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394-2-43 E?2 2005

Evaluation Framework of the Assessment of the Nekaneet First Nation Capacity to enter into CCRA Section 81 with the Correctional Service of Canada

Evaluation & Review Branch Performance Assurance Correctional Servicel January 20, 2005 of Canada

2008 FEB 0 4 Okirnaw Ohci Healingi Leckie LIBRARY / BIBLIOTHÈQUE PSEPC/SPPCC 98 .C87 JAN 1 0 2008 E92 2005 OTTAWA (ONTARIO) KIA OP8. TABLE OF CONTENTS TABLE OF CONTENTS II I. INTRODUCTION II. BACKGROUND 4 III. DESCRIPTION OF THE PROGRAM 5 1) CCRA SECTION 81 5 2) NEKANEET FIRST NATION 6 3) OKIMAW OHCI HEALING LODGE 6 4) GOALS AND OBJECTIVES 7 5) PROGRAM DELIVERY APPROACH 7 6) RESOURCES AND PROGRAM COSTS 9 7) GOVERNANCE STRUCTURE 10 8) STAKEHOLDERS 10 IV. CAPACITY ASSESSMENT CONCEPTS 11 1) THE SYSTEM LEVEL 11 2) THE ORGANIZATION LEVEL 12 3) THE INDIVIDUAL LEVEL 12 V. SEVEN DOMAINS OF THE CAPACITY ASSESSMENT 12 1) MISSION AND STRATEGY ASSESSMENT 13 2) CULTURE, GENDER AND STRUCTURE ASSESSMENT 13 3) PROCESS ASSESSMENT 14 4) HUMAN RESOURCES MANAGEMENT ASSESSMENT 15 5) FINANCIAL RESOURCES AND FINANCIAL MANAGEMENT ASSESSMENT 15 6) INFORMATION MANAGEMENT ASSESSMENT 16 7) INFRASTRUCTURE/ASSET MANAGEMENT ASSESSMENT 16 VI. CAPACITY MATRIX 16 VII. ASSESSMENT STRATEGY 28 VIII. EVALUATION/ASSESSMENT DESIGN 29 IX. DESCRIPTION OF METHODS . 30 1) Document Review 30 2) Interviews 31 3) Observations 31 X. REPORTING STRATEGY 32 XI. WORKPLAN AND RESOURCES COMMITMENT 32 REFERENCES 34 SIGNATURES 35

Copyright of this document does not belong to the Crown. Proper authorization must be obtained from the author for any intended use

Les droits d'auteur du présent document n'appartiennent pas à l'État Toute utilisation du contenu du présent document doit être approuvée préalablement par l'auteur. I. INTRODUCTION

The Correctional Service Canada (CSC) is an agency of the portfolio of Public Safety and Emergency Preparedness Canada (PSEPC). The portfolio allows for a continuum of service delivery from prevention to response, including, for example, emergency preparedness, crime prevention, border management, emergency response, law enforcement, conections and parole. The creation of the portfolio, in 2003, enhances our ability, among other things, to make Canada's communities safer. CSC contibutes directly to this goal. Within the PSEPC portfolio, CSC plays a key role in maintaining a just, peaceful and safe society and in assisting in the government's overall agenda of improving the quality of life of Canadians. CSC's plans and programs are designed to ensure the safe and effective accommodation of offenders and their reintegration into Canadian communities as law-abiding citizens, while reflecting long-standing Canadian values of justice, fairness and respect for human rights.

CSC has exclusive authority under the Corrections and Conditional Release Act (CCRA) to administer the sentences of adult offenders serving two or more years within a federal institution. This department manages 54 federal penitentiaries, six (6) of which are exclusively women's institutions, 16 community correctional centres and 71 parole offices across Canada. The Corrections and Conditional Release Act, Section 81 authorizes the Minister, or a person authorized by the Minister to enter into an agreement with an Aboriginal community for the provision of correctional services to Aboriginal offenders and for payment by the Minister, or by a person authorized by the Minister, in respect to the provision of those services. The Act similarly allows offenders to be placed with private individuals whom CSC has assessed as possessing the capacity to provide the required con-ectional services.

CSC has signed four such agreements with Aboriginal communities and/or individual placements since 1997. In 1997, the Minister signed Section 81 agreements with Prince Albert Grand Council in , Waseskun in Quebec and Stan Daniels in Alberta; and in 2000 with Ochichakkosipi First Nation in Manitoba. There are also two individual placements under Section 81 agreements.

1 1 I The purpose of this evaluation is to conduct an assessment of the Nekaneet First Nation's capacity to enter into CCRA Section 81 agreement with CSC and assume the responsibility of managing Okimaw Ohci Healing Lodge (0OHL) as a Section 81 facility, with the intended outcomes of the legislation, within budget and without unwananted negative outcomes l . The Nekaneet First Nation is situated in Maple Creek, Saskatchewan.

According to Laverack (1998), building community capacity describes a process that increases the assets and attributes that a community is able to draw upon in order to take more control of, and improve the influences on the lives of its members. Hepworth and Larsen (1993) have identified a number of universally required social and physical enviromnental resources that range from immediate home environnent (e.g. food, sanitation, space, etc) to the surrounding community (e.g., adequate police and fire protection). Zastrow (1995) suggests similar social support needs, such as emotional support from significant others, and support on the basis of needs. These lend credence to the functioning of a community and individual networks, and demonstrate the significance of capacity building in a community. The United Nations Development Policy (UNDP) Directorate (1998) defined 'Capacity Assessment' as a structured and analytical process whereby the various dimensions of capacity are assessed within the broader systems context, as well as evaluated for specific entities and individuals within the system. Laverack and the United Nations definitions will be used to define the focus of this evaluation as it relates to the capacity of the Nekaneet First Nation to enter into a Section 81 agreement with CSC.

In completing this evaluation framework, we have extensively drawn upon the United Nations Development Policy Directorate's (UNDP) experiences in capacity assessment, community development and governance programmes. Similarly, several assessment tools from which we built our assessment are those identified by Vosler (1990), Dunst (1994) and Dunst et al (1988). Those tools assist to determine the extent to which basic resources are available, accessible and adequate to meet perceived needs, as well as the extent to which needs that are not adequately met contribute to stress and strain. For

1 CSC EXCOM Decisions (September 2004) 2 years, UNDP has focused on assessing the capacities of institutions and communities. In 1994, the Management Development and Governance Division (MDGD) of the United Nations (UN) prepared guidelines on "process consultancy", which emphasized the need for external player's support for capacity assessment and capacity building processes. There are other frameworks such as those for institution-building (e.g., UNDP 's "CAPbuild" for Institutions) and participatory methodologies to assess the capacity requirements of communities. In this case we will look at those stresses and strains that may impact on a successful implementation of an agreement between the Nekaneet First Nation and CSC and draw on all the experiences found in the literature in completing this framework.

A capacity assessment essentially involves three levels of analysis: the system level, the organization level, and the individual level (UNDP, 1998). The approach we have taken requires an understanding of capacity in both a strategic context and at these three levels: the individual level, the level of the organization or entity, and the level of the broader system or enabling environment within which entities and individuals function. We will use two of the current four Section 81 agreement communities2 as a benchmark because of the similarity in the existing framework between 0OHL and the lodges, in terms of identification of both ()OHL and the Nekaneet community capacity to meet those needs.

The assessment will include a written and oral presentation of findings and recommendations to the Executive Committee, (EXCOM). The assessment will contribute to a better understanding of the issues confi-onting the lodge, and provide a foundation for which a collaborative action plan could be developed in the future.

2 Ochichakkosipi, Waseskun, Prince Albert and Edmonton 3 II. BACKGROUND

In 1992, the Parliament of Canada promulgated the Corrections and Conditional Release Act, an act regulating corrections, including the conditional release and detention of offenders. Section 81 of the Act supports a wide spectrum of custodial and service delivery arrangements for the care and custody of Aboriginal offenders. It allows the Commissioner of CSC to transfer an Aboriginal or non-Aboriginal offender to the care and custody of an Aboriginal community at any time during his or her sentence with the consent of the offender and of the Aboriginal community.

CSC has been developing strategies during the past several years to address the current and increasing over-representation of Aboriginal peoples in federal corrections3. It is for this reason that CSC continues to renew its corporate primity to increase the number of Aboriginal offenders who are safely and successfully reintegrated into the community 4. One of the strategies to increase the number of Aboriginal offenders safely reintegrated into the community in a timely manner is through the implementation of the Section 81 and Section 845 of the CCRA.

Section 81 of the CCRA stresses the significance of Aboriginal community involvement in Canadian correctional practices and empowers both the community and the client (individual) to act as a functioning being in the environment rather than only support the treatment of environmental problems that generally contributed to crime. Research has shown that mainstream interventions tend to be focussed on individual change and adaptation, rather than on a combination of individual and environmental change, and community influence. The Act empowers the larger systems such as other human service organizations, neighbourhood or community organizations and renders correctional policies more accessible. With that level of access and involvement comes a series of responsibilities and accountabilities, paramount of which is to ensure the management of

3 National Action Plan on Aboriginal Corrections, faultily 2001 4 CSC Corporate Objective (Plans and Priorities 2002-2003) 5 This section of the Act allows CSC to give Aboriginal community adequate notice of inmate application and opportunity to propose a plan for the inmate's release. 4 the offender's sentence in a traditional and Aboriginal cultural way while ensuring the safety of all Canadians.

CSC continues to work with Aboriginal peoples, partners and the community to advance Government initiatives aimed at reducing the incarceration rates of Aboriginal peoples within one generation, as stated in the Government's Throne Speech delivered in January 20016. The Service emphasizes that it is committed to strengthening Aboriginal Offender Programming; enhancing the role of Aboriginal Communities in Corrections; and building partnerships with Aboriginal agencies 7. The implementation of Section 81 agreements is considered as central to the achievement of these objectives.

In 1993, CSC entered into an agreement with the Nekaneet community and leased several acres of reserve land in order to build a Healing Lodge now called the Okimaw Ohci Healing Lodge, which would serve the needs of women federal offenders from the Prairie region. As part of the terms of the agreement, it was determined that a future capacity assessment of the community to enter into Section 81 agreement with CSC would be completed. On September 22, 2004, EXCOM confirmed the need for a capacity assessment of the Nekaneet community and the findings will form the foundation for discussion on any future potential agreement.

III. DESCRIPTION OF THE PROGRAM

1) CCRA SECTION 81

In accordance with the requirements of Section 81 legislation, the Aboriginal community agrees that the needs of Aboriginal offenders and the protection of society will be met by working with CSC. It allows the Aboriginal peoples to explore innovative approaches, through which Aboriginal offenders can be maintained safely in the Aboriginal community as productive members of their families and communities. All Section 81 facilities are regarded as Healing Lodges because they provide a safe, supportive, residential healing environment with holistic programs and activities for persons who

6 i Action Plan on Aboriginal Corrections, January 2001 7 Ibid 5 have been convicted and incarcerated under the jurisdiction of CSC. It provides them with opportunities for personal and spiritual growth and enhances their successful reintegration into society, while at the same time contributing to the safety of the community. Conversely, the individual placements are not regarded as Healing Lodges because the offenders are placed with individuals whom CSC has deemed suitable and meet the requirements of CCRA Section 81. These are nonetheless regarded as healing environments.

Healing Lodges are managed similar to CSC mainstream institutions. The responsibility and accountability of entering into an agreement with the Minister under Section 81 requires that the Band be able to manage the facility in respect to the day-to-day administration of the lodge. In addition, the Lodge will be responsible for the care and custody of transferred offenders within the Lodge and maintain the overall supervision of conditionally released offenders residing at the Lodge.

2) NEKANEET FIRST NATION

The Nekaneet First Nation Band occupies the Nekaneet Reserve located 36 km southeast of Maple Creek, which covers 3037.22 acres. The reserve is home to 119 Aboriginal people with another 134 living off the reserve. The native language of the inhabitants is . The facilities that are available on the reserve include a Band Office, Health Clinic and School. The band's land base consists primarily of agricultural land.

3) OKIMAW OHCI HEALING LODGE

Okimaw Ohci Healing Lodge is a 28 bed women's facility currently managed by CSC. The Lodge houses both medium and minimum security women offender. The facility is built on leased land by CSC, and operated in consultation with.the Nekaneet First Nation. The facility is headed by a group of "keepers" called Kekunwemkonawuk. The management structure of the facility is based on the Aboriginal family model, including a Kikawinaw (Cree word for "our Mother"), who is the equivalent of the institutional head in a mainstream institution. The Kikawinaw reports to the Deputy Commissioner, Prairie Region and the Deputy Commissioner for Women. The Kikawinaw also has several 6 advisory groups, including the Kekunwemkonawuk "Keepers of the Vision" and Citizen's Advisory Committee who provide advise and guidance for the Lodge. The healing plans and programs offered at the Lodge integrate a sense of community with programs, work and cultural activities to address factors that led to criminal acts and allow offenders to make choices and gain a sense of individual power, personal pride and pride in their culture.

4) GOALS AND OBJECTIVES8

In accordance with the Section 81 of the CCRA, all agreements entered into by CSC and all Aboriginal communities should enhance the role of Aboriginal communities in providing correctional services to Aboriginal offenders. These services include effective holistic treatment programs and timely reintegration of Aboriginal offenders into society as law-abiding citizens. The objectives9 of Section 81 agreements are: 1. To facilitate the transfer of Aboriginal offenders from CSC's care and custody to the First Nation's care and custody. 2. To provide holistic, person-centred correctional services, including custodial services to transferred offenders and residential and supervisory services to those on conditional release. 3. To enhance the safe reintegration of Aboriginal offenders into the community as law-abiding citizens before the expiration of their sentence.

5) PROGRAM DELIVERY APPROACH

The Task Force report on Federally Sentenced Women outlined a different correctional approach to addressing the needs of women offenders. This complements the Canadian Human Rights Act, which requires all federally regulated organizations, such as Correctional Service Canada, to accommodate individual needs and differences, rather than treat all people as identical and respond to them based on stereotypes and perceptions. The Task Force report stresses the uniqueness of the women. The report recommends that a more gender-based approach to custody, programming and

8 National Action Plan on Aboriginal Correction, January 2001 9 Ibid 7 reintegration be used. This would take into account the reasons for their incarceration, their life experiences and their rehabilitation needs.

"Creating Choices" established that a holistic approach to the unique needs of Federally Sentenced Women was required and identified five (5) principles l° for change, which guided the successful implementation of the regional women's facilities and the Okimaw Ohci Healing Lodge. These principles are discussed below: 1. Empowerment - the inequities encountered and experienced by the women have left them with little self-esteem and belief in their power to control their lives. This reduces their ability to cope and increases self-destructive behaviour, which contributes to their inability to plan for the future. Empowering the women will assist them in identifying their strengths and challenge them to take positive action to gain control of their lives. 2. Meaningful and responsible choices - providing the women with options would allow them to make choices. Dependencies on men, alcohol or drugs and state financial assistance have denied women of the opportunity and ability to make choices. Therefore, choices that relate to women's needs, past experiences, culture, values, spirituality, abilities and skills as well as their future must be provided. 3. Respect and dignity - mutual respect and dignity is needed amongst staff, between staff and offenders and between offenders and themselves. 4. Supportive environment - the quality of the environment can promote physical and psychological health and personal development. A positive and supportive environment will encourage self-esteem, empowerment, dignity and respect for self and others. 5. Shared responsibility - all levels of government, corrections, volunteer organizations, businesses, private sector services and the community have a role to play in the development of support systems and continuity of service for Federally Sentenced Women. It is this support and continuity that will enable women to take responsibility for their lives.

10 Correctional Service Canada. Creating Choices: The Report of the Task Force on Federally Sentenced Women. Ottawa, Supply and Services Canada, Apri11990, at 125 -135. Available: http://www.csc-scc.gc.caltext/orgrm/fswichoicesItoce e.shtml 8 "Creating Choices" further defines a supportive environment as one that includes the physical layout designed to address the needs of the women, which includes stand alone housing units that are clustered behind the main administration building within the regional institutions. Within this layout, there is a health care unit, visiting area, gym and classrooms. This layout encourages the inmates to be independent and self-reliant. It also defines a supportive environment as one having women-centered programs, which are further defined in the Correctional Program Strategy for Federally Sentenced Women I I .

By entering into agreement with CSC, the Nekaneet First Nation community in collaboration with CSC, would appoint a Board of Directors for the Healing Lodge and the Board would manage the Lodge on behalf of the Nekaneet First Nation, in accordance with the terms of the agreement and its operational plan. An operational plan which should provide an avenue for which Aboriginal women offender in the Healing Lodge will be able to benefit from the 5 principles of change identified above. The agreement between the two parties defines the terms and conditions and outlines operational and management practices that would ensure that the desired outcomes of the legislation and the ensuing agreement are met. The requirements of the agreements between CSC and Ochichakkosipi First Nation, Prince Albert Grand Council and Stan Daniels Healing Centre will respectively be used as a benchmark with which to measure the community of Nekaneet's capacity. For those areas where the community does not possess the capacity to deliver services or programs, the evaluation will identify the resources and efforts that would be required by the community to increase its capacity to the level necessary to be able to provide expected results in those areas.

6) RESOURCES AND PROGRA1VI COSTS

Typically, an agreement between an Aboriginal community and CSC is funded based on a pro-rated formula or contribution agreements. For instance, a pro-rated formula would allow Okimaw Ohci to make a specified amount of contract beds available to CSC and the specified number of beds would be pro-rated per day and funded in accordance with a

"Correctional Service Canada. Correctional Pro gram Strategy for Federally Sentenced Women (1994). Available: http://www.csc- scc.gc.caltext/prgrm/fswiskyblue/skye e.shtml currently being revised. 9 separate agreement. In accordance with section 40 of the Financial Administration Act, funding would be subject to an annual appropriation for the fiscal year. The recruitment of human resources would be from the Nekaneet community, Maple Creek community or nearby reserves and cities.

7) GOVERNANCE STRUCTURE

Generally, a Healing Lodge is operated through an agreement between CSC and a First Nation community. The management structure of the facility is based on the Aboriginal family model, including a Kikawinaw (Cree word for "our Mother"), who is the equivalent of the institutional head in a mainstream institution. The Kikawinaw reports to the Deputy Commissioner, Prairie Region and the Deputy Commissioner for Women. The Kikawinaw also has several advisory groups, including the Kekunwemkonawuk "Keepers of the Vision" and Citizen's Advisory Committee who provide advice and guidance for the Lodge.

Conversely, a Band Chief heads the Nekaneet First Nation. The Community currently has three elected councillors who work collaboratively with the Band's Chief in the management of the affairs of the community. All residents of the community have access to the Chief and the three councillors.

8) STAKEHOLDERS

Stakeholders are those individuals or groups who have a vested interest in the management of ()OHL, should an agreement be signed between the two parties. Since this evaluation's objective is to assess the capacity of the Nekaneet community to enter into an agreement with the Minister under Section 81 of the CCRA, the community will be considered as one of the primary stakeholders in this case. The Deputy Commissioner of the Prairie region who is CSC's primary senior manager responsible for the activities within the region, the Deputy Commissioner for Women and the Assistant Commissioner of Correctional Operations and Programs are also stakeholders on the project. The Aboriginal Initiative Branch at National Headquarters (NHQ) and the Federation of Saskatchewan hidian Nations will play a consulting role during the duration of the 10 evaluation. The management at Edmonton Institution for Women (ElFW) and the Okimaw Ohci Healing Lodge will play a significant role both in the evaluation process and any ensuing improvement plan and agreement with the Community. Offenders at the Healing Lodge and EIFW will also be consulted for their input.

In managing women offender in Canada, there are several non-governmental organizations that play significant roles in the affairs and provide advisory support to CSC. The Canadian Association of Elizabeth Fry Society (CAEFS) and the Native Women Association of Canada (NVVAC) are two of these important organizations. The CAEFS is an association of self-governing, community-based Elizabeth Fry Societies that work with and for women and girls in the justice system. The association exists to ensure substantive equality in the delivery and development of services and programs through public education, research, legislative and administrative reforin, regionally, nationally and internationally. Similarly, the Native Women Association of Canada (NWAC) enhances, promotes, and fosters the social, economic, cultural, and political well-being of First Nations and Métis women with First Nation and Canadian society. The NWAC acts as the national voice for Native women and addresses issues in a manner which reflects the changing needs of Native women in Canada. We will consult with both of these organizations during the course of this capacity assessment.

IV. CAPACITY ASSESSMENT CONCEPTS

1) THE SYSTEM LEVEL

This is the broadest level of analysis and can be thought of as the environmental level, which encompasses gove rnmental, socio-political, economic and physical environmental factors. These factors are important to the function of any program, policy or initiative in a government organization. However, because these factors may not differentially impact the facility whether CSC or Nekaneet manages it, these factors will not be the central focus of the capacity assessment.

1 1 2) THE ORGANIZATION LEVEL

This is the main level of focus for the Nekaneet capacity assessment. It encompasses seven domains where we will examine the interactions within the system, usually with other organizations, stakeholders, or clients. In this case, it is an assessment of the main functions of the institution in relation to the capacity of the Nekaneet community to be able to fulfil and manage these requirements with the intended outcomes of the legislation, within budget and without unwarranted negative outcomes 12. A capacity matrix has been developed to identify the main questions and information sources that fall within these seven domains: mission and strategy, culture/structure competencies, process assessment, human resources, financial resources, and information resources, infrastructure/asset management. We will provide an overview of these seven domains later in the report.

3) THE INDIVIDUAL LEVEL

This level of analysis addresses the individual's capacity to function efficiently and effectively within the organization and within the broader system. Often the success or viability of a capacity initiative is linked to the capacity of its individual leadership and management. This level of analysis is critical to the evaluation of the Nekaneet First Nation. This level includes an examination of capacities to provide training/retraining, individual learning, job shadowing, career progression, professional integrity and other factors. These factors have been incorporated into the Human Resources component of the assessment domains outlined below.

V. SEVEN DOMAINS OF THE CAPACITY ASSESSMENT

The main objectives of this capacity assessment are to produce an account of the existing 0OHL framework at the organizational level and evaluate the capacity of the Nekaneet First Nation to administer all of its operational functions and to be fully responsible for

12 CSC EXCOM decision document September 2004 12 the management of the Healing Lodge thus entering into a Section 81 agreement. As the facility is already operational, we are assessing the ability of the Nekaneet community to take over efficient operations of the facility from CSC and have the Band adequately run the operations of the facility.

In light of the recommendations found in the literature review on capacity assessment, we have conceptualized our domains of assessment of the community in a multidimensional mamier, focussing on both internal and external factors, which would play a significant role in an agreement with CSC. This assessment will be defined and examined in terms of strengths, weaknesses and opportunities of the Nekaneet First Nation community according to the grouping of multidimensional factors as follows:

1) MISSION AND STRATEGY ASSESSMENT

The role of an organization evolves and changes over time and such changes are often reflected in legislation or organizational corporate objectives and priority statements. The Correctional Service of Canada (CSC), as part of the criminal justice system and respecting the rule of law, contributes to the protection of society by actively encouraging and assisting offenders to become law-abiding citizens, while exercising reasonable, safe, secure and humane control. CSC Mission statement accentuates its commitment to the protection of the public and the maintenance of a just and peaceful society. The Mission statement may be described as the Service's constitution, defining its approach both to the management of the organization and to the management of the offenders in its care. The mission and strategy portion of the 0OHL capacity assessment will deal with issues involving the Nekaneet community's ability to promote and manage the Mission and strategic objectives of CSC. These issues will be measured primarily by interviews with CSC, ()OHL, and key Band informants against relevant documentation.

2) CULTURE, GENDER AND STRUCTURE ASSESSMENT

This dimension covers such aspects as organizational and management values, standards, structures and the relevant core competencies that are required in meeting the organization's mandate. The Correctional Service of Canada is part of the Government of

13 Canada's overall macro system tasked with ensuring the safety of Canadians. Structurally, at the micro level, CSC has several regional, institutional and community facilities that support its mandate. At the core of the CSC Aboriginal offenders' I i reintegration strategy is Section 81 provisions. Important dimensions of capacity to achieve and sustain a successful reintegration strategy for Aboriginal women offender are the principles of openness, honesty, integrity, accountability and pride of the community. Given the cultural-specific nature of the Healing Lodge, this element is essential to the initiative. Included in the capacity assessment are issues such as whether or not the Nekaneet community will be able to provide a culturally sensitive holistic healing approach to reintegration, and if the core competencies 13 are present at an appropriate I level to fulfil the obligations of a Section 81 agreement. These issues will be assessed primarily by interviews and participatory observations with CSC, 0OHL, and key Band I informants.

I 3) PROCESS ASSESSMENT I This is the area that generally receives the most attention in an organization because it supports organization functions such as planning, client management, performance I management, reporting, etc. When dealing with matters of public safety, communication and timely information sharing are important aspects of a capacity that must be assessed. I Generally, this section will examine whether the Nekaneet community will be able to maintain relationships and ensure an effective administration of the facility. Issues to be I assessed under the process assessment include how the transition will be managed e.g., whether the transition will cause the least amount of disruption to the operations of the I lodge or in relationships with Aboriginal organizations, CSC institutions and CSC in general. Another line of inquiry will examine the decision-making processes proposed in I accepting offenders into the care and custody of 0OHL. These issues will be assessed primarily by interviews with CSC, ()OHL, and key Band informants, OMS records and I Network analysis.

1 1 13 Elders and cultural competencies identified by Aboriginal Initiative Branch I 14 _ 4) HUMAN RESOURCES MANAGEMENT ASSESSMENT

In any organization, change, capacity and development depend primarily on an effective and efficient human resources dimension of the organization. There must be effective human resources that are knowledgeable, competent and committed to implementing the terms of the agreement and sustaining its results. The capacity assessment will look at the strengths (skills, experiences and qualifications) and the ability of the Nekaneet community to recruit, train and deploy those resources to meet and sustain the objectives of the CCRA and any ensuing agreement. We will look at basic personnel management practices (hiring, retaining and training) and the community adaptation to change. Also, a crucial part of the capacity assessment involves whether current ()OHL staff will continue to work in the institution if it is converted into a Section 81 facility. This would mean that they would no longer be an employee of CSC and ultimately the federal government but would instead work for the Band. Maintaining the knowledge and corporate memory of cuiTent staff members is critical to the success of the transition and will be assessed. These issues will be assessed primarily by interviews with CSC, ()OHL, and key Band informants, and file and community profile reviews.

5) FINANCIAL RESOURCES AND FINANCIAL MANAGEMENT ASSESSMENT

These consist of both operating and capital required for the efficient and effective functioning of the Healing Lodge. For the duration of any agreement between CSC and the Nekaneet First Nation, CSC will make contribution payments or pro-rated contract beds allocation payments to the First Nation, in accordance with a separate agreement between the Nekaneet First Nation and CSC. This aspect of the capacity assessment will focus on the financial requirements of ()OHL. In particular, the assessment will focus on how the facility will continue to ensure accountability and fulfil the responsibilities associated with the Treasury Board of Canada Transfer Payments in relation to an evaluation. Also, we will examine all aspects of financial resources availability, including supplementary funding that would be required to ensure the functioning of the lodge and

15 the historical stewardship of the Band. These issues will be assessed primarily by interviews with CSC, ()OHL, and key Band informants, and document review.

6) INFORMATION MANAGEMENT ASSESSMENT

Information resources are of critical importance both to the management of offender sentences and to the effective day-to-day operation of the Healing Lodge. Generally, the capacity assessment will focus on the extent to which information can be managed as it relates to offenders records and complaints in accordance with the Privacy Act and the Access to Information Act. This section will also focus on the Nekaneet community's ability to generate, enter and store safely relevant documentation that would be required for effective conditional release decisions. These issues will be assessed primarily by interviews with CSC, 0OHL, and key Band informants and measured against relevant documentation.

7) INFRASTRUCTURE/ASSET MANAGEMENT ASSESSMENT

Infrastructure management includes all physical assets, computer and telecommunication infrastructures and other culturally specific infrastructure that would be required for a successful management of the Healing Lodge. Due to the fact that the facility is already operational and has the infrastructure in place, this item is less critical to the capacity assessment. However, key informants will be asked if there are any issues or concerns regarding the physical environment of the institution that could impede the transition from CSC management to Nekaneet community management. We will also assess how the Nekaneet community will be able to maintain the buildings, meet all legal and health and safety requirements while sustaining the current fleets and other infrastructure that are important for the smooth running of the lodge.

VI. CAPACITY MATRIX

Item 1: Mission and Strategy — Will CSC signing Section 81 agreement with the Nekaneet First Nation facilitate the protection of the public while supporting and encouraging Aboriginal women offender to successfully reintegrate into society and live as law abiding citizens? (PUBLIC INTEREST) Key Result I Indicators Data Source 16 i) The role of CSC/federal • There exists a body of • Review of literature (see A government at ()OHL is research that demonstrates cost-benefit analysis of and will continue to be advantages and successes Hollow Water's relevant. Specifically, the when addressing women Community Holistic Circle role addresses the need to offender needs through Healing Process — Joe facilitate the protection of the provision of gender Couture and the NCSA) society and provide and Aboriginal specific • Interviews: Warden / support and services. Kikawinaw, Deputy encouragement to • Proportion of stakeholders Warden/Assistant Aboriginal and non- who concede the role, Kikawinaw, District Aboriginal women goals and objectives of the Director, Aboriginal offenders. 0OHL are relevant. Women Offender, Aboriginal leaders or representatives (Aboriginal Initiatives Branch at NHQfRHQ), and Community Police Service. ii) The Nekaneet First Nation • Number of Nekaneet • Review of 0OHL is committed to CSC's leadership and community documents — parole, Mission as it relates to the members who has a well programs, and mission. management and articulated understanding • Interviews: 0OHL staff, reintegration of of CSC mission and Nekaneet leaders and Aboriginal women objectives, community members, and offender. • Number of community FS IN. members with a strong • Review: Previous record of sense of community ETA's and Parole activities attachment and previous with the First Nation. participation in CSC reintegration practices. iii) The Nekaneet First Nation • Proportion of a target • Profile of current 0OHL intends to strategically group of offenders who inmates target and deliver will receive programs and • Offender Management appropriate services to a services. System (OMS) query of well defined group of target group profile. offenders. iv) There is capacity for the • Number of communities • Interviews: Nekaneet Nekaneet First Nation to that expresses interest in leaders, Maple Creek address Aboriginal issues related to people in leaders, Nekaneet residents, women offender needs the Nekaneet community. 0OHL staff, police officers, through community • Proportion of communities parole officers, Aboriginal partnerships. that shows concern over women offenders, ALB at issues which affect NHQ/RHQ, CAEFS, Aboriginal women NWAC and FSIN offenders. • Review: Local media • Proportion of past support clippings, 0OHL to offenders at either documents. 0OHL or around the community. 17 • The community is confident in their capacity to work together to address issues which affect the community and its people. • The extent of past history of fostering interactive citizen -community-based processes. • The extent of community past history of enlisting others to actively participate in activities • that support and assist Aboriginal women offenders and their reintegration. v) The Nekaneet First Nation • The number of agencies • Interviews: Nekaneet will be capable of and communities that has Residents, Police, Fire sustaining current and cuiTent partnership Department, Parole future partnerships if it agreement Nekaneet First Officers, 0OHL Managers, becomes a Section 81 Nation AlB at NHQ/RHQ, FSIN, facility. • Proportion of agencies stakeholders and other and communities that community agencies. know about each other • Review: Documents, Oral and their respective roles. histories and local media • Number of communities clippings. and agencies that express confidence in their capacity to work together to address issues affecting the community and ()OHL. • Proportion of previous inter-agency, inter- community meetings and public meetings. • There is a history of partnering to resolve issues. Item 2: Culture/Gender, Structure and Competencies — How will the structures and cultural competencies of the Healing Lodge be managed and sustained by the Nekaneet First Nation?

Culture/Gender i) The Nekaneet community • Proportion of Elders in the • Interviews: ()OHL staff, will be able to provide a community with diverse Nekaneet leaders and culturally sensitive linguistic backgrounds — community members, 18 holistic healing approach Cree, Ojibway, etc Aboriginal women that enhances the • The community has and offenders, and Parole reintegration of will continue to officers. Aboriginal women and successfully carry out a • Observation: Profile of non-Aboriginal women number of cultural events Nekaneet community offenders. relevant to the Nekaneet members. approach to Aboriginal • Document review: Records and non-Aboriginal of success fi-om other women offender Aboriginal run institutions. reintegration. • Proportion of involvement by Nekaneet in facilitating cultural activities and programs to ()OHL women offender and other similar institutions. • There is a past experience of pooling and sharing resources such as Elders, towards providing healing services to the intended target group of women offenders. • Extent to which Nekaneet First nation will be able to provide services and programs that meets the 5 principles of "Creating Choices" that are identified in the report. Structure ii) A shift in management • Extent to which the • Interviews: Nekaneet towards the Section 81 community has leaders and community agreement will be demonstrated a capacity to members, offenders, supported through foster collaborations and Warden/Kikawinaw, relationships with partnerships, and to enlist Deputy Warden/Assistant Aboriginal organizations other community and Kikawinaw, District across the region and the agencies to actively Director, any other relevant country. participate in the 0OHL management and community affairs. AM at NHQ/RHQ, and • Number of external FSIN. resources available for • Observation. community use — MOU's, • Reviews: Newspapers / MOA's, etc. media for community • There is evidence of opinions. coordination and acting in • Network Analysis with — concert with other FSIN, GABES & NWAC. communities with similar 19 interests and objectives. • Proportion of communities and agencies that express confidence in the community's ability to foster good relationships. iii) There will be an adequate • Support networks • Review of publications that support infrastructure in adequately address issues indicate required levels of place in the Nekaneet associated with particular support across Canada per community (e.g., RCMP populations/groups within capita (see Statistic or local police, fire the community. Canada's "Crime and Police response, fleet of vehicles • There is reciprocity across Resources in Canadian for transportation, etc.) community support Municipalities"). networks. • Interviews: Nekaneet • There is a diverse support leaders, offenders, network among similar reintegration staff, groups in the community, community members, local • Number of community emergency response members who express representatives. interest in the situation or • Observations issues related to people in • Review: Profile of the community and community support outside. structure, current awareness level of support structures by all involved parties. • Review of other Healing Centres' dependencies on community support structure (frequency of police assistance and required response time for revocations, etc.) iv) There will be an adequate • Number of community • Interviews: Nekaneet service infrastructure in support groups that offer leaders, offenders, place in the Nekaneet programs and services that reintegration staff, community to address the focus on employment, community members, local cultural and program family/marital, associates, emergency response needs of the target group. substance abuse, representatives. community functioning, • Observations personal emotional and • Review: Profile of attitude needs as they community programs, relate to Aboriginal and services and support non-Aboriginal women structure offender. • Review of other Healing Centres' use of the community service infrastructure (for example, use of programs and 20 services delivered through NGOs such as the Elizabeth Fry and John Howard S ocieties.) v) The Nekaneet community • The number medical • Interviews: Nekaneet will be able to meet facilities available within leaders and community, mental health, medical, the community. local Medical facility dental and health and • The proximity of the management and staff, safety needs of target medical facility is ()OHL management, AIB at group . appropriate for the NHQ/RHQ, CAEFS, frequency of use by NWAC and FSIN. community members and • Observations: Profile of offenders at 0OHL. Nekaneet community • The proportion of an members. acceptable level of • Documents Review. medical, mental health, psychological and psychiatric services. vi) The Nekaneet community • The Nekaneet community • Interviews: will be able to manage all has successfully Warden/Kikawinaw, duties of the Healing demonstrated involvement DW/AIC, DD, Nekaneet Lodge through different in inter-agency leaders, reintegration staff, models management that collaborations. parole officers and AM at facilitate things such as • The community has the NHQ/RHQ. the transportation of ability to build upon the • Documents review: Policies offenders, community unique strengths and and procedures for those supervision (work capacities of the operational process outlined release), spiritual healing, community. and how compatible will access to programming, • The degree of willingness they be with the healing and provision of health and ability to pursue other approach. services. avenues of service • OMS Records (Releases, delivery, such as MOU's ETA's etc.) with other communities or • Observations: How familiar agencies. are the Aboriginal leaders • The number of and community with CSC demonstrated experience procedures. of pooling and sharing of resources with other communities and agencies.

Competencies vii) Under a Section 81 • There is evidence that • Interviews: agreement, the Nekaneet Nekaneet leadership Warden/Kikawinaw, First Nation will have understands CSC Deputy Warden/Assistant access to qualified staff correctional performance, Kikawinaw, District with the expertise to standard operating Director, Nekaneet Leaders, follow CSC standard procedures and reintegration staff, AIB at operating procedures, organizational outcome NHQ/RHQ, FSIN, and 21 meet correctional standards as they relate to management at EIFW, Sask. performance standards Aboriginal and women Parole, Regina Parole and organizational offenders. • Observation: How well is outcome standards as they • The Nekaneet First Nation the Nekaneet First Nation relate to Aboriginal and disseminates and builds performing the roles now? women offenders. upon what it learns and • CSC standard operating achieves. procedures specific to Aboriginal and non- Aboriginal women offenders (i.e. searches, escorts, house checks, program delivery etc.) I viii) There will be appropriate • Proportion of stakeholders • Interviews: Community decision/management that agree there is strong members, Nekaneet leaders, frameworks in place and decisive leadership ()OHL managers, CAEFS, I within the community that within the community. NWAC and FSIN leaders. will provide the • There exists a fully • Observation: Current foundation for the functional management functionality / efficiency of I management of ()OHL if and strong team. command structure of CSC enters into an • Number of leaders that are community decision agreement with the well organized, motivated, makers. I Nekaneet First Nation. popular and accountable. • Document review: 0OHL • Number of community procedures — compare these members that are clear to community procedures. I about their roles and have good relationships with the leaders. I • Positions for community members are retained in the decision making I structures and there are policies for those authorities whose affairs I impact on the community. ix) The core competencies • There is a past indication • Interviews: Nekaneet I will be maintained if the of the community's focus leaders, community Healing Lodge is on Section 81 purposes members, offenders, functioning as a Section and goals. management at ()OHL, I 81 facility • There is evidence that Regina Parole, Sask. Parole, there is a willingness to AIB at NHQ/RHQ and trust and believe in each FSIN. I other. • Observations • Leaders let everyone "do • Review of Nekaneet plan their part" by getting them changes, if any, that might I to actively contribute , jeopardize core • The proportion of core competencies. competencies in the I management of the Bands I 22 affairs • There are no negative impacts on the above indicators due to potential changes in human resources capacity. Item 3: Processes — Does the Nekaneet First Nation have the capacity to foster and sustain processes that are required to manage and ensure responsible administration of the Healing Lodge? i) The Nekaneet First Nation • In the past, the community • Interviews: 0OHL will be able to sustain the has demonstrated a high management, District management control level of participation in Directors, Nekaneet leaders, process of 0OHL if it community affairs and a AIB at NHQ/RHQ, CAEFS, enters an agreement with willingness to collaborate NWAC and FSIN CSC and accept independent • Observation arbiters or mediators in the • Review: Profile of event of conflict. community members, • The community has a community reactions to this history of active proposal and media reports. accomplishment and adherence to process. _ ii) Processes exist which will • Evidence that processes • Interviews: Community facilitate a smooth exist that empowers Band leaders and members, transition if CSC entered leaders to lead the current ()OHL management. into a Section 81 community in whatever it • Observations: Transition agreement with Nekaneet chooses to pursue and process of any similar First Nation and the motivate others to do the events in the past. conununity assumes the same. • Documents review. : management of 0OHL. • Proportion of community Compatibility of current members and stakeholders ()OHL mandates and any express confidence in their likely changes to be made capacity to work together under new administration. to address issues which might impede smooth transition. iii) The management of • There is a demonstrated • Interviews: Warden / offenders will be experience of working Kikawinaw, DW/AK, DD, performed in a way that is within the confine of Nekaneet leaders, conducive to the elaborate procedural reintegration staff, parole requirements of CSC and guidelines in a timely officers, AIB at NHQ/RHQ. NPB policies. manner. • Document reviews: • Demonstrated ability of Procedures for operational Nekaneet First Nation to process as they relate to provide services that meet gender and Aboriginal the 5 principles of specific issues (for example "Creating Choices" temporary absences, parole decisions, transfers, programming, escorts, 23 searches, house checks, healing, etc.) • Observations: How familiar are the Aboriginal leaders and community with CSC procedures. Item 4: Human Resources — Do the Nekaneet First Nation has the capability to fulfill all staffing requirements of °OHL should it be administered as a Section 81 facility? i) The Section 81 transition • The degree of balance • Interviews: ()OHL will not affect the capacity between i) the number of management and staff, of the Healing Lodge to staff currently at ()OHL Nekaneet leaders and employ adequate and that will choose to work community members. appropriate staff. for the First Nation, and ii) • Document Review. the number of community Community Profile and, members that meet the Population demographic minimum standard for data. working in CSC facilities and government departments and who are interested in pursuing a career with the First Nation. • The willingness of all above groups to work with the Band leaders. ii) The Nekaneet First Nation • The number of individuals • Interviews: Nekaneet has the capacity to recruit within the community leaders and community, and and train employees if the with a willingness and ()OHL management, ()OHL is to become a expertise to train staff. Regional staffing officers. Section 81 facility. • The proportion of ability • Document Review: to build and support • Observation: Observations capacity within the of community members: community in the past. Profile of community • There are resources members. available to the • Peoplesoft Review community to train its • Standard operating staff. procedures as they relate to • The proportion of gender specific issues (i.e. relationship with other gender requirements for communities that will staff conducting searches provide a pool for which etc.) the community can recruit employees. • The number of past involvement within the community in creating both educational and vocational opportunities 24 for its residents. Item 5: Financial Resources — Do the Nekaneet First Nation lias the capacity to manage the financial affairs of the Healing Lodge in accordance with the requirements of the Financial Administration Act and in compliance with Modern Comptrollership requirements? i) There will be mechanisms • There is evidence of good • Interviews: Nekaneet that ensure good financial stewardship of the leaders and community management and Nekaneet First Nation's members. accountability practices. account in the past. • Documents Review. • Leadership of the • Observation: Profile of Nekaneet First Nation Nekaneet community's understanding of the professional experience. Financial Administration • Review of budget and audit Act. reports • Resident's validate the • Reviews of Audit reports Nekaneet leadership 's and recommendations about and ability to history the First Nation manage Band monies. management of its money. • Review of past use of funds, resources or relations external to the community as it relates to money. ii) The Nekaneet community • Community leaders • Interviews: Nekaneet is able to manage the TBS understand the TBS leaders, 0OHL transfer payment requirements. management, AlB at requirement to perform an • The number of external NHQ/RHQ and FSIN. evaluation. partnerships that have • Document review: Past supported the completion Nekaneet contracts with of an evaluation in the other agencies. past. • Observation • Past award of evaluation contract and submission of evaluation report to TBS or other government department in the past. • Past MOU's with Audit and Evaluation agency. iii) As a result of • Ntunber of past contract • Interviews: Nekaneet transforming the ()OHL to and projects that have leaders and financial a Section 81 facility, the been implemented and advisors, 0OHL resultant package of completed within budget. management programs and activities is • Observation: affordable to the Nekaneet • Document review: Past First Nation. Nekaneet budget and relevant contract. • Past Contribution agreements or Contract bed allocation with any agency. 25 Item 6: Information Resources — Do the Nekaneet First Nation has the capacity to manage offender information within the Healing Lodge in such a way as to inform management of the day to day operations of offenders and be compliant with relevant legislation (Privacy Act and Access to Information Act)? i) If ()OHL were to be • Ability to provide • Interviews: Nekaneet transformed into a Section adequate and quality leaders, ()OHL 81 facility, the creation, documentation of management, AIB at entry and storage of activities to any oversight NHQ/RHQ and FSIN. relevant documentation agency in the past. • Observation: will be performed in a • Number of training on the • Document review. way that meets CSC CSC report requirements policy and standards. available within the community or its proximity. • Number of community involvement in generating CSC offender related reports in the past. • Understanding of the importance of timely reporting in supporting of govermnent public safety agenda. ii) The Nekaneet First Nation • Existence of a clear • Interviews: Nekaneet will ensure that the data procedural safeguard for leaders, 0OHL quality assurance methods ensuring quality reporting management, AIB at are in place that meets within the community NHQ/RHQ and FSIN. CSC and NPB management structure. • Document review: requirements. • Existence of feedback Procedure for ensuring data mechanism within the storage, and compliance structure of the with dates. community. • Observation. • Clear understanding of the quality assurance process that exist in CSC. • Evidence that staff regularly reflects on lessons learned and are rewarded for performance. iii) Data management training • Number of database of • Interviews: Nekaneet and support services will data for community leaders, 0OHL be adequately organized information e.g. website. management, AII3 at and implemented if an • Number of MOU's or NHQ/RHQ and FSIN. agreement ensued potential MOUs with • Observation and review of between CSC and the technical agencies that existing data management community. could provide support techniques and the services to the familiarity of Nekaneet with 26 community. data management of °OHL. Item 7: Infrastructure/ Asset Management — Does 0OHL have the existing infrastructure in order to make the transition to a Section 81 facility? i) How will the Nekaneet • Ability to maintain Band • Interviews: 0OHL I First Nation procure and assets in the past. management, Nekaneet sustain the fleets, • Number of community leaders, ATB at NHQ and I computers, and maintain members that can apply FSIN buildings, and other office and secure driver's • Document review: Past tools that are required for licenses that are required Nekaneet budget I an effective management for the operation of the management. of the Healing Lodge? Healing Lodge's fleets. • Observation: Fleets. • Understanding of I Government of Canada security requirements of I buildings. I I I I I I I I I I I I 27 VII. ASSESSMENT STRATEGYI4

OKIMAW OHCI & NAKENEET FIRST NATION CAPACITY ASSESSMENT & STRATEGIC PLANNING MODEL

Phase 1: Preparation Preparation prior to implementation

Phase 2: Assessment Assessment of each operational domain using descriptive statements

Recording of results of Review assessment

Phase 3: Strategic Planning Strategy to improve the Review situation

;

Assess outcomes and Review develop Sustainability Plan

Phase 4: Follow-up

Follow up and re-assessment

14 Laverack, 1998: Building Capable Conzmunities, A new approach for building community capacity 28 VIII. EVALUATION/ASSESSMENT DESIGN

The capacity assessment will be in four phases as outlined in the diagram above (Laverack, G., 1998).

Phase 1: This phase will be the preparation for the assessment and the establishment of the terms of reference.

Phase 2 and 3: These phases will take an integrated approach to conducting the assessment, documenting the outcome of the assessment and presentation of the report to EXCOM. The assessment will also include the identification of strategies to improve those domains that require improvement. The identification and development of a strategic improvement plan will be a collaborative effort between the Nekaneet First Nation, the Women Offender Sector, the Aboriginal Initiative Branch, the Prairie Region, the Federation of Saskatchewan Indian Nations and the Evaluation and Review Branch.

Phase 4: This phase will focus on follow up and the reassessment of the capacity post implementation of the strategic improvement plan.

The design of this assessment focuses on measuring the capacity of the Nekaneet First Nation to enter into agreement with the Correctional Service of Canada in accordance with CCRA Section 81. Active involvement of the community and stakeholders in particular, the Federation of Saskatchewan Indian Nations, in the gathering and analysis of community information is the backbone of a community capacity assessment and intervention. In the assessment phase (1), the client, stakeholders and CSC will gather data about multiple levels of the community, engage them in a dialogue about the information gathered and critically reflect on community impacts on client's situation. The very act of gathering information and using strategies, such as the traditional sharing circle will generally result in a shift in perspectives on situation and may change the definition of the presenting issue, toward more complex views of the interaction between personal and community factors.

The notion here is that we are not merely completing an inventory of types and categories of community/environmental resources, but rather conducting a critical analysis with the 29 community of their transactions with their environments and how it would impact on any ensuing agreement with the Correctional Service of Canada.

Our assessment will not be overwhelmingly focussed on environmental weaknesses and deficits, but will attend strongly to the strengths and resources in individual players and the community that form the basis for new connections and relationships (Kretzman & McKnight 1993; Saleebey 1997). This measurement will be applied to the seven assessment domains identified earlier in the report.

The design will be based on non-experimental design. The non-experimental approach will be applicable, particularly in extracting data from Aboriginal community members, through series of culturally appropriate gathering such as healing circle, sweats, and sharing circle. The non-experimental design such as participatory approaches in data collection will be used to enrich the quality of information collected and enhance the credibility of the data extraction process.

IX. DESCRIPTION OF METHODS:

As with all aspects of the assessment process, community capacity assessment is strengthened if data are generated using a variety of assessment methods and drawing on multiple perspectives (McMillan & Chavis 1986). As we employ various assessment methods, such as self-report and participatory observation, and explore more than one level of the community, our assessment will become more complete and valid.

1) Document Review

In conducting the capacity assessment with the community groups and other stakeholders, our assessment techniques will include review of existing Memorandum of Agreement, printed materials about the community such as newspapers, maps, newsletters, etc. and relevant policies. Also, the collection and analysis of records, guidelines, policy documents and standard operating practices of existing Section 81 facilities and its operational plan will provide significant insight.

30 2) Interviews

Formal and informal interviews with key informants, offenders, and other community stakeholders; interaction and participation with small groups and organizations within the community and careful observation of community events and interactions generally provide much insight into the community's perception about themselves and their community (Warren & Warren 1977). The purpose of interviews with stakeholders is to gather detailed descriptions of the practices and processes involved in managing the Healing Lodge in relation to the extent of the requirements of the agreement. Interviews will be conducted with several stakeholders and some of the interviews will be conducted in a traditional avenue such as Aboriginal sharing circle, sweats, etc. These stakeholders include, but are not limited to, operational staff at ()OHL, (Kikawinaw, Assistant Kikawinaw, Kisisinaw and Kikawisinaw), and administrators at both regional and national headquarters (Prairie Regional staff of Aboriginal Initiative Branch, Director General of Security Operations, Director General of Aboriginal Initiative Branch and Director General of Women Offenders).

The Nekaneet Band Chief and other community members will be interviewed. Some of the interviews will be conducted in person and some over the telephone. The questions that will be posed in the interviews will combine both open-ended and close-ended questions and responses will be documented in full, through detailed note taking and through voice recorders where appropriate. The interview questions will focus primarily on the seven domains of assessment identified earlier.

3) Observations

This is an unobtrusive method of gathering information regarding the manner in which an initiative operates. The evaluation team will observe some of the management practices, operational practices of the current lodge and the dynamic of relationship that currently exist within the community. of Nekaneet. Data collected during observations will be used to supplement interviews in order to complete the description and verify information gathered through other methods.

31 X. Reporting Strategy

The reporting strategy will be implemented by Performance Assurance Sector in partnership with representatives of the Prairie region and includes the following activities:

• Prior to leaving each site visited, management will be briefed on the preliminary onsite findings.

• Upon completion of the review, the Regional Deputy Commissioner or his representative will be contacted and briefed on the preliminary findings either in person or via telephone as appropriate.

• At the end of this capacity assessment, a report that details the assessment activities outlined on pages 13-21 and the findings and recommendations will be provided to the Commissioner and EXCOM members through the Assistant Commissioner, Performance Assurance.

XI. WORKPLAN AND RESOURCES COMMITMENT

The assessment work-plan for an elaborate capacity assessment/evaluation such as this would involve a period of document review, gathering of relevant information, verification and consultation with stakeholders. The team will travel to the Prairies regional office and institutions in both the Prairie region and the Pacific region in January 2005. The evaluation team will visit the Nekaneet Community and 0OHL to gather necessary information/data that falls in line with the seven domains that have been outlined earlier in the report.

The Assistant Deputy Commissioner of Operations in the Prairie region has requested that the evaluation should also assist in identifying those resources and activities that would be required to build/develop the capacity of the community. It is apparent that the co-management strategy that is currently in place at Kwikwexwelhp in British Columbia

32 may provide information for which we can recommend future collaboration between CSC and the Nekaneet community to explore such a strategy. Hence, the evaluation team will visit Kwikwexwelhp Healing Lodge during the course of the assessment. Data gathering, data analysis, and report writing (in January/February) will be based on the number of staff assigned to each process and the number of sites selected for visits.

33 I

REFERENCES

Alain Tobelem (1992). Institutional Capacity Analysis and Development System (ICADS): Operations Manual, LATPS Occasional Paper Series,

Dia, Mamdou, A., (1993). A Governance Approach to Civil Service Reform in Sub-Saharan Africa, World Bank.

Fukuda & Parr (1996), Beyond Rethinking Technical Cooperation: Priorities for Capacity Building and Capacity utilization in Africa, International Journal of Technical Cooperation, Winter, 1996

Hanson, S.M.H. (2001). Family assessment and intervention-Ecomap Family Health Care Nursing rd Edition. pp 181-184.

Hartman, A. (1978). Diagrammatic assessment of family relationships. Social Casework, 59, 465-476.

IDRC's Research Partners, (1995). IDRC, Institutional Assessment: A Framework for Strengthening Organizational Capacity for IDRC.

Leonard Joy, (1996) Guidelines for Capacity Development Programme,

MDGD, (1997). Capacity Assessment Development Guidelines.

MDGD, (1997). Capacity Development and UNDP: Supporting Sustainable Human Development,

Ohiorhenuan J. F.E. & Wu n k e r, S.M. (1997). Working Paper no. 2, Capacity Development, MDGD, Technical Advisory Paper 2, 1997

P. Morgan and A. Qualman (1996). CIDA, Applying Results-Based Management to Capacity Development—A Working Document, prepared for the Policy Branch.

P. Morgan and S. Taschereau., (1996). Capacity and Institutional Assessment: Frameworks, Methods and Tools for Analysis, prepared for CIDA, Policy Branch.

United Nations Development Policy Directorate, (1996). Building Sustainable Capacity: Challenges for the Public Sector, A Study for the Bureau for Policy and Programmes Support, OESP.

United Nations, (1998). Capacity Assessment and Development in a Systems, and Strategic Management Context. Technical Advisory Paper, No.3. Management Development and Governance Division, Bureau for Development Policy.

UNDP, (1993). Governance, Public Sector Management and Sustainable Human Development, Strategy Paper. New York.

UNDP, (1994). Capacity Development: Lessons of Experience and Guiding Principles,

UNDP (1998). CAPBUILD for Institutions, MDGMBDP,

34 Signatures

Original signed by

Thérèse Gascon Director General, Evaluation and Review

2005-04-13

Date

Original signed by

Cheryl Fraser Assistant Commissioner, Performance Assurance

2005-04-25

Date

35

SOL GEN. CANADA L B B BLIO 110 H11 I 00050559

Evaluation framework of th 98 assessment of the Nekane( .C87 First Nation capacity to E92 enter into CCRA section 81 2005 with the Correctional

DATE DUE

L'1L It

' glinf ' . _ 1‘,,e

GAYLORD PRINTED IN U.S.A.