Mental Health Strategy - Correctional Service Of Canada
MentalHealthStrategyFor Correctionsin CanadaA Federal-Provincial-Territorial Partnership
Table of ContentsAcknowledgements . 3Preamble . 4Legal Framework. 6Vision . 7Introduction . 7Part I: The Framework . 9Guiding Principles . 9Key Elements and Expected Outcomes .11Part II: Strategic Priorities .17Introduction .17Priorities.17Appendix: Consultation Executive Summary .19Glossary .21References .252
AcknowledgementsThe Mental Health Strategy for Corrections in Canada reflects the experience andcollective thinking of thousands of staff, stakeholders and offenders from acrossCanada. We acknowledge the significant contributions made by the Heads ofCorrections (HOC), and the HOC co-champions Tammy Kirkland from SaskatchewanCorrections and Brent Merchant from British Columbia Corrections towards making thisStrategy a reality.We also express sincere appreciation for the work of the members of the FederalProvincial-Territorial Working Group in Mental Health (FPT WGMH). Their continuousinvolvement has produced a collaborative document that is reflective of concertedefforts to enhance the continuum of care for individuals with mental health problemsand/or mental illnesses who are involved in the correctional system.This Strategy could not have been possible without the continued collaboration of theMental Health Commission of Canada (MHCC), specifically Terry Coleman and BernardStarkman.Last, but certainly not least, we thank Dr. James Livingston for his work in the documententitled: Mental Health and Substance Use Services in Correctional Settings: A Reviewof Minimum Standards and Best Practices, which served as a springboard for theMental Health Strategy for Corrections in Canada.This Strategy was created in cooperation with:Correctional Service CanadaOntario Correctional ServicesNova Scotia Correctional ServicesNew Brunswick Community and Correctional ServicesManitoba CorrectionsBritish Columbia CorrectionsPrince Edward Island Community and Correctional ServicesSaskatchewan CorrectionsAlberta Correctional ServicesNewfoundland and Labrador Corrections and Community ServicesNorthwest Territories Corrections ServiceYukon Correctional ServicesNunavut Policing and CorrectionsThe Mental Health Strategy for Corrections in Canada is an ambitious multi-yearundertaking. Plans will be developed with the understanding that there will be variationsin the implementation and expected outcomes dependent on the capacity of therespective correctional jurisdictions.3
PreambleEstimates vary on the prevalence of mental health issues within prison, however thegeneral view is that it is high and has increased in recent years (American PsychiatricAssociation [APA], 2004; Correctional Service of Canada [CSC], 2009). For example,within the Canadian context, Brink, Doherty & Boer (2001) report that 31.7% of 267 newintakes in federal penitentiaries in British Columbia had a current diagnosis of a mentaldisorder, with 12% meeting the criteria for a serious mood or psychotic disorder. Fazeland Danesh (2002) found that, “typically about one in seven prisoners in westerncountries have psychotic illnesses or major depression” (p. 548). While these rates anddefinitions vary, it is clear that many offenders enter the system with existing mentalhealth problems and/or mental illnesses.In November 2008, the Heads of Corrections created the Federal-Provincial-TerritorialWorking Group on Mental Health (FPT WGMH)1.The WGMH served as an advisorybody on mental health to the HOC and was tasked to develop a Mental Health Strategyfor Corrections in Canada in consultation with the Mental Health Commission of Canada(MHCC). A number of key documents were consulted which informed the need for aMental Health Strategy for Corrections in Canada. In 2006, the Honourable MichaelKirby chaired the Standing Senate Committee on Social Affairs, Science andTechnology that released the report Out of the Shadows at Last: Transforming MentalHealth, Mental Illness and Addiction Services in Canada. This was the firstcomprehensive examination of mental health issues in Canadian history. TheCommittee looked at a number of very important areas, one of which called for animprovement of services and working conditions in the criminal justice field.The Canadian Mental Health Association (2009) attributes, in part, the expanding rate ofincarceration of individuals with mental health problems and/or mental illnesses to thelack of a national mental health strategy for Canada. It stresses the importance ofdeveloping a strategy to assist the vulnerable men and women who come into conflictwith the law.British Columbia Mental Health and Addiction Services, an agency of the ProvincialHealth Services Authority, was commissioned and funded by the International Centrefor Criminal Law Reform and Criminal Justice Policy as well as CSC, to undertake areview of minimum standards and best practices in relation to the provision of mentalhealth and substance use services in correctional settings. Livingston (2009) produceda report entitled: Mental Health and Substance Use Services in Correctional Settings: AReview of Minimum Standards and Best Practices which identified further work requiredin relation to mental health practices in the criminal justice system. Although the reportisolated mental health and substance use problems, it recognized the importance ofusing a holistic approach to service delivery. This review revealed a considerable bodyof literature in relation to service standards and best practices in correctional settings.The conceptual framework used in the review was intended to serve as a guide to1The following correctional jurisdictions were represented: Yukon Territories, Northwest Territories, Nunavut,British Columbia, Alberta, Saskatchewan, Manitoba, Ontario, New Brunswick, Nova Scotia, Prince Edward Island,Newfoundland & Labrador and Correctional Service of Canada.4
inform decision-making in correctional settings. This report was instrumental in thedevelopment of the Mental Health Strategy for Corrections in Canada.In 2009, the MHCC published a document entitled Toward Recovery & Well-Being: AFramework for a Mental Health Strategy for Canada. The purpose of this document wasto provide a framework to guide the development of a balanced, comprehensive, andperson-centred mental health strategy which can be applied to the many and variedcontexts in Canada. The framework set out a plan for building a mental health systemthat will foster and nourish the strengths, capacities, and resources of individuals andcommunities, while lessening or removing the obstacles and barriers that stand in theway of achieving the best possible mental health for everyone. This document wasinfluential in leading the way to the production of the Mental Health Strategy forCorrections in Canada.5
Legal FrameworkThe Canada Health Act (CHA) is federal legislation for publicly funded health careinsurance. The CHA sets out the primary objective of Canadian health care policy,which is, "to protect, promote and restore the physical and mental well-being ofresidents of Canada and to facilitate reasonable access to health services withoutfinancial or other barriers” (1984, c.6, s.3.). Canada has a national program that iscomposed of fourteen interlocking federal, provincial and territorial health insuranceplans, all of which share certain common features and basic standards of coverage. Asframed by the CHA (1984), the principles governing our health care system are symbolsof the underlying Canadian values of equity and solidarity.Roles and responsibilities for Canada's health care system are shared between thefederal and provincial-territorial governments. Under the CHA (1984), provincial andterritorial governments are responsible for the management, organization and deliveryof health services to residents of their provinces or territories. This includes individualsincarcerated in provincial and territorial institutions, and all individuals serving asentence in the community; however, inmates in federal penitentiaries are excluded.For these inmates, CSC is required by statute, “to provide essential health care,including medical, dental and mental health care, and reasonable access to nonessential mental health care that will contribute to the inmate‟s rehabilitation andsuccessful reintegration into the community” (Corrections and Conditional Release Act[CCRA], 1992, c.20, s.86).As part of this regime, all federal, provincial and territorial correctional jurisdictions areresponsible for the care of individuals with mental health problems and/or mentalillnesses in their facilities. There are safeguards for individuals in correctional systemsto ensure they are provided with access to essential services and supports.One of these safeguards is the existence of internal redress mechanisms. Correctionaljurisdictions in Canada respect the rule of law and the rights of offenders by providingsuch mechanisms and by recommending corrective action in cases where there ismistreatment or injustice, such as instances with respect to the provision of health care.Although Canada does not have a single national legislative ombudsman, nineCanadian provinces and one territory have parliamentary ombudsmen, who receive andinvestigate public complaints, including those concerning provincial and territorialcorrectional systems. In addition, there are Patient Advocates in several Canadianprovinces and territories which act as a support structure to ensure optimal delivery ofhealth services and may act as a liaison between a patient and their health careprovider(s). In the federal sphere, the Correctional Investigator, mandated by Part III ofthe CCRA (1992), acts as an Ombudsman for federal offenders. The primary function ofthe Office of the Correctional Investigator (OCI) is to conduct investigations into theissues raised by offenders that affect them either individually or as a group.6
Vision“Building Wellness along the Continuum of Care: Connecting Services”Individuals in the correctional system experiencing mental health problems and/ormental illnesses will have timely access to essential services and supports to achievetheir best possible mental health and well-being. A focus on continuity of care willenhance the effectiveness of services accessed prior to, during, and after being in thecare and custody of a correctional system. This will improve individual health outcomesand ultimately contribute to safe communities.IntroductionOne in five Canadians will experience a mental illness (Health Canada, 2002). Amongthose, two out of every three adults who need mental health services/treatment do notreceive it because of the stigma associated with mental illness (MHCC, 2009). Mostpeople with a mental health problem and/or mental illness do not come into contact withthe criminal justice system and thus are not incarcerated. However several populationswith higher prevalence rates of mental illnesses such as psychosis, depression, anxiety,and substance-related disorders are over-represented in Canada‟s correctional facilities(Canadian Institute for Health Information [CIHI], 2008).In Canada, the responsibility for the care and custody of an individual eighteen years ofage and older is determined at the time of sentencing. Individuals convicted andsentenced for less than two years and those on remand awaiting trial are referred tocustody and/or community supervision programs under the jurisdiction ofprovincial/territorial authorities, whereas individuals sentenced to two years or more fallunder the mandate of CSC. Correctional jurisdictions have a mandate to managecomplex populations with varying needs, including individuals with mental healthproblems and/or mental illnesses.Whether an individual has been previously diagnosed and/or treated for a mental healthproblem and/or mental illness, or whether it is their first point of contact for mentalhealth treatment after becoming involved with the correctional system, there is acommon desire in the mental health and justice systems provincially, territorially, andfederally that correctional jurisdictions will provide timely, appropriate, effective andperson-centred mental health services. This is best achieved by using evidence-basedpractice to promote and support the safe transition and mental health of individuals witha mental health problem and/or mental illness upon return to the community and beyondsentence completion.Individuals with mental health problems and/or mental illnesses often have previouspoints of contact with multiple systems, including provincial/territorial and federalcorrectional jurisdictions, health care institutions, and social services. All systems havea shared mandate to provide an integrated approach of active client engagement,stability, successful community integration, and overall harm reduction in ways whichare sensitive to diverse individual and group needs. Integrated efforts with the “commonclient” will result in fewer justice system contacts and increase public safety.7
The Mental Health Strategy for Corrections in Canada is comprised of two parts: theFramework and the Strategic Priorities. The Framework forms the foundation for theStrategic Priorities (Knowledge Generation and Sharing, Enhanced Service Delivery,Improved Human Resource Management; and Building Community Supports andPartnerships), and the implementation of the actions required to realize the ExpectedOutcomes as described for each of the seven key elements: Mental Health Promotion,Screening and Assessment, Treatment, Services and Support, Suicide and Self-InjuryPrevention and Management, Transitional Services and Support, Staff Education,Training and Support and Community Supports and Partnerships.The Strategic Priorities are an ambitious multi-year undertaking. There will be variationsin the initiation and completion of the identified plans and expected outcomes dependentupon the capacity of the respective correctional jurisdictions. Specific plans for each ofthe Strategic Priorities will be identified annually.A Glossary on page 21 provides clarification of terms found throughout the document.8
Part IThe FrameworkThe Framework for the Mental Health Strategy for Corrections in Canada is consistentwith the goals and principles outlined in the 2006 United Nations (UN) Convention onthe Rights of Persons with Disabilities in particular to, “ensure and promote the fullrealization of all human rights and fundamental freedoms for all persons with disabilitieswithout discrimination of any kind on the basis of disability,” which would also extend toindividuals within the care/ custody of correctional systems (a.4, s.1). This is consistentwith the goals and principles outlined in Toward Recovery & Well Being: A Frameworkfor a Mental Health Strategy for Canada (MHCC, 2009).The focus of the Framework is to ensure that when individuals with mental healthproblems and/or mental illnesses are involved with the correctional system, anemphasis is placed on providing an opportunity to engage these individuals to ensurecontinuity of established treatment plans, to develop and implement new treatmentplans, and to integrate the mental health services received in correctional settings withcommunity-based treatment and follow-up services.Guiding PrinciplesThe following outlines Guiding Principles for the delivery of effective continuity of mentalhealth care for individuals in correctional systems. Individuals with mental health problems and/or mental illnesses are providedaccess to services irrespective of race, national or ethnic origin, colour, religion,age, sex, sexual orientation, marital status, family status and disability (CanadianHuman Rights Act, 1977, c.33, s.11). Mental health services are client-centred, holistic, culturally sensitive, genderappropriate, comprehensive, and sustainable. Mental health care is consistent with community standards. The role and needs of families in promoting well-being and providing care arerecognized and supported. Prevention, de-escalation of behaviours associated with mental health problemsand/or mental illnesses, interventions, and other mental health activities/servicesare critical to minimizing and managing the manifestations of mental healthsymptoms and promoting optimal mental well-being. Promotion of mental health recovery is a grounding philosophy underpinning thecontinuum of care.9
Meaningful use of time, including participation in programming for individuals withmental health problems and/or mental illnesses, is critical to their becomingcontributing and productive members of the community. In addition to their involvement in correctional systems, individuals with mentalhealth problems and/or mental illnesses experience a compounded stigma thatcreates barriers in their ability to obtain services, and also influences the types oftreatment and supports received, reintegration into the community and theirgeneral recovery. Mechanisms are established to ensure ongoing evaluation of the effectiveness ofmental health services throughout the continuum of care.10
Key Elements and Expected OutcomesThis section presents the key elements and expected outcomes for an effectivecontinuum of care for individuals with mental health problems and/or mental illnesseswithin correctional systems.1. Mental Health PromotionThe effective delivery of mental health services along the continuum of care is realizedin an environment that promotes wellness, prevents illness and makes active efforts toreduce stigma.Expected Outcomes1. Information/Resources for Individuals Within Correctional SystemsIndividuals are provided with information/resources2 about services andactivities within the correctional system to improve their mental, emotional,and social well-being.2. Information/Resources for dedwithinformation/resources aimed at reducing the stigma associated withindividuals with mental health problems and/or mental illnesses, in order toincrease meaningful interactions with this population.3. Support NetworkInformal relationships with friends, family, co-workers, and others aresupported and fostered, recognizing their vital role in maintaining theindividual‟s positive mental health.2This could include, but is not limited to the following: fact sheets, guides or toolkits.11
2. Screening and AssessmentEarly identification and ongoing assessment of mental health needs 33of individuals isessential for providing appropriate support and treatment for those who are at risk ofharming themselves or others, for commencing timely treatment, and for informingplacement and correctional planning.Expected Outcomes1. Initial ScreeningScreening is provided by a trained staff member4 to all individuals uponarrival at the correctional facility in order to identify mental health problemsand/or mental illnesses and to assist in identifying placement andsupervision needs of individuals.2. Ongoing EvaluationMechanisms are established to ensure the ongoing evaluation andidentification of current and emergent mental health problems and/ormental illnesses among individuals along the continuum of care, withparticular attention provided to those in more restrictive environments.3. Comprehensive AssessmentIndividuals who are identified as exhibiting behaviours indicative of mentalhealth problems and/or mental illnesses are referred to and followed-up bya qualified and competent health care professional for a comprehensivemental health assessment.4. Referral for ServiceIndividuals with mental health problems and/or mental illnesses whorequest or are assessed as needing treatment will have access toappropriate services in a timely manner; the nature of the illness willdetermine the urgency of the treatment referral.3Mental health needs would also include cognitive deficits.The staff member would be trained according to the requirements of the mental health screening protocol beingused.412
3. Treatment, Services and SupportsA range of appropriate and effective mental health treatment and adjunct services isessential to alleviate symptoms (including risk of self-injury and suicide), enhancerecovery and well-being, enable individuals to actively participate in correctionalprograms, and for safer integration of individuals with mental health problems or mentalillnesses into institutional and community environments.Expected Outcomes1. Information about ServicesUpon admission to a correctional facility, individuals receive timely andaccurate information regarding available mental health services.2. Staff QualificationMental health treatment, services, and supports are provided by healthprofessionals who deliver such services.3. Treatment PlanIndividualized treatment plans are written and regularly reviewed by healthprofessionals for individuals with mental health problems and/or mentalillnesses. A collaborative approach is used with individuals to optimizeengagement in the treatment process.4. Mental Health and Substance UseIndividuals with mental health problems and/or mental illnesses as well asa substance-related disorder will have access to a continuum of mentalhealth and substance use services, either in the correctional facility or inanother appropriate therapeutic setting.5. Access to MedicationIndividuals with mental health problems and/or mental illnesses haveequitable and timely access to medication as clinically appropriate.6. Emergency ServicesIndividuals have prompt access to emergency mental health services asrequired.7. EnvironmentIndividuals with acute or chronic mental health problems and/or mentalillnesses are placed in an environment that offers a therapeutic milieu withthe appropriate level of support.8. Equivalence of CareIndividuals with mental health problems and/or mental illnesses will haveaccess to community standards of care.13
4. Suicide and Self-Injury Prevention and ManagementA comprehensive approach to the prevention and management of suicide and self-injuryis essential for managing the increased risk of suicide and self-injurious behaviouramong individuals in the correctional system. Early identification of risk for suicide orself-injury is important in establishing mental health treatment, monitoring and supportplans, as well as for placement considerations. Staff are trained to identify symptomsand factors that may indicate an elevated risk for suicide or self-injury, and to interveneappropriately.Expected Outcomes1. ScreeningPotential risk for suicide and self-injury is screened at intake.2. AssessmentIndividuals at risk for suicide or self-injurious behaviours are referred to amental health professional for assessment.3. MonitoringIndividuals at risk for suicide or self-injurious behaviours are monitoredaccording to their level of risk.4. TreatmentIndividuals at risk for suicide or self-injurious behaviours receive mentalhealth services in an appropriate and timely manner.5. HousingIndividuals at risk for suicide or self-injurious behaviours are housed insafe environments that maximize interaction with staff and others, andminimize experiences of isolation.6. Suicide PreventionCorrectional staff are trained to recognize and intervene when there areverbal and behavioural cues that indicate risk for suicide.14
5. Transitional Services and SupportsDedicated transitional services are required to support a seamless continuity of carefrom the community to the correctional system and upon return to the community.These services will be provided during the pre-sentence period, at the time of intake,within and between institutions, and upon release to the community, with an emphasison connecting with community resources.Expected Outcomes1. Transitioning from the Community to the Correctional SystemTreatment plans are continued, where appropriate, for individuals withmental health problems and/or mental illnesses who are entering thecorrectional system.2. Transition Plan for Reintegrating into the CommunityIndividuals with mental health problems and/or mental illnesses accessingcontinued care are provided with a written transition plan that identifiesappropriate and available community resources prior to theirrelease/transfer from a correctional facility or at completion of sentence.Prior to the end of the sentence, staff establish contacts with communityresources to enable a smooth transition to community mental healthservices.3. Continuity of MedicationIndividuals with mental health problems and/or mental illnesses who havebeen prescribed psychiatric medications in the community have theirtreatment plans reviewed when entering a correctional system. Whenindividuals leave a correctional system, those requiring ongoingpsychiatric medication are provided with a sufficient amount until they canreasonably be expected to obtain community mental health services.15
6. Staff Education, Training and SupportStaff require ongoing support as well as comprehensive education and training inmental health to enhance their well-being, knowledge, and skills to interact effectivelyand provide appropriate support for individuals with mental health problems and/ormental illnesses.Expected Outcomes1. Staff Education/TrainingCorrectional staff are trained to recognize and respond to mental healthproblems and/or mental illnesses. Mental health staff are supported intheir ongoing professional development.2. Suicide PreventionCorrectional staff are trained to recognize and intervene when there areverbal and behavioural cues that indicate potential suicide risk.3. SupportStaff support will be available for those working with individuals withmental health problems and/or mental illnesses.7. Community Supports and PartnershipsOutreach initiatives to build relationships with partners are essential to optimizeindividual mental health and well-being, enhance continuum of care, and contribute tothe shared responsibility of public safety.Expected Outcomes1. Correctional, Government and Non-Government PartnersPartnerships are developed between correctional jurisdictions,government partners (including regional health authorities), communityservice providers and non-government organizations (NGOs) to addressfactors that may affect individuals‟ mental health and well-being.2. Developing Community CapacityPartnerships with local, regional and national stakeholders will beencouraged and supported to be responsive to the needs and interests ofindividuals with mental health problems and/or mental illnesses.16
Part IIStrategic PrioritiesIntroductionPart I (the Framework) establishes the foundation for the Mental Health Strategy forCorrections in Canada and Part II (Strategic Priorities) builds on the Framework towardsthe realization of the Expected Outcomes associated with each key element. Both theFramework and the Strategic Priorities reflect national consultations, completed bycorrectional jurisdictions, with staff, stakeholders and offenders.PrioritiesThe Strategic Priorities identify the priority areas for work over the next five years inorder to improve all jurisdictions‟ performance against the key elements outlined inPart I:1. Knowledge Generation and Sharing;2. Enhanced Service Delivery;3. Improved Human Resource Management; and4. Building Community Supports and Partnerships.Specific plans for the implementation of each of the Strategic Priorities will be identifiedannually.1. Knowledge Generation and SharingKnowledge is generated through ongoing research of international and nationalbest and promising practices in the area of mental health and the law. Thegeneration and subsequent sharing of knowledge leads to effectiveness in theother areas of this Strategy, specifically Enhancement of Service Delivery,Improved Human Resource Management and Building Community Supports andPartnerships.2. Enhanced Service DeliveryService Delivery refers to the activities throughout the continuum of careincluding: screening and assessment, treatment, support and ser
The Canadian Mental Health Association (2009) attributes, in part, the expanding rate of incarceration of individuals with mental health problems and/or mental illnesses to the lack of a national mental health strategy for Canada. It stresses the importance of developing a strategy to assist the vulnerable men and women who come into conflict
Administrator, Correctional Assistant Superintendent IV, Correctional Assistant Superintendent of Programs II, Special Affairs Captain, Correctional Programs Director I, (3) Correctional Programs Supervisor, (4) Correctional Captain II, (6) Correctional Lieutenant II, (24) Correctional Sergeant II, (10) Lead Correctional Officer II, (1 77 .
The staff consisted of: Correctional Facility Administrator, Correctional Assistant Superintendent V, Correctional Assistant Superintendent of Programs II, Correctional Programs Director II, Correctional Programs Director I, (6) Correctionl Captain III, (6) Correctional Lieutenant III, Lead Correctional Officer II, (36)
regional commissioner: correctional services: eastern cape; private bag x 9013, quigney, east london 5200; tel (043) 706 7866 fax (043) 722 1056 department of correctional services: eastern cape region appointments under the correctional services act. head: correctional centre
Eastern Kentucky University Department of Correctional Services and American Correctional Association. A limited number of copies of the Correctional Monograph from the National Correctional Trainers Conference and the Correctional Symposium: Corrections in Transition are available to individuals, libraries and institutions. The
500 North Calvert St. 4th Floor Correctional Services Baltimore, MD 21202 300 East Joppa Road, Suite 1000 Towson, MD 21286 . 2 Department of Public Safety and Correctional Services Highlights . Eastern Correctional Institution - East Eastern Correctional Institution - West .
Mar 19 - 25 Graceville Correctional Facility Graceville, FL Mar 26 - Apr 1 Gulf Correctional Institution Wewahitchka, FL Apr 2-8 Holmes Correctional Institution Bonifay, FL Apr 9-15 Jackson Correctional Institution & Jackson Juvenile Offender Correctional Center Malone, FL Marianna, FL Apr 16-22 Northwest Florida Reception Center & Annex
The Santa Clara County Correctional Peace Officers' Association, Inc., (hereinafter "Association") and representatives of the County of Santa Clara have met and conferred . Correctional Officer; when it states Sheriff's Correctional Sergeant, it also refers to Correctional Sergeant. 1.2 Recognition of Definition of County Business Days
Figure 1 n: A example of agile software development methodology: Scrum (Source: [53]) 2013 Global Journals Inc. (US) Global Journal of Computer Science and Technology Volume XIII Issue VII Version I
