we still have a lot of challenges.
As we put our time and energy in to choke off the drug supply at one spot, people become quite innovative in looking at how to get drugs in. As I briefly mentioned in my comments, there have been people from the outside who have approached our perimeter and launched drugs over the fence using bows and arrows. They are 150 metres outside the perimeter, and they shoot arrows into the exercise yard, with the drugs either in the shaft of the arrow or taped around it. Then my staff have to go out and search the yard and they find those.
We've seen individuals become quite innovative at taking tennis balls, hollowing out the tennis balls, and filling them with drugs. If you get a good—and I'm dating myself—Bjorn Borg swing on the tennis ball with a racket, you can launch it quite a distance, and they sometimes make it inside the fence.
We've even seen cases where individuals have taken dead birds, removed the innards, stuffed the drugs inside, and then, we believe, launched them with some kind of slingshot device into the yard.
Again, my staff are very diligent. They do a great job in terms of searching and finding these things, but the odd time something gets in. We have cases of individuals being found using drugs, or my staff end up interrupting a drug overdose and saving the lives of an inmate who is stupid enough to use the drugs.
My thanks to the witnesses for coming and being here once again. What would a session of Parliament in the public safety committee be without a visit from our friends at Corrections?
Mr. Head, you know where I come from. I live in the village of Warkworth, which is basically home to Canada's largest federal penitentiary. At least it's the largest currently. It's a medium-security prison, and the situation there has changed from what it was 15 or 20 years ago. It's a much more dangerous place in which to work for our men and women who are there to protect our society, our inmates, and themselves.
I appreciate that in your evidence you mentioned that we look to other countries, such as the United Kingdom, Norway, and Sweden. This committee not too long ago visited the United Kingdom, Norway, and many prisons across this country with a view to looking at mental illness and addiction in our prisons. We in this country think Norway is a very advanced society. Still, it's a different society. You can do some comparisons, but it is different. I was surprised and proud to learn that about 60% of their programs come from this country.
So while we always need to look for better ways, the rest of the world looks at our correctional system as one of the best on the planet. So I want to thank you and the men and women who work with you to make that happen.
One of the things we seem to leave out when we talk about addictions is the addiction to tobacco. Am I correct in the assumption that cigarettes are still the currency of choice within our correctional system?
I want to thank the committee. Those were all very good questions and good answers.
I don't want to mess up by asking a bad question, but I'm wondering. My constituency includes Drumheller and the Drumheller institution. There are some very good things happening in that institution as far as information-sharing is concerned, and being able to coordinate and recognize.... I've been on a number of tours over the years. You walk into a room, and they have a board, and they have pictures, and they're sorting out the gang affiliations. They do a lot of information-sharing with the RCMP and correctional workers.
I know that in Alberta this is viewed as a very good program. The last three wardens—Tim Fullerton, Floyd Wilson, Mike Hanley—have all bought into this a bit. I wonder whether that type of sharing of information is going on in other institutions. If it is, great; if not, why is it not?
The other thing is what Mr. Chicoine brought up in his question. Are there incentives for taking some of these programs? Can you explain to us, if someone comes in who is an offender who refuses to take part, and your tests show, perhaps, that he has a drug problem, what the incentives are for his moving into a place where he's willing to take part in rehabilitative programs?
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Mr. Chair, I have to say that those are two exceptionally good questions.
In terms of the first question, what you saw at Drumheller is our expectation across the country. Through our security intelligence staff, through working with all the other groups of staff in the institution, the gathering of that information, the analysis of that information, and the dissemination of it back out is key to having a safe environment. As well, working with our other criminal justice partners, such as local police and even in some cases CSIS and Canada Border Services Agency, is key to having an environment that's going to be safe.
As part of the investments we've received over the last few years, we received investment to increase our security intelligence capacity, to allow us to do that very thing you've talked about. And I can attest, Mr. Chair, that your picture and name don't show up on any of our i2 charts at all, just to alleviate any concerns of any of the other members.
In terms of the issue of incentives, again, one of the things I'll refer to is . One of the things that I'm glad to see in there is the item that will give me the opportunity to address the very issue of incentives.
I have a very quick story, Mr. Chair. Right now, if Mr. Price and I were two inmates with relatively the same length of sentence, the same kind of offence, and Mr. Price, being a much better inmate than I, decides he's going to follow his correctional plan, he's going to participate in programs, his behaviour is going to be good, and he'll ultimately apply for whatever discretionary release he may be entitled to, he's entitled a series of privileges in the institution. If I choose not to follow my correctional plan and my behaviour is not serious enough to move me to maximum security or put me into segregation, the only difference between Mr. Price and me is that I probably won't get a discretionary release, a day parole, or full parole, but I'm entitled to the same privileges as Mr. Price, as it stands right now under the Corrections and Conditional Release Act.
We don't believe that's the kind of incentive regime that's going to work in terms of moulding people to be accountable for their actions. This goes back, Mr. Chair, to one of the questions around inmate accountability.
There is a provision now in that would give me the authority to establish the appropriate scheme for incentives for individuals who are engaged in their correctional plan versus those who are not engaged, and we look forward to that piece being passed as well.
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I would like to thank everyone who invited us to give a presentation.
First, I would like to point out that I am wearing my uniform this morning because I have been a correctional officer for 25 years. I am proud to be one and to represent the union members as their national president.
Our presentation deals with a major topic of great importance to us: drugs and alcohol in penitentiaries.
In order to talk about this problem, the issue has to be divided into four separate topics: the tools we need, visitor screening, population management and, finally, programs.
In terms of tools, over the past few years, we have actually received new resources in the form of dog handlers and security equipment. But I would point out that medium and maximum security penitentiaries are often surrounded by woods and they are easily accessible through the trees. In those prisons, we often see what we call the throw over. Flying packages are thrown over the fences. People might think that all the towers around our penitentiaries have guards at night and that there are several patrols, but that’s not true. A patrol sometimes covers a perimeter of two kilometres. In some cases, if there is no perimeter, only one tower has guards. But the fact remains that, in most institutions, none of the towers have guards at night. So this means that it is now easier for offenders to get drugs in at night if they want to.
I would also like to point out that prisons are not closed environments. We often talk about the number of visitors who come to see the inmates every year, for various reasons. They could be family, friends, community groups, inmates’ rights groups, entrepreneurs and contractors. There are also social events. There could be up to 5,000 visitors every six months. That is a lot of people. And the more visitors, the higher the chances for increased criminal activities, unfortunately.
As union members and as correctional officers, we feel that the third topic is the most important. I would really like the committee to take the time to study it. I am talking about population management. Just now, I heard Mr. Head talk about inmates who commit to their correctional plan and those who do not. We have always felt that we should do everything in our power to help inmates who make a commitment and focus on rehabilitation, by providing them with programs and the necessary tools. However, we are dealing with a group of individuals who are not necessarily interested in committing to their correctional plan. Unfortunately, these people sometimes create problems within the institutions. They can ruin the program for other inmates. There should be a separate program for them. But we need tools for that.
I would also like the committee to look into what gangs do and what power they have in prisons. Some of the commissioner's directives pertain to criminal groups. There are positions of trust in prisons, such as canteen staff, the chair of the inmate committee or the chair for inmates’ complaints. I suggest that the committee members take the time to look into that. They will see how often those positions are filled by people from biker gangs or the mafia. Those groups control all the underground economy in the place. And what is the underground economy? It is the money used for or made from illegal sales.
We have two types of problems. On the one hand, we have people who use drugs. The numbers get up to a staggering 80% or so. On the other hand, we have people who want to make money from selling drugs. They are the ones who control the underground economy and get inmates to do drugs and become addicts.
As a result, those inmates get hopelessly trapped. They are screwed, as they say. The amounts of money they owe are so large that they have to ask for protection. Getting protection means that another population has to be created; they leave the population where they owe the money and so another population has to be created. That is what I call population management. We need one type of program for the inmates committed to their correctional plans and another type for those who are not committed.
The last topic is also important to me. It includes substance abuse programs, the possibility for inmates to follow those programs, insufficient employment opportunities in the institutions, meaning positions that are not open to the general population. In the 1990s, we were told that the symptoms of having no programs were connected to the revolving door syndrome, which means that people go to prison, serve their time without attending any programs, and are released without necessarily succeeding in rehabilitating themselves.
I feel that your committee is faced with a major challenge. If we had had more time, we would have prepared a brief. I am not sure whether it's too late, but if we can give you more information, we will be more than happy to help you with that. I have to say that we got the invitation yesterday afternoon. But we still managed to outline the issues at hand.
We are now ready to take your questions. It is our pleasure to do so.
[English]
Thank you.
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One thing I would like to say is that the new equipment we have received, dogs and detectors, are good tools. We need those tools. We're not going to say that is not good equipment.
Are we better with this equipment? Yes. At the same time, you can have all the equipment you want; you can have everything you want, but at the end of the day there are people in there who want to make money. They want to take drugs. There's a problem with that too. They're always going to try to find something else, and they will be better.
I was talking about the fence. To give you an example, I saw some place where they were using a tennis ball and a racquet. They threw the ball inside. There's always something.
People tell me, “But don't forget, Mr. Mallette, in the morning somebody is supposed to search the yard”. Of course somebody is supposed to search the yard, but you're asking one person to search the yard. Do you believe the yard is the size of this? No, it's huge. Of course they know that somebody is going to search the yard, and they try to make that thing more difficult to find. In French we say it's
[Translation]
It is the old cat and mouse game.
[English]
In English maybe it's a cat and mouse play. It's huge.
But I cannot say that these tools are not good to help with the drugs. They are good.
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“Engaged” means it's my first sentence inside. One of the program we always talk about on first sentences is whether there is a place in the country, in each region, where you can send a first offender.
So say it's my first time. I stole a car. I have a file. I'm coming in. I don't want to go back to the criminal stuff. I want to change. I want to get out of that. But for now I'm going to an institution with people who come from gangs.
Do you seriously believe a guy who is so proud to be a Hells Angels, is so proud about what he's doing outside...?
[Translation]
They call us “les citoyens”.
[English]
We are paying taxes for them. We are paying money to government for them. They have a beautiful life. They are not engaged, to us. They are complicated. And they're going to put pressure on the guy coming in.
When you're searching a range and they want to hide some brews, some drugs, they are going to go to a new guy on the range and tell him he's going to put this, this, and this in his cell.
Don't forget this guy is facing a Hells Angel. He's facing a tough guy. He's going to be a little bit scared about that, so he's going to do it.
And guess what--when we search, we're going to find the drug in his cell. Is he going to tell us it's not his, it's the drugs of the bad guy? He will be scared. He will have to go to segregation because he's going to ask for protection.
It's complicated.
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Maybe you're going to give me a chance to talk about a slogan I hear a lot, “tough on crime”. I hear that from the field. People are saying the new government wants to be tough on crime, right?
We accept the challenge to be tough on crime. I'm a correctional officer. Justice, it's in my mind. But tough on crime means being tough on criminals, too. Changing the law to bring us wider margins of manoeuvre to manage the population is going to be good. At the same time, we're going to have to give what goes with that. Managing the population, managing new rules, means we're going to have to review the number of correctional officers we have at the site. You're going to build more units. That's good news. Now we're facing a lot of double-bunking, and double-bunking is no good for anybody. It's not good for correctional officers, but it's not good for inmates, either. Two in a cell means a lot of stress for them and a lot of stress for us.
This is the first chance I've had to talk to the MPs in the committee about those things. You're going to see the media saying different things. People are going to say, “Ah, you're never satisfied. You're receiving more units, more jobs.” Let's talk about the stuff. We're passing the law, and now we're going to have to deal with new stuff, new laws. How are we going to apply that? Engage? Not engage? Maybe we're going to arrive at something. In any case, we want to be there.
I want to tell you something. We were in Ottawa this week, all week, for the Blood Samples Act. We want the Blood Samples Act. If an inmate is trying to throw feces at me, and he's using his blood as a weapon, please, can we know if he's sick or he's got something? Can we just know? We know that in your bill it's going to be criminal to do stuff like this. Please, we want that. We need it.
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Thank you, Mr. Mallette.
I have a couple of quick questions. I know Mr. Norlock is in a hurry, probably to get to another committee, knowing how hard a worker and member of Parliament he is.
By way of your experience, I have seen some of these brews, or hooch, that they make in prison. I'm telling you, it is bizarre. I've seen them made in big pieces of poly-plastic up above the rafters, and literally the ketchup, as Mr. Head said, and it was bad. There's always a way to make this stuff. They're always looking for hunks of fruit to throw into this and let it ferment. I wonder about the size. I can understand how you can smuggle in a little pill, a joint, coke, or something that might be in a body cavity. Is there much alcohol coming in? I've never walked down the halls of any prison and seen a guy drinking a beer. The bottle would be recognized right away. Is there alcohol coming into prisons, or is it mainly the hooch they make?
You also talked about smuggling in tobacco, where mom, the wife, the kid, or the grandma is involved. It may not just be smuggling in drugs; it might be smuggling in tobacco. So here she is smuggling in tobacco because she's being pressed on it. You aren't the lawyer, so you may not know, but is there a charge for smuggling in some legal substance? It has to be confiscated. So there is no charge against her for anything down the road, is there? You can't charge them for handing someone tobacco.