Archived Content. Contenu archivé

Transcription

1 ARCHVED - Archiving Content ARCHVÉE - Contenu archivé Archived Content Contenu archivé nformation identified as archived is provided for reference, research or recordkeeping purposes. t is not subject to the Government of Canada Web Standards and has not been altered or updated since it was archived. Please contact us to request a format other than those available. L information dont il est indiqué qu elle est archivée est fournie à des fins de référence, de recherche ou de tenue de documents. Elle n est pas assujettie aux normes Web du gouvernement du Canada et elle n a pas été modifiée ou mise à jour depuis son archivage. Pour obtenir cette information dans un autre format, veuillez communiquer avec nous. This document is archival in nature and is intended for those who wish to consult archival documents made available from the collection of Public Safety Canada. Some of these documents are available in only one official language. Translation, to be provided by Public Safety Canada, is available upon request. Le présent document a une valeur archivistique et fait partie des documents d archives rendus disponibles par Sécurité publique Canada à ceux qui souhaitent consulter ces documents issus de sa collection. Certains de ces documents ne sont disponibles que dans une langue officielle. Sécurité publique Canada fournira une traduction sur demande.

2 prepared for jlimmilt. effnifildblip Mktde Jane Miller-Ashton Director Native and Female Offender Program Correctional Service of Canada Ministry of the Solicitor General submitted by Carol Faulkner * Lyon St, Ottawa 8-98.C87 P3 989 tel: (63) April,989.

3 cis Memoltep tide SOLCTO ( NEkL canada NOV g, Ur:,r.'" 993 K A,. prepared for Jane Miller-Ashton Director Native and Female Offender Program Correctional Service of Canada Ministry of the Solicitor General submitted by Carol Faulkner * Lyon St, Ottawa tel: (63) April,989.,..opyright of this document does not belong to any Proper intended authorization use must be obtained from the the author for Crown. Da Les droits d'auteur dn ---'- s Pe ' '

4 pug ntroduction nuit Offenders from the Northwest Territories 2 nuit Offenders from Arctic Quebec 3 nuit Offenders from Labrador 9 nuit Women Serving Federal Sentences 2 Summary and General Recommendations 3 Appendix nuit Cultural Profile 7 Appendix 2 Bibliography 20

5 ntroduction This study was initiated by the Native Offender Program of the Correctional Service of Canada in response to the recognition that the needs of nuit offenders may vanj from those of other offenders, including those of other aboriginal people. The issue was placed in the forefront due to the recent publication of the Elport of the Task Force on Aboriginal Peoples in Federal Corrections and to the Department's on going participation on the limit, Adyison_pooriLmL,Justice established by Justice Quebec end the nuit of Arctic Quebec. An eighteen day study was commissioned to "identify problems which are unique to nuit offenders or which occur et a significantly higher rate among nuit offenders than among other offender groups" end "to identify and describe options for meeting these identified needs of nuit offenders". The study was also to include an nuit cultural profile. This study was carried out by reviewing recently published literature and by interviewing people working with Federal nuit offenders. Visits were made to Saskatchewan Penitentiary, La Mecaza nstitution and the Labrador Correctional Centre. The occupancy statistics in this study are based on the Native Population Profile Report 2/3/88. At this time there are 48 nuit inmates serving federal sentences in 7 different institutions. Two are women. When addressing the needs of such a small number of people, it must be understood that this study represents a snapshot view of the present situation and that observations are current. This report will review the situation in the three different provincial/ territorial jurisdictions which cover the home base for the nuit- The Northwest Territories, Arctic Quebec end Labrador. A composite case study from each area will be presented along with information on programs and services. Specific recommendations will follow. The report will then comment on the situation pertaining to women, followed by a more general overview and further recommendations. The nuit cultural profile will be part of the appendix as it does not directly relate to the recommendations. As many of the recommendations come from the various people inter-viewed and as many of them are based on general observations, it is felt that it is

6 important for this short report to be read in its entirety. Consequently, an executive summary will not be found. Backaround. nuit Offenders from the Northwest Territories Approximately 20,000 nuit live in the Northwest Territories. Although the dialects vanj, the native language is nuktituk. The younger generation usually speak English as their second language and,in some cases, younger people have lost their knowledge of nuktituk. Twenty-seven nuit from the Northwest Territories are serving federal sentences. Twenty are housed in the Prairie Region in 5 different institutions and one is in Ontario. Six federal inmates are in the territorial institution in Yellowknife. Four nuit inmates from Saskatchewan Penitentianj were interviewed for this study. They were between the ages of 24 and 29 and were sentenced for sexual offense or manslaughter charges end had previous criminal records. All crimes had been alcohol related end all of these men had a history of substance abuse including the sniffing of gasoline as teenagers. Two of the inmates had come from lqualuit in the Eastern Arctic and two were from the Western Arctic. All of them spoke nuktituk as their first language but one person felt that he had lost his language. None of them felt that communication was a problem in the institution as they had a good knowledge of written and spoken English. Two of the nuit inmates were actively participating in programs run by the Native Liaison Officer and the Elder and attended AA meetings. One offender participated in a computer program while another went to school. Although they were pleased with the program, they commented on the fact that ndien culture was different from theirs. The other two inmates appeared to be unwilling to participate in programs and lack of knowledge seemed to cause them to be concerned about the impact of participation upon their security classification. All of the men were enthusiastic about the sports in the institution which, on occasion, included some nuit games. None of these people had visitors and they spoke of being homesick and of being incredibly lonely. There was some contact with home through letters 2

7 end phone calls. However, phone calls are dependent on a family member being prepared and able to accept the charges. As part of being homesick ithese inmates expressed a strong desire to be with other nuit and to eat the foods to which they were accustomed, especially caribou meat. They spoke of serving time closer to home end, even though it is not an nuit community, they would have preferred Yellowknife as many nuit live and work there. However, the drawbacks of the Yellowknife Correctional Centre are the lack of programming and long periods of lock le)itc /t. Ôt, ^ e tee ee. zee, e,5c eceetà..e, cer,-.0, p For all of these men their release date was a long wag off and none of them had thought through any plans. With the exception of one who felt that he could not return to his community and would therefore stay in Southern Canada, they all wanted to return home. However, they seemed to have little understanding of parole or of how to work towards their eventual release. Several staff members of the Saskatchewan institution were interviewed. Although it would be fair to say that they had little knowledge of the nuit culture, they were open to discussion and willing to explore changes. t has to be noted that there are 4 nuit inmates in a prison population of 400. nuit inmates were not assigned to one case manager nor will they be under the new Unit Management System.. Although some of the staff have attended Native Awareness Training, it has not been specific to nuit. Staff spoke of problems with communication and of frustration with release planning. Resources are so limited in the communities to which they are to return that there is little program follow through especially for someone on prescribed medication while in the institution or in a substance abuse program. With the exception of sports, program adjustments at Saskatchewan Penitentiary are not made for the nuit inmates. There is no reading or audio visual material in their native language. Although it is possible for nuit inmates to make video recordings to send home, they were not aware of this program. (The families of the four inmates had access to a home video machine although making a return video would be more difficult.) They have no choice but to eat southern foods. A Native Liaison worker and en Elder are woricing on contract et the Saskatchewan Penitentiary. Again, these people do not have specific knowledge of the nuit culture but they are sensitive to cultural needs and the problems of operating in a second language. Also, they have the time to 3

8 si wor-k with nuit inmates. Parole planning and supervision is provided throughout the Northwest Territories under the direction of a parole officer based in Yellowknife. He had previously been working in Saskatchewan Penitentiary and, as he has been on the job for several gears, he has gained experience through extensive travel and first hand knowledge. A quick look at a map of Canada will remind the reader of the vast territory that he has to cover. Parole supervision in the small communities is provided by the Territorial Department of Social Services which means that supervisors are often nuit. However, they have to cope with the frustration of limited resources and the presence of other social problems mainly related to substance abuse. There are two residential addiction programs based in Yellowknlfe but they are not nuit specific nor is anything located close to their home communities. t is important to return to the statistics of nuit serving federal sentences and to link them with the number of native people from the Northwest Territories serving federal time. As of December 3, 966, the breakdown of federal beds is as follows: Northwest Territories Prairie Region Pacific Region Ontario Region nuit ndianitletis 5 2 Accordingly, Correctional Services is housing 45 federal nuit and ndien the Northwest Territories with 34 beds in 6 different federal inmates from institutions and in the territorial institution. t is understood that the Exchange of Service Agreement contracts for 30 beds. As of December 988, were being utilized. n terms of meeting needs closer to home, the federal gove rnment's usage of 45 beds would justify a small institution in the Territories or a component of a territorial institution. 8 nterview with Peter Conroy, Correctional Services Canada, Yellowknife, N.W.T. Apr

9 a t is recommended. that when southern placement is required, nuit offenders be / concentrated in as few institutions as possible with the V personnel end program resources being geared to meet their cultural needs; 2. that regular programming from the nuit Broadcasting Corporation be obtained end made available to the inmates on a weekly basis; 3. that a community member from the Western end the Eastern Arctic separately be appointed to the National Parole Board on a pert time basis end be present for all hearings of nuit offenders; * The above recommendations involve little structural change and minimal costs and could be implemented immediately. On the other hand, the following recommendations require dramatic change end long term planning. à /4. that appropriate physical facilities with programs for V long term offenders be developed in the Northwest Territories for nuit inmates end # v A, febert 4., " Y227(4-5. that consultation take place directly between The Parole / Board, Correctional Service of Canada end the Municipal V Community Councils (through the Territorial Government) in order to develop a comprehensive and realistic approach to the "mission of parole and its relevancy to nuit communities. (A)Ltk a it, b- 7ce-' nuit Offenders from Arctic Quebec Beckground Approximately 6,000 nuit live in Arctic Quebec in whet is now known es the Nunavik Regional Territory and is located above the 49th parallel. This jurisdiction is covered by The James Bay and Northern Quebec Agreement 5

10 which was signed in 976 and is administered by the Makivik Corporation. As part of the follow-up negotiations on the implementation of this agreement, the nuit have submitted a 'Proposai on the Administration of Justice. The nuit believe that their people have the right to be detained n small institutions within their Territory providing that the nstitution is adequate.2 Correctional Service is presently participating on the nuit Advisonj Board on Justice and has yet to develop its position on itsobligations. According to the most recent statistics, 9 nuit from Nunavik are serving federal sentences. Seven men are housed in six different institutions and 2 women are in Tanguay Provincial nstitution. n fact, when the interviews were conducted at the end of March, 989, there were 3 inmates at La. and one inmate had just been transferred to Port Cartier. Macaza The three inmates at La Macaza were interviewed for this study. They were between the ages of 23 and 32 and were sentenced for sexual assault, break and entry and manslaughter. Two of the crimes had been alcohol related and the other cocaine related. Two of the men had a lengthy history of substance abuse while all three had experienced gasoline sniffing. Only one had a previous criminal record. Two of the men were from the community of Kuujjuaq (Fort Chimo) while the other was from Povungnituk. All of them spoke nuktituk as their first language and had a good knowledge of spoken and written English. Two were able to speak a little French. As most of the other inmates and some of the staff were unilingual francophone, communication in the institution was seen as a problem. All three nuit offenders were actively participating in programs and spoke highly of the sports, which always seemed to be available in the institution, and of their relationship with the psychologist. All three attended the Native Group meetings which included an alcohol treatment program component. One inmate had completed his high school through up-grading in the institution and was now participating in a community program of working with developmentally disabled people. The other 2 inmates had participated in a special native education program which had recently been cut and were now working in the print shop and on cleaning. One of these men had been visited by his wife but had no privacy for an afternoon visit. The other 2 inmates have never received visitors. Visits only appeared 2 The James Bey end Northern Quebec Agreement,Editeur officiel du Quebec 976. P.305 6

11 possible if family members were to come south for medical reasons as otherwise they just could not afford the fare. All the inmates communicated regularly with their families through letters and telephone calls. One inmate was very upset es he had not been allowed to attend a close relative's funeral. He felt that it was not understood how important this was in his culture and that his family would not understand why he was not there. Again, these nuit spoke of missing their native foods and how happy they were when the Native Liaison worker was able to obtain dried caribou from their families. One man spoke of his need for translation services whenever something complicated surfaced that was to effect his future and also of his need to speak more often in his own language. All three nuit had thought through their release plans with one choosing to remain in the south. The other two wanted to retu rn home but were unsure of how they would deal with the constant presence of alcohol in their communities and wished that there was a half-way house in the north to which they could be released. As the visit to La Macaza was in the evening, it was not possible to interview any staff members. However, it was encouraging to note that the nuit inmates commented so favourably on the sports program, the work of the psychologists, some of the living unit staff and the ex-teacher. A Cine- Club is in existence and has made it possible to receive two five hour tapes from the nuit Broadcasting Corporation once a month and relevant films from the National Film Board. The school teacher was laid off due to lack of funds and the smell number in her class. Also, she said that her program did not 'make good statistics' es she could not bring her students to the secondary level quickly enough. However, she has visited northern communities and was able to obtain appropriate materiel for her classes from the Katavik School Board Literacy Program. She is presently on contract to the institution for teaching English es a second language to the staff. The Native Para-Judicial Services of Quebec provides court services in the Nunavik Territory through two nuit court workers and they provide native liaison services to the Federal nstitutions in Quebec. The Native Prison Liaison Officer has been effective in providing individual attention to the members of the Native group at La Maceze. She has managed to bring in dried caribou on occasion and she hes supplied reading materiel in nuktituk. 7

12 The native group is composed of both nuit and ndian inmates and this poses a problem as many of the ndians operate in French as their second language. Also, due to a staff change the alcohol program has not operated for five months and when it resumes it will be on a bi-weekly basis which seems limiting. The prison liaison officer is providing service to six federal institutions and has to rely on public transportation. nuit offenders make up a Quarter of her caseload. Although she has no nuit-specific training she has learned from on the Job experience and she is able to use the nuit courtworkers es a constant resource. She has one nuit on her caseload who is serving time in Cowansville. He is an older man and only speaks nuktituk. t would appear that placement is based primarily on length of sentence and security classification. Release planning appears very problematic with early release and Temporary Absence Passes being uncommon for nuit inmates3. Parole supervision for the whole area is carried out by one person from outside of the community and resources are almost non-existent. The Community Correctional Centre and half-way houses in the south are isolating for nuit and are predominately French speaking. Substance abuse remains as the overwhelming problem of coping for the parolee. t is recommended 6. that all federal nuit inmates from Nunavik Territory be housed in one institution, La Macaza being the obvious one at this time; 7_ that, providing there is one lnuk in need, an education program specific to the nuit needs be provided; 8. that space be provided for private family visits when and if they should occur; 9. that an nuktituk interpreter, who is familiar with the correctional and parole systems, be retained for translation services on an on going part time basis; 3 nterview with Luke Otter, Native Liaison Worker, Native Para-âxticial Service of Que. March989. 6

13 0 that a substance abuse program be provided to nuit inmates on a weekly basis as a minimum;, *The above recommendations nvolve little structural change and minimal costs and could be mplemented immediately. On the other hand, the following changes require dramatic change and long term planning.. that Correctional Service of Canada, with the nuit Advisory Board on Justice, actively explore the establishment of a residential custodial substance abuse program which serves provincial, federal and perhaps prevention cases in the Nunavik Territory and 2. that consideration be given to the contracting out of the / delivery of parole supervision to nuit courtworkers already established in the Nunavik area. nuit Offenders from Labrador Background Approximately 2,200 nuit live in Northern Labrador. The native language is nuktituk but in manu cases English is the first language for school age children4. These nuit share the same status as other residents of the Province of Newfoundland., is Eleven nuit from Labrador are serving federal sentences. Considering the small population this is a high number. Four are housed in three different federal institutions in the Atlantic Region while seven are inmates of the Provincial Labrador Correctional Centre in Happy Valley., Two nuit from the Correctional Centre were interviewed for this study and were 24 and 37 years old with their crimes being sexual assault and assault with a deadly weapon. Both offenses were alcohol related and both inmates ' had a long history of alcohol abuse, including glue and gasoline sniffing. Both had a previous criminal record. One came from the community of Nain 4nterviev with Jack Wage, Director, Labrador Regional School Board, Happy Valley. March

14 while the other nuk was from Hopedale. nuktituk was their first language but they could speak and write English. There were, however, two other inmates who only spoke nuktituk. Both of these inmates attended 7 Steps and AA meetings. However, the AA meetings were not regular. One also participated in Bible study. Recreational activities included sports which were sometimes held outside of the grounds. They had been on several ice fishing expeditions and the fish were later cooked for them. Except for the summer months, they were able to attend a social evening at the Native Friendship Centre one night a week plus another social evening was held within the institution on a weekly basis. One of the inmates was woricing in the carpentni shop while the other was working as a mechanic. Both of them enjoyed their work but, unlike the federal system, there was no financial remuneration. Their only means of earning money was through carving. Tobacco, matches and stamps were provided at no cost. These inmates were receiving occasional visitors as people came to Happy Valley from their home towns, usually for medical reasons. No counselling services were available to these inmates and it is apparent that little assistance was provided in the area of substance abuse or sexual abuse. They were unhappy about the long-lock up periods on Sundays when they hed to spend most of the dey in their cells. Also, daily outdoor exercise was not a given and seemed to depend on staffing patterns. The nuit inmates were able to watch nuit programs on television once a week. However, they were not provided with visual or written material in their own language and they said that they missed seal and caribou meat. One of the nuit hed already been turned down for Parole and was now considering release to the residence run by the Friendship Centre. The other inmate was applying for parole to the Friendship Centre and wants to remain in Happy Valley. Their descriptions of their home environment portrayed high unemployment and extensive alcohol abuse within their family and among their friends. The Labrador Correctional Centre houses 38 inmates and, including the federal inmates, usually about half of the residents are nuit. The staff do not have any nuit-specific training although some of them have visited the northern communities. There is no formal arrangement for translation services but they are usually provided by Labrador Legal Services. There are no counsellors or psychologists on staff or on contract to the Centre. Nor 0

15 are there any programs for long term offenders. Housing federal offenders does not result n additional program funds coming into the Centres budget. The recidivism rate for nuits, both federal and provincial, has been calculated at 78%5. There is no citizens advisory committee for the Centre but the Labrador Corrections Committee has been formed in order to try and address native conce rns in the corrections system. The responsibility for both federal and provincial parole in Newfoundland is carried out by the Federal Government. There is no nuit representation on the Parole Board. Parole supervision and community assessments are carried out by Labrador Legal Services and they do have nuit employees. The Labrador Friendship Centre provides social, employment, counselling and residential programs in Happy Valley for nuit people. They do not have any employees who speak nuktituk. Professional people who were interviewed for this report all expressed extreme concern for the social problems of unemployment, alcohol abuse and family violence that exists in the communities of Northern Labrador. t is recommended *The recommendation with the most impact concerns Exchange of Service Agreements and will be found under the general recommendations. 3. that, in light of the fact that nuit offenders from Labrador who are serving federal sentences in federal institutions were not interviewed for this study, the recommendations for the Northwest Territories and Northern Quebec be considered and applied to the Atlantic Region and 4. that an nuit member from Labrador be appointed to the National Parole Board on a part time basis. 5 nterview vith Linde Anderson, Executive Director, Labrador Leal Services, Happy Yalley March 989.

16 nuit Women Serving Federal Sentences Two women from Arctic Quebec are serving federal sentences at Tanguay Provincial nstitution. At the time of this study, one is at large while the other woman is in the process of being transferred to Kingston Prison for Women. They both speak nuktituk with their second language being English. nuit women see the incarceration of their people, both women and men, as being an enormous problem. 6 As mothers of children who are sent south as.a form of punishment, they have little knowledge of the environment or concept of the correctionaliparole system in which their children are to be surviving for quite a few years. n the case of women offenders, t is believed that they have to contend with unfair treatment, the presence of male guards and racist treatment from other inmates 7 - The Board of Directors of the nuit Women's Association is representative of all nuit Women in Canada and the Association is beginning to attempt to address some of these concerns at a policy level. At the individual level it is believed that at the time of sentencing, all options must be examined in terms of how a woman, who is in trouble with the law, may have her situation enhanced rather than further corrupted. t is recommended 4. that a video tape be prepared in nuktituk and English to explain both the treatment of an nuk offender once she/he is sentenced and the parole process, and that this tape be distributed to those responsible for parole supervision in the nuit communities for the purpose of public education and 5. that the placement of federally sentenced nuit women be highlighted by Correctional Services as an area of concern and that, in terms of flexibility and resources, special case management be applied at the time of placement and that the native and female offender program serves as a resource base for extraordinary case work_ 6nterviev with Rhode Keyekjuelc, nuit Women's Associeton, Ottawa. April bid 2

17 5ummary end General Recommendations At the time of this study, forty-eight nuit from three provincial/territorial locations are scattered across the country serving federal sentences in 7 different institutions. During the lest decade, Correctional Services has addressed the needs of Aboriginal peoples and is making program adjustments on an ongoing basis. t is now realized that nuit are a distinct aboriginal people and that their cultural and geographical backgrounds are unique. n light of the recommendation in the Final Report Task Force on Abqr Peoples in Federal Corrections that -CSC provide programming specifically designed for nuit Offenders and in keeping with the Mission Statement of Correctional Services, it is timely to examine the situation of nuit who are incarcerated under federal sentences. The Canadian correctional system is not the only one to remove nuit people out of their homeland. With the best of intentions and until very recently, nuit were moved south for health care and education. The inappropriateness of this intervention is now recognized with the benefit of hindsight. Now it is Correctional Services Canada s turn! However, it it not an easy problem to resolve es it involves a small number of people who come under both the laws of their community and the laws of Canada. Solutions are not to be easily found. Yet, if the intent is there, the present situation can be adjusted to be more accommodating to nuit people and, on a long terrn basis, political changes can be sought through the established nuit political bodies. At this time it is necessanj for Correctional Services to commit itself to resources that enable its employees to work effectively with nuit inmates and parolees. This would prove to be less costly and more relevant if nuit inmates were placed in fewer institutions. Awareness training is one way of learning of another culture but it is important that managers seek out other opportunities and perhaps incorporate these es part of the employee's annual performance plan. A person who had actually visited en nuit community would have an advantage when relating to an nuk inmate. Northern conferences, escorted Temporary Absence Passes end short ter-m job twinning could be considered. With numbers being so small, it is probably best to identify a few staff people and then allow them to develop 3

18 their expertise. A great deal of the native cultural worc is contracted out to established native organizations. Although sensitive to cultural needs, most of their employees lack specific knowledge of the nuit culture and their programs are geared to the ndian inmates. t is difficult for Correctional Services to invest resources in these people as they are not their employees and as long term employment is less dependable. However, CSC may encourage contractors to gain additional experience by financially recognizing it as part of the contract. Substance abuse appears to be a constant factor related to crimes committed by nuit. This needs to be addressed at both the program level and release planning as well as in a broader social context. Also, when treatment in the institution of addictions or mental health involves medication, a closely monitored care program must be included as part of the release planning. At the moment, placement of federal nuit inmates in provincial nstitutions is a catch 22 situation. n some cases, cultural program needs are better met when nuits are incarcerated closer to home. On the other hand long term programs and appropriate counselling services are not in place. t could be argued that the intent of Nhelping them become lawabiding citizenee is not being met. t would appear that the monies obtained from the exchange of provincial/territorial beds enter the general coffers and are not applied to enhancing the institution where the federal inmate is to be housed. There appears to be no application of standards nor any evaluation of the physical plant or programs. n fact, one has to question whether or not the federal obligation is abdkated by these exchange of service contracts. t is recommended 6. that, while still in custody in a northern community and in advance of being moved south, the correctional and parole process along with the responsibilities and rights of the individual be explained to nuit offenders in their first emisson Statement of the Correctional Service of Canada, March

19 language; 7. that e resource bank of nuit students studying in the Prairie, Quebec and Atlantic Regions be developed and maintained in order that they meg be approached for volunteer visiting programs or summer or pert time employment; 8. that the institutional libraries be supplied with one nuktituk Bible written in syllabics end one in orthography, the weekly newspaper Nunetslaq News, the quarterly publication nuktituk News and other appropriate publications; 9. that bannock and frozen fish (arctic cher or trout) be offered on a weekly basis with caribou end seal meet being made available according to purchase regulations; 20. that a home visiting video program be activated with resources being made available, at no cost to the inmate or herihis family, in the institution and at a minimum of twice a year in the home community; that a video on nuit culture be made and distributed for 5 staff training purposes; 22. that native organizations providing services to the Correctional Service of Canada be encouraged to increase their knowledge of the nuit culture; 23. that Corectional Services of Canada develop a policy end procedure regarding the attendance of funerals for nuit / family members and publish it in lnuktituk and that funds be allocated to cover the implementation of this policy; 24. that, in order that the appropriateness of the placement of nuit inmates be monitored, the practice be a standing agenda item at Senior Management Committee meetings until a more satisfactory solution is found; 25. that a review of nuit inmates files be made in order to establish the number of parole applications considered 5

20 and the decisions rendered along with the rationale; 26. that, in stitutions where nuit inmates are to be housed in provincial or territorial institutions,exchange of Service Agreements include physical plant and program standards that reflect the needs of nuit end that these standards are monitored on an onging basis; 27. that, at the political and senior management levels, the Ministry actively pursue a public relations effort to dialogue with other ministries, public interest groups and nuit leaders on the social issues that result in the incarceraton of nuit in order that they can be addressed in a broader forum and seen as part of a continuum and 20. that an nuit member be appointed to the Native Advisory t/ Committee. *****************************************************

21 APPENDCES Appendix nuit Cultural Profile The Canadian justice system is foreign to the tradition, culture and homeland of the!nuit 9. Prison s an institution which is ntimidating to all of us yet t has been created by our society and without the participation of the nuit community. To work effectively with another cultural group, t is necessarg for us to learn about and understand the historical, geographical and social background of that group. t is not possible to determine the exact origins of the nuit but t is believed that the their ancestors crossed from Siberia to Alaska some 4000 years ago. 0 By 300 AD., the nuit culture had evolved and the coastal people began to move eastwards until they eventually inhabited the northern coastline of what is now known as Canada and eastern Greenland. Until recent years "Eskimo" had been the ndian word, which means "eaters of raw meat", used to describe the nuit. The nuit decided to use their word for "people- to identify themselves and thus, the word nuit is universally accepted. Their survival was based on hunting and fishing and on the skills that they had developed over the years to survive in such a harsh environment. Whether it was a seal or a caribou, every part of a killed animal was utilized. The meat was eaten raw and, therefore, met the vitamin requirements. Skins and furs were used for clothing; bones for tools and small toys and seal oil for heat. Sharing was a way of life. Men were the hunters while women were the gatherers, sewers and tanners. With the exception of the nuit who lived in Northern Labrador, they lived above the tree line. Their homes were made of animal skins in the summer and blocks of snow in the winter months. 9The Proposal on Administrative Justice by the nuit of Quebec, Kativik Regional Government, Sept The Canadien Encyclopedia For-Pat, P. 895 Hurtig Publishers 985 t

22 Death was seldom caused by old age but by the rigors of starvation, extreme cold, accidents and childbirth. Around 640,the European and American whalers began to hunt along the northern coast and while they were accompanied by new technology, food and clothing, they also introduced diseases to which the nuit had no immunity. The whalers were followed by the fur hunters and then by the missionaries. To this day one always cnows which church arrived first in a community by the European names of Prime, Romeo and Pelagie or Sarah, Peter and John! Along with a new religion, the missionaries introduced a written language with syllabics ( signs representing syllables) throughout Arttic Quebec and the Northwest Territories and with the Moravians using orthography in Northern Labrador. As time progressed, churches, school and health care centres were introduced along with the Hudson Bay Trading Post. Today these are the main landmarks of most communities with the more recent introduction of airstrips and co-operative stores. There are sixty-six permanent settlements throughout the north with very few having a population of over five hundred people. The total population of nuit living in Canada is just over 25,000. The remoteness of the life s contrasted by the use of skidoos, television, video machines, computers and coca-cola. The nuit lifestyle has been threatened by its introduction to the modern world. For the last twenty-five gears the market has fallen out of the fur trade. Seal skins which are now worthless, except for making one's own winter boots, no longer provide the much needed income. n Labrador, and ln parts of the Northwest Territories, nuit were forced to resettle n communities which were alien to them. Men lost the role of hunter and provider. Social assistance became the main source of income. Some children who had been educated in southern Canada became caught between two worlds and two cultures. Now, as never before, unemployment is high as is the rate of alcohol abuse and family violence. Suicide rates are four times the national average. 2 Many strong political nuit organizations have been formed in recent years and are trying to deal with the social problems that are new to their culture. The are also rebuilding a pride in the nuit traditional skills and in the nuktituk language and are attempting to strengthen their culture which has survived over the years through their oral language, family attitudes end behaviour and their acclaimed nuit ibid 2 The Globe end Mail. March 4,989. 6

23 art. 3 nuit who become involved in the criminal justice system come from a small village where everyone knows everyone else and where the edge of the town represents miles and miles of open space. Fish, seal and caribou are still the preferred foods es is the co-operative lifestyle. The concepts of prison or parole are foreign as are the skills to manipulate such a system. They are expected to function in a second language, spend years without any contact with family or friends and to be able to function as law abiding citizens once they retu rn to their community. t must be recognized that Native people have special difficulties when dealing with the criminal justice system. 4 A basic understanding of these difficulties is the first step in relating to nuit offenders. ********************************************************** 3 The Canadien Encyclopedia For-Pat, P luebees Native Peoples Justice and Prisons, Summer Student Project, July985. P.43 9

24 Appendix 2 3hllograply i Correctional ssues Affecting Native Peoples, Correctional Law Review Working Paper No 7, Ministry of the Solicitor General, February 988. Final Report Task Force on Aboriginal Peo es in Federal Corrections Ministry of the Solicitor General, September 988 National Population Profile Report, Correctional Services Canada, December 3,989. Nunatsiao News, lqualuit, N.W.T., March 0,989. Proposal on Administration of Justice, Canada-nuit of Quebec JBNQA mplementation Negotiations, ssue *3, June uebec Native Peoples: Justice and Prisons Pest, Present and Future,Summer Student Project, Native Para-Judicial Services of Quebec. July 985 The Canadian Encyclopedia, Hurtig Publishers Ltd., 985. The nuit, The Ministry of ndien and Northern Affairs, The James Bay and Northern Quetiçç_ 976.., Editeur Official du Quebec itel James Bay and Northern QM _ieca tg_m, nent The Northeastern Quebec Agreement Cree-nuit- Neskepi Annual Report, The Ministry of ndian and Northern Affairs 987. Resource People - 4 nuit inmates from Saskatchewan Penitentiary - 3 nuit inmates from La Macau nstitution 20

25 - 2 nuit inmates from Labrador Correctional Centre - Linda Anderson, Executive Director, Labrador Legal Services - Millard Beane, Native Offenders Programme, Correctional Service - Glen Beres, Chief Offender Management, Sask. Penitentiary - Ed Buller, Special Advisor, Natives, Dept. of the Solicitor General - Peter Conroy, Correctional Services Canada, Yellowknife, N.W.T. - Rhoda Kayakjuak, nuit Women's Association, Ottawa. - Richard Cress, Native Liaison Officer, Sask. Penitentiary. -Paul Oliniuk, Warden, Sask. Penitentiary - Lylee Otter, Native liaison Worker, Native Para-Judicial Service of Que. - Renfle Simms, Executive Director, Labrador Friendship Centre - Susan Sparks, Classification Officer, Labrador Correctional Centre - Bob Stacey, Acting Casemanager Officer, Sask. Penitentiary - Jean Tabb, ex teacher for nuit students, La Macaza nstitution\ - Jack Wage, Director Labrador School Board - Dana Williams, Consultant, Native ssues, Montreal ****************************************************** 2

26 SOL GEN CANADA LB/BBLO SO(JCiTO L CANADA NOV 8 993

27