Maximizing the Federal Investment in Criminal Legal Aid
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MAXIMIZING THE FEDERAL INVESTMENT IN CRIMINAL LEGAL AID Prepared by: Prairie Research Associates Presented to: Legal Aid Directorate Department of Justice Canada 2014 The views expressed in this report are those of the authors and do not necessarily represent the views of the Department of Justice Canada. • Information contained in this publication or product may be reproduced, in part or in whole, and by any means, for personal or public non-commercial purposes, without charge or further permission, unless otherwise specified. • You are asked to: - exercise due diligence in ensuring the accuracy of the materials reproduced; - indicate both the complete title of the materials reproduced, as well as the author organization; and - indicate that the reproduction is a copy of an official work that is published by the Government of Canada and that the reproduction has not been produced in affiliation with, or with the endorsement of the Government of Canada. • Commercial reproduction and distribution is prohibited except with written permission from the Department of Justice Canada. For more information, please contact the Department of Justice Canada at: www.justice.gc.ca . ©Her Majesty the Queen in Right of Canada, represented by the Minister of Justice and Attorney General of Canada, 2014 Cat. No. J2-406/2014E-PDF ISBN 978-1-100-25269-8 Table of Contents 1.0 Introduction ......................................................................................................................... 1 2.0 Approach ............................................................................................................................. 2 2.1 Document review and literature review .................................................................... 2 2.2 Interviews .................................................................................................................. 3 2.3 Interpretation of results ............................................................................................. 3 3.0 Context for study................................................................................................................. 4 3.1 Benefits of criminal legal aid .................................................................................... 4 3.2 Current pressures facing legal aid ............................................................................. 6 4.0 Current innovations and best practices ............................................................................... 8 4.1 Accessibility .............................................................................................................. 8 4.2 Effectiveness ........................................................................................................... 11 4.3 Efficiency ................................................................................................................ 21 4.4 Accountability ......................................................................................................... 32 5.0 Approaches to change ....................................................................................................... 36 6.0 Federal role ....................................................................................................................... 38 7.0 Summary ........................................................................................................................... 39 References ..................................................................................................................................... 40 Appendix A – Document and literature review template Appendix B – Compendium of best practices and innovations for improving efficiency and access to justice in criminal legal aid, 2007-08 to present Appendix C – Criminal legal aid in Australia, New Zealand, England/Wales, and Scotland Table of Acronyms CBA Canadian Bar Association CCM Criminal Case Management CRU Criminal Resolution Unit CSC Client Service Centre CSJ Commission des services juridiques EDC Enhanced duty counsel FSDC Full-service duty counsel HUOS Heavy Users of Service JOT Justice on Target KPI Key performance indicator LAA Legal Aid Alberta LAM Legal Aid Manitoba LAO Legal Aid Ontario LAS Legal Aid Saskatchewan LIOW Legal Information Outreach Workers LSB-NWT Legal Services Board of the Northwest Territories LSC Legal Services Centres LSS Legal Services Society of British Columbia MAG Ministry of the Attorney General MHS Mental Health Strategy NBLASC New Brunswick Legal Aid Services Commission NLLAC Newfoundland and Labrador Legal Aid Commission NLSB Legal Services Board of Nunavut NPA National Partnership Agreement NSLA Nova Scotia Legal Aid PEI LA Prince Edward Island Legal Aid PLEI Public legal education and information PWG Federal–Provincial–Territorial Permanent Working Group on Legal Aid SFET Simplified Financial Eligibility Test SOAP Simplified Online Application Portal YCDO Youth Criminal Defence Office YLSS Yukon Legal Services Society 1 1.0 Introduction The purpose of this study was to explore and identify innovations/best practices in criminal legal aid that will enable the federal government to maximize its investment in criminal legal aid and help ensure that Canada’s system of justice remains accessible, efficient, and fair, particularly for economically-disadvantaged Canadians. The innovations/best practices can include efforts to promote greater efficiency (e.g., streamlining processes; reducing costs in some areas through use of new technology or using other legal practitioners or professionals to deliver services; enabling people to assist themselves for simple matters), or improved access to justice by increasing the scope, accessibility, and quality of criminal legal aid services. The study focused on the federal investment in criminal legal aid. However, innovations/best practices that did not directly address criminal legal aid but promoted more effective, accessible, and efficient legal aid service delivery and operations, regardless of the type of legal aid, were also considered relevant to this study. In October 2013, Justice Canada established a Deputy Minister Advisory Panel (the Advisory Panel) comprised of a cross-section of experts from the health, economic, and justice sectors. Based on their respective areas of expertise, Panel members were expected to provide guidance with respect to the research, contribute to an analysis of the research findings, and, based on the research findings, provide advice and input to the Deputy Minister regarding innovations, best practices, and efficiencies in criminal legal aid that will contribute to maximizing the federal investment. The research results were intended to be used to inform the work of the Advisory Panel in advising the Deputy Minister on the development of a path forward to maximizing the federal investment in criminal legal aid. 2 2.0 Approach Two methods of data collection were used to support this study: a document and literature review, and key informant interviews. 2.1 Document review and literature review The document and literature review component involved a literature search of innovative approaches used in delivering criminal legal aid, both domestically and internationally. The review focused on literature from 2007 to present. The literature relied on publicly-available materials located on the websites for each legal aid plan in Canada. To ensure that the literature review was systematic and gathered comparable information from all legal aid plans, a template was used (see Appendix A). The resulting compendium of innovations/best practices within Canada is found in Appendix B.1 The international literature on innovations/best practices in legal aid focused on Australia, New Zealand, England/Wales, Scotland, and the United States. Early in the study, it was determined that the fragmented nature of the provision of legal aid in the United States made a literature review unfeasible; instead, interviews were conducted with individuals identified by an access to justice expert in the United States, who is also a member of the Advisory Panel, and a “snowball” technique was used to identify additional interviewees (i.e., innovative service providers identified by interviewees were also interviewed). Reports based on publicly-available literature on criminal legal aid in Australia, New Zealand, and England/Wales and Scotland are found in Appendix C. The study also included a review of the law practice management literature. This body of literature tends to focus on the private sector legal practice, rather than public sector law or, like many legal aid plans, a mixed model of service delivery. However, the literature does provide some possible considerations for legal aid plans, and is discussed where relevant. 1 “Best practices” is used because it is common terminology in environmental scans (e.g., best practices and lessons learned). However, because there is little evidence of relative impact of the innovations and some of them are quite recent, the compendium might be considered a list of promising practices. 3 2.2 Interviews Interviews were conducted with representatives of the Federal–Provincial–Territorial Permanent Working Group on Legal Aid (PWG) and/or their designates,2 Justice Canada officials, young Canadian lawyers with criminal legal aid experience,3 and international legal aid service providers. Interview guides tailored to each category were developed in consultation with Justice Canada’s Legal Aid Directorate.