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THE PRESS AND THE NATIONAL PAROLE BOARD:

PUBLIC OPINION AND CORRECTIONAL POLICY MAKING

r PN 4748 .C2 S7 1975 eiv 27/7-,e ,0 2

/rTHE PRESS AND THE NATIONAL PAROLE BOARD: PUBLIC OPINION AND CORRECTIONAL POLICY MAKING

"A report done for the National Parole Board, in partial fulfillment of field placement requirements, Centre of Criminology, University of Ottawa."

T.A. Wles March -1975

SOLICITOR .

APR_ 5 1990

• Gu R - i yTEUfl G N RAt. e*,-.AM4 i -t (01\ITAI-110) ACKNOWLEDGEMENTS

Thanks go to the Chairman, Mr. W. R. Outerbridge, for his comments regarding possible investigative frame- works, to Mr. G. Parry, Special Assistant to the Chairman( for his comments and facilitation of intra-service contacts (as well as encouragement), and to Professor R. Barrington for his comments and interest. Thanks also goes to Ola Hodgins for cheerfully undertaking the massive amounts of typing required while trying to read my terrible handwriting.

•

TABLE OF CONTENTS* PAGE Introduction 1 PART I, A LITERATURE STUDY Mass Communication (and the "Mass") 6 II The Press, Politics, Policy Making, and Corrections 14 III Public Opinion: Criminal Justice and Corrections 26 IV Public Relations 34 V A Brief Summary and Some Further Suggestions 41 VI Recommendation 45 Appendix 52 PART II, A FIELD STUDY Section A. Summary Analysis and Interpretation, Paper Clips 57 I Province by Province 62 II The Issues 68 III The Writers 70 IV Some Very Brief 'Case Studies' 72 Appendices A-D 74 Section B. Field Report, How the Press Operates 156 I The Press 158 II The Wire Services 165 III Television News 168 IV Impressions 170 Section C. Interviews, National Parole Board Members 175 Section D. The Current Structual Functioning of Ministry and Constituents' Communications 179 Appendix 182 PART III, SUMMARY AND COMMUNICATIONS PROGRAM RECOMMENDATIONS Section A. Four Questions Answered, The Summary 187 Section B. Recommendations; A Suggested Model 197 Final Recommendations 206

*As an Executive Summary is not included, the following pages, which should encapsulate the thrust of this report, are suggested for reading: 41-45, 58-73, 157-174, and 187-206. A comprehensive reading is, however, recommended. •

• INTRODUCTION

• I believe that all of you, in your various (correctional) services, must do more to build up a good relationship with the news media. I know that this is not simple, that what the reporter sees must pass through the blue-pencil level, but I also believe that poor relationships are usually the result of poor effort. In your fields of probation and parole it is paramount that you enjoy good "press relations". Otherwise, your successes will continue to be secrets and your failures to be publicized. The mass news media will not be constructively interested in you unless you show real interest and real co-operation with them. They are your communication channels with the citizenry. Don't fight them, join them! - George Putnam, T.V. News Reporter (49) THE PRESS AND THE NATIONAL PAROLE BOARD: PUBLIC OPINION AND CORRECTIONAL POLICY MAKING Despite the obviously strategic importance of the

press in mediating two-way communications between government agencies • and the citizen, very little is actually known about its role in public affairs. To what degree is public sentiment formulated

by press exposure; to what degree do public officials separate media response and true public sentiment; to what degree are

such officials swayed or constrained by what they read in the

press; to what degree are press opinions congruent with public

opinion.

I am left with an uneasy suspicion regarding the sophistication of policy planning sentiments when I note the

Ouimet Committee stating that "no study of the extent of public interest in the corrections field has been undertaken in Canada (17, P.32)", and more recently Boydell and Grindstaff e - 2 - (University of Western Ontario) pointing out that "one rarely sees a concrete demonstration that public opinion has actually been tapped (13, P.165)". Complan Phase I (1971), a pilot project of information and (public) opinion related to the Canadian penal system, and parole, prepared for the Ministry of the Solicitor General would appear to be an effort to fill that gap (22). However, the essential questions are still not answered. Complan Phase II, which was to deal more specifically with methods and channels of communications, readership profiles, media credibility and attitudes to do with pace of progressive rehabilitative programs implementation, was not carried out as planned.

The fundamental purpose of this paper is to take a wide ranging look at the phenomenon known as the Press, as it relates to corrections, and in particular, to the National Parole Board. The fundamental aim is to provide the National Parole

Board with information of general and specific interest and utility. Therefore, the presentation of tangential data, if thought to serve those terms of reference, will not be constrained. The paper is divided into three parts.

Part I will provide an information base from the appropriate literature on mass communications, the media, public opinion, and corrections.

3 - 3 -

Part II will provide collated data on the major

newspapers in the country vis a vis distribution, amount of coverage given Parole Board or Service matters, and the usual

directions (positive or negative, supportive or critical) such

coverage takes. The time frame will be from January 1971 to

December 1973. That material will be appended as Appendix A

with a numerical analysis of it in Appendix B. A descriptive summary analyses and interpretation will comprise Section A

of this part; this summary will include also circulation and market data gleaned from information noted as Appendices C and D.

Section B will be a brief description of how the press works operationally, how "news" is processed through to • appearing in the press, the perceptions of the press vis a vis corrections, and other germane issues, based on interviews with

select media personnel. Section C will comprise the observations of selected Parole Board Members vis a vis the media, including their perceptions of what effect it has had on the National Parole Board. Section D will be a brief description of how the

present communications system works vis a vis the National Parole Board and the media.

Part III shall comprise of a brief summary of notable findings of Parts I and II, and there will be an attempt to draw some reasonable inferences and suggest some recommendations 1 for possible future policy based on same. e

4 - 4 -

As a result of the nature of the breakdown as

suggested above, Parts I and II may be taken in isolation.

The summary, comments and suggestions on press relations noted at the end of Part I may be taken as an encapsulation

of the major thrusts and findings of that Part, for quick reference. Comprehensive drawing together and specific recommendations will wait, however, to Part III as already

noted.

• • M.I. 5 II■11

PART 1 •

• PART I

• I MASS COMMUNICATION (AND THE "MASS")

After extensive study in the area of mass communications, in 1948 Berelson glumly stated that the most

we could say about its effects was that "some kind of

communication on some kinds of issues, brought to the attention

of some kinds of people under some kinds of conditions, have some kinds of effects (41, P.4)". The literature still seems to indicate such vacuity, though Klapper sums up rather neatly

some important findings (P.4), from his point of view: (There

are some very conflicting views here, often focusing in the violence issue 65-66): 1. Mass communication ordinarily does not serve as a necessary and sufficient cause of audience behaviour,

but rather functions among and through a nexus of mediating

factors and influences. 2. The mediating factors are such that they

typically render mass communication a contributory agent, but not the sole cause, in a process of reinforcing the

existing conditions. This is held particularly with

regard to the alleged impact of violence on the audience group or individual. 3. On such occasions as mass communication does function in the service of change, one of two conditions

is likely to exist. Either: a) the mediating factors - 7 - • are inoperative and the effect of the media is direct; or b) the mediating factors, which normally favour reinforcement, will themselves be impelling towards

change. 4. The efficacy of mass communications, either

as a contributory agent or as an agent of direct effect,

is affected by various aspects of the particular media, the communication itself, or the communication situation.

The key, as far as Klapper is concerned, is that mass communications modify rather than change, and the

degree of modification, in his phenomenological viewpoint, is

dependent on the amount of ego-involvement. The mediating factors, according to Klapper are the following: 1) pre- dispositions and the related processes of selective exposure, perception and retention by the public, 2) the groups, and the

norms of the groups, to which the audience belongs, 3) interpersonal dissemination, contact and discussion regarding the communication, 4) the existence of opinion leadership and 5)

the nature of mass media in a free enterprise society - essentially,

the economics applying to business (the paper must sell).

The notion of opinion leaders is an important one

in research into the impact of mass communications in terms of attitude formations and change (39). The basic premise in this

"two-step" flow of communication is the following: ideas flow

from the media to the opinion leaders and from them to less •••■ 8

• active segments of the population. This kind of process is affirmed by the finding that although people often have knowledge of an area they have few opinions in the absence of

some kind of discussion. Opinion leaders are found to be widely dispersed through all social classes, and to be much

like the persons they influence, though they are usually

perceived as slightly more competent and intelligent. Often opinion leaders are area specific: food, fashions, corrections,

etc.; they are likely to transmit only information which is conducive to their or the group's norms, as perceived by them.

They therefore tend to be "conservative" (within their group

contexts) and reinforcing of already existing norms. • Related to the potential impact of opinion leaders are various aspects of the communications themselves. Opinion leaders can certainly be a part of the media itself;

i.e., individual writers, etc. The audience's image of the

source, its (his or hers) credibility (58), trustworthiness, prestige, degree of specialization (education), etc., determines

the effectiveness of persuasive communications (or communicators). It should also be noted that mass media are themselves widely

regarded with awe and may confer status on the persons and

concepts contained therein.

The question which we have to ask, and for which there appears no answer, is how much of the attitudes of the

opinion leaders are influenced by the media. Daniel Katz, - 9 - • in defining a functional approach to the study of attitudes, suggests that unless we know the psychological needs which are

met by the holding of an attitude, we are in a poor position to predict when and how it will change (38). Further, given

Schramm's model of communication, unless similar phenomenology surrounds the sender and receiver, we have an even worse

chance of gauging the result (57). The whole area of attitude

formation and change deserves some brief treatment here.

Practically all of the attempts at systematic

theory have utilized the same principle, that of congitive consistency. It would appear, on the basis of considerable

research, that the human mind has a strong.need for consistency, • and attitudes are generally changed for that result. The three theoretical models which use that principle are the

congruity model, the balance model, and the dissonance model. The latter is the best known and that which has produced the

most affirming research following its elucidation by Festinger in 1957 (30). Festinger's theory basically postulates that if an individual is induced to engage in behaviour which is inconcistent to his beliefs or attitudes, he will experience

psychological discomfort (dissonance), which will motivate him

to seek a resolution, i.e., either cease the behaviour, or change the attitude. Corrollary to that, a person cannot hold two

• - 10 - attitudes which are inconsistent (when the degree of ego involvement is considerable). The psychoanalytic tradition and others would have something to say here, but that is far beyond the scope of this paper.

There is one other theory which adds flesh to the picture, though it is more recent, that is, Bem's self- perception hypothesis (8). This notion is in line with learning and other theorists who point out that changing the behaviour will often change the attitudes. The hypothesis is as follows: "when identifying his own internal states, an individual partially relies on the same external cues that others use when they infer his internal states (8, P.50)".

In other words, we may think we are always reading our internal states directly, but we often "cheat" and "peek" outside to look at the same clues that others look at when they want to know our internal states. Furthermore, we are usually unaware that we do so. This is somewhat like allowing ourselves to "free react" to a situation, and determining our attitude on the basis of our initial spontaneous response. With these ideas as a base, let us return to the flow of communication.

Roper's concentric circle theory of the flow of ideas may be seen as complementary to the Katz and Lararsfield

(two-step) model, notwithstanding that it is a much earlier statement (52). Roper suggested, based on 39 years of public - 11 - • opinion research, that ideas generally penetrate the public very slowly, and they do so by a process similar to osmosis - moving out in concentric circles from the source, from

opinion leader to opinion leader. The rate of flow in the transmission and acceptance of ideas is governed by many

factors, which include Gallup's "Regulators of Absorption" (e.g. complexity of the idea, factors of difference from

accustomed patterns, competition with prevailing ideas, frequency of exposure, congruency with previous ideas, fills

a felt need deficiency) (31) and Lippmann's "Barriers to Communication" (degree of censorship, limitations of social contact, time element, message distortion due to compression,

etc.) (44).

In this context, Cutlup and Center note somewhat

tritely seven "C's" of communication to facilitate "getting the message across": credibility, context, clarity, continuity and consistency, channels and capability of the audience (24).

Before turning to an examination of the press itself; there are some comments to be made about the audience, in general terms. I draw upon Herbert Blumer's thoughts in this context (11).

The "mass", as a concept, is devoid of the

features of society or a community: no social organization, no

body of customs or traditions, etc. It merely consists of an - 12 - • aggregate of individuals who are separate, detached, anonymous and thus homogeneous as far as mass behaviour is concerned. Its behaviour is spontaneous, indigenous and elementary; in

short, it has the characteristics of mob behaviour. "Instead of acting in response to the suggestions and excited stimulation

of those with whom (the individual)'is in rapport, (the person) acts in response to the object that has gained his attention and on the basis of the impulses that are aroused by it (11,

P.66)". Migration, changes of residence, anonymity and complexity of urban living, anomie and the effect of the media (such as the presence of it attenuating or escalating group behaviour) has made the potentialities of such behaviour even more • significant. The "public", on the other hand, refers to a group of people (a) who are confronted by an issue, (b) who are divided in their ideas as to how to meet the issue and (c) who engage in discussion over the issue. As issues vary, so do the corresponding publics. The fact that an issue

exists signifies the presence of a situation which cannot be

met by a cultural rule. The public (on an issue) acquires a particular kind of "we-ness"; therefore, public opinion should be viewed as a collective product (not unanimous or necessarily

of the majority). However, the formation of (decisive) public opinion is through the give and take of discourse. • - 13 -

The questions for corrections are: (1) to which public(s) should we be directing our information for discussion (via opinion leaders) and (2) to what extent is the

whole populace interested in the formulation of corrections

opinions. The need, as will be stressed many times later in the paper, is suggested to be in the direction of increased contact with the (specified) public(s), to facilitate discourse and information towards.the possible resolutions and the

mandate foreto. The media is obviously a key link in the process of this communication.

•

to - 14 - • II THE PRESS, POLITICS, POLICY MAKING, AND CORRECTIONS The speech given by the then Vice-President of the United States, Spiro Agnew in Des Mornes, Iowa in 1969 in which he soundly chastized the media, in particular the

press, set of a chain reaction which has only more recently subsided (perhaps partially as a result of his own demise).

Scathing arguments and defenses marked the arena. Ironically, as Larsen notes, "for criticism of the mass media to gain

(really) significant social force, the mass media must enter

into the process (42, P.34)".

To understand the press and how it functions,

one has to take a historical perspective - to look at the social systems in which it functions: the "...basic beliefs and assump-

tions which the (broader) society holds - the nature of man,

the nature of society and the state, the relation of man to state, the nature of knowledge and truth (60, P.2)". In that context, there are two main theories of the press, and two more which are elaborations of the basics (taken from

Siebert et al, 60, Pp.2-4).

The oldest of these theories is the Authoritarian. It came into being in the authoritarian climate of the late Renaissance, soon after the invention of printing. In that

society, truth was conceived to be, not the product of the • greatness of the people, but of a few wise men who were in a - 15 - • position to guide and direct their fellows. Thus, truth was thought to be focused near the centre of power. The press therefore functioned from the top down. The press was the servant of the state, to promulgate what, and in the prescribed manner, the rulers wanted the people to hear. It is obvious

that this concept of the press eliminated what has come in our own time to be one of the most common press functions - to check on government.

The growth of political democracy and religious

freedom, the expansion of free trade and travel, the acceptance

of laissez-faire economics, etc., called for a new concept of the press; the result was the Libertarian theory. This theory 11› reversed the position of man and the state; the press was not an instrument of government, but rather a device for presenting

evidence and arguments on the basis of which people could check on the government and make up their minds as to policy - to be a partner in discovering the truth. It was imperative that the press be free from government control in a "free market

place". This was the North American tradition, i.e., the

press as "The Fourth Estate".

A new Libertarianism seems presently to have evolved, and is continuing to do so - known as the Social Responsibility Theory. With the increase in the complexity of

society, the push towards state control for the common good • - 16 - • (i.e., "welfare state"), and the increased press costs tending to concentrate ownership in the hands of a few, the cycle is beginning to turn. As the Commission on Freedom of the Press said, "protection against govenrment is not now enough to guarantee that a man who has something to say shall have a

chance to say it. The owners and managers of the press determine

which persons, which facts, which versions of these facts, shall reach the public (in 60, P.5)". The Social Responsibility Theory suggests that the power and near monopoly of the press therefore bestows on them an extra obligation to be socially

responsible, to see that all sides are fairly presented; if they

do not, it may be necessary for some other agency of the public to enforce it. This "theory" is now a seeming trend, and not an academic exercise. (It brings us back to the focus of the speech of Spiro Agnew.)

The real essence of this kind of dilemma on a daily operational level in the newspaper business is, I believe, captured in the following quote: "At some point in the fast-moving process of newspaper publishing, the newsman may be faced with a difficult choice - between the desire to fulfill public trust and the need to meet a deadline. The choice is made more difficult by the nature of the press: being news oriented, it is attuned to conflict situations and must accept the risk of hasty interpretations; it is geared to a language and style of harsh brevity and absolute certainty; it allows little room in its headlines, lead paragraphs and even substantive reports for qualifications, reserva- tions, shadings and nuances - all the safeguards against error available to the slower paced scholar ... But in certain dilemmas a choice of price must be paid, and when the choice seriously devalues the obligations of trust, the public may suffer (67, P.233)". - 17 - I now turn to elucidate this further, before

going on to examine the interrelationship and its impact on policy making between the press and the public official and latterly, more particularly, the correctional official. The first set of information is taken from comprehensive

interviews with 21 political reporters covering Wisconsin

capital affairs (29).

One reporter has suggested that "News is a vaguely definable commodity recognized more by instinct than by copybook maxims (29, P.24)". When choosing between two

items, the reporter will make his decision based on "the one

affecting the most number of readers, or the one in which the most number would be interested (20, P.25)". With regard to the latter, reporters note that they believe the reader is interested in: (1) conflict, controversy and attack, (2)

change, (3) uniqueness, and (4) "name" content, in decreasing

order of impact. The criteria of choice of material helps

in this daily task: (1) the events of the day, (2) contacts

with colleagues, (3) policy interests of the news organization and (4) relationships with sources (which is always reciprocal).

The reporter "gets" his news through covering meetings, attending press conferences, examining hand-outs or press releases, and talking to sources. In wording the story, the reporter looks to the target audience, but more than anything: • - 18 - "A reporter writes for his editors, and he also writes for

stature among his colleagues - not only his boss, but also the people around him (20, P.56)".

Reporters view their work as having a number of over-arching (but objective) purposes: (1) Neutral information transmission,

(2) Translation and interpretation of

government to the people, (3) Representation of the public, and (4) Participation in policy making.

However, faced daily with the constant onslaught of material, and

news, the reporter's personal attitudes and philosophical biases • and prejudices will show through from the point of view of content, interpretation, and selection and omission of material issuing from him or similarly, from and through his editor. Further, there are other impacts, which flow from the medium

itself and its total gestalt over which the reporter (or even particular editors) have little or no control (21):

(1) Placement of the item in the paper (position on the page, distance from front pages and section head

pages),

(2) Position of the item in terms of other similar, dissimilar, or contradictory news,

(3) Thrust of the headline and captions, use of words, phrases, images (inflammatory versus • neutral), - 19 - (4) Selection of photographs, (5) Use of editorials and substantive

reports, proximity to same, and (6) The hidden editorial - comment and description presented in an editorial manner.

Each of these is carried out by different "division of labour".

(On many of these latter points, there has

been a considerable amount of work done in social psychology in analogous situations. There is no attempt to re-produce it here;

however, it is worthwhile to note that these are significant phenomena which suggest that our gestalt perceptions when •

"consuming" news from the press is the result of a rather more

complex presentation, notwithstanding its whimsical and experiental derivation, than one might assume.)

Let me now turn to the sources of most of the news, the public official, and some findings of interest in that

dynamic.

Politz found that in a small town, newspaper

accounts often reinforce the authority of local governing bodies, and that this was attributable to the norms governing

the behaviour of professional journalists(47). However, the

dynamic tensions between newsmen and their sources more com- plicated than this (19, 29). • - 20 - • (1) City officials attitudes towards the press is a positive function of the degree to which

publicity, or the possibility thereof, is seen as having a "status conferral value" rather than a threat value. (2) Friction between the reporter and his news source increases with the difference in age; particularly

when the official is much older.

(3) Education seems important. For example,

the "self-made" newsman and the office holder who obtained good positions with little formal education may tend to be somewhat more hostile and/or cynical than • formally trained counterparts. This speaks to the issue of self-esteem and security. (4) Frequency of contacts between officials and press representatives is positively associated with favourability towards press on the part of the official;

this is inclined to be reciprocal. (5) The favourability of the newsman's

perception of the official as a source tends to be

positively related to the newsman's views concerning the respectability or professional nature of municipality,

city, province, etc., administration as a field of endeavour. • This is also a vice versa proposition. - 21 - (6) The relationship between the newsman and his source is also tied to the relative status each holds within his own group. (7) Harmony between the newsman and government officials is related to differences in the definition of what constitutes news and to the degree of overlap in the audiences the two have in mind when giving out or reporting news. This latter point is perhaps one

of the most crucial. Dunn states, after extensive interviews with 54

state officials, that: "What emerges from (the) picture of officials' views of the press's role is that the press serves as a mechanism of linkage between decision makers and private

• groups of individuals (29, P.66)". Specifically, the role of the press is to: (1) inform and interpret, (2) protect public interest, and (3) communicate public demands to the government, and (4) have a miscellaneous capacity.

Noting previous comments already mentioned with

regard to the reporter's perceptions of his job, the following seems to be the case with regard to both the reporters' and

officials' views (taken from Dunn).

There is broad agreement among both official and

reporter groups about the role of the press. Because of this widespread agreement, policy makers are not likely to interfere • with the reporter's work and may even attempt to facilitate it. - 22 - • Not only that, "Both (officials) and reporters have it in their power to build each other up ... (that) kind of 'back-scratching' is far more profitable to both sides than conflict (29, P.84)". Obviously, however, "public officials views of the press are

conditioned most by the extent to which they perceive the press as helping them to achieve their goals (29, P.85)".

The two groups, however, emphasize different aspects of the press's role: policy makers are more likely to

mention the press's less than neutral function, and they stress protecting public interest more than reporters. Ironically,

officials (in the study) expected reporters to be more active and less neutral than reporter's own perceptions of themselves. • Officials' criticisms focused on news emphasis, lack of experience, lack of objectivity, lack of technical knowledge, or a lack of indepth editorials with comprehensive interpretation. Praise focused on the notion of informal advisors (at higher levels), what is known as "testing the waters", and ability of press to assist the government in reaching its goals. However, officials

noted that of the means they used to disseminate information,

they obviously preferred those which allowed the greatest amount

of control over content, i.e., press releases and press conferences.

For our present purposes the main impact of the press in the policy making process appears to be this: by • focusing attention on various problems, it assists, at least - 23 - on one dimension, the public official in his perception of the

problem's importance and its content, with the possibility

for alteration before implementation. In corrections, in its present direction, this seems particularly important.

The literature in the area of corrections-media

relations, as with that regarding the reporter and the public official (generally) is skimpy and anecdotal; however, it does tend to describe the state of affairs which is perhaps only recently changing. A description of the media's impact on

correctional "policy making" will be left to the next section. The following information is taken from two pieces of work involving interviews with correctional personnel and political figures (28, 29).

A correctional official has been quoted as saying: "We're in corrections today where mental health was many years ago. The public used to think that there was no alternative to putting mentally disturbed people behind walls

until they died. Largely because of newspapers and magazines

they know better now, and they have to understand too that

there are other kinds of treatment for offenders than just putting them behind walls. (28, P.65)"

A veteran of over 30 years in correctional work

commented: "When I came into this work the basic feeling was • - 24 - to keep the public out. There has been a tradition of corrections people not levelling with the public. If there was trouble in institutions, correctional people tried to keep it quiet. The philosophy has been: 'publicity can only hurt you' (28, P.64)".

Another correctional officials recalled a warden of an institution who thought he had good public relations because he had persuaded the local newspaper to put stories of walk-aways at the bottom of page six or further inside.

The present trend: "We know today that the whole future of corrections is community-based programs; there's no question about it. But we also know that if the community doesn't understand these programs, we can't succeed in them.

This is why we have to have the media understand what we are trying to do and co-operate with them ... We realize today that it is foolish to try to keep trouble in our institutions secret

• • • Rather than let it leak out, we'll contact newsmen and give them the details (28, P.64)".

These thoughts are very much in line with those expressed by the Canadian Committee on Corrections:

... the public has an important role to play in developing treatment services. Public involvement in corrections also increases the understanding of crime and those who commit crimes ... The final step in rehabilitation is the assimilation of offenders back into the community. Without that step everything that has gone before is lost. The professional cannot substitute for the community, (and) he has the responsibility of preparing both offender and community for the offender's return (17, P.278). - 25 - • What then is the perspective of the news media ) the key link in this latter process, contingent on previous general comments, specifically with regard to corrections.

Contrary to corrections' ego, one of the findings

of the Delaney study was that, "... little thought (was) given

by editors to the correctional field as an area worth reporting

(P.63)". None of the newsmen interviewed was hostile to reporting of correctional practices; they were simply indifferent. None

of the newspapers or wire services studied employed a staffer

with a particular competence to report on and analyze news of

correctional practices. Like the public with whom they communicated (see below), editors themselves had little know-

ledge of the changing goals and approaches of correctional procedures.

"Enterprise reporting" (in-depth reporting of sub-

stantive affairs) was rarely exercised in the corrections area because most reporters doubt the willingness of correctional officials to co-operate. The editor of one newspaper asserted: "The people who run the prisons are willing to invite us over

for tea and crumpets, to view awarding of diplomas, holiday

programs and things like that. But they're very reticent to

tell what's going on unless it's good (28, P.64)".

Corrections, as previously suggested, needs now

very much to use the media - to keep the people informed and

to do a "public relations" job on itself. Before expanding on the "how", a look at public opinion and corrections will be

undertaken: the public - the third party to the tripartite model. - 26 - AND CORRECTIONS Ile III PUBLIC OPINION: CRIMINAL JUSTICE Examples where correctional agencies have been

quickly responsive to what they perceive as public demands and

sentiments are legion: reduced number of paroles granted, temporary absences, and other high "risk" rehabilitative programs have all born the brunt of the so-called public's "wrath" at

one time or another. It might be suggested that corrections has responded in a manner as though Dressler was right as he

wrote regarding his own experiences with public opinion, (though rather tongue in cheek) : "... (we were in) considerable

dread of it. It was a vaguely discernable, somewhat frightening joberwock, or perhaps the frumious bandersnatch, which stalks • the nigh when tis brilling and the slithy toves do gyre and gimble in the wabe (27, P.132)".

It was suggested at the outset that few attempts

have been made to actually tap public opinion. One must, therefore, assume that the agency response is to media response, and is one based on future considerations in the political arena of a possible present public opinion change, negatively construed. All correctional decisions must be justifiable

potentially under the white light of that arena; however, if the basic premise is false or unverrified, subsequent decisions may not be valid. As Scism notes "As public opinion acquires • - 27 - • saliency for public officials, other (as important) viables lose their potency as causal agents in the decision making

process (55- parentheses added)".

For the Canadian case, the Canadian Committee on Corrections, after appropriate analysis of crime rates, stated "... Canada has not been experiencing a marked increase in

serious crime. The dramatic increase in this century in the conviction for all offences taken collectively has been largely an increase in convictions for minor offences related to the growing use of the automobile (17, P.30)".

As a result of other such analyses, and the findings

that the public perception is one of the increase in crime (63) • Doleschal has firmly stated that, "... much of the public's fear of crime today is related to their perception of it as determiend by the media or by heresay: ... the steady stream of

reports of rising crime rates in both large and small communities

across the (country) (26, P.45)". While this, of course, may be

so as a result of increased communications globally (i.e., MacLuhan's global village), and that the political realities of perceptions are considerable is accepted, there are other

issues (below) which should put this in perspective, but which

more importantly form a logistical basis for educating the media and the public to a more sophisticated and indepth awareness of • - 28 - e correctional issues and to how other segments of the population feel. While doing so, corrections might also bear in mind

what James Bryce noted quite a number of years ago, when

speaking of the nature of public opinion: "..• to the great

mass of mankind in all places, public questions come in the third or fourth rank among the interests of life, and obtain less than a third or a fourth of the leisure time available

for thinking (9, P.16)".

1. The vicariousness of public opinion of the crime situation (as far as implications for the policy maker) is well documented. Despite the opinion expressed

that the crime situation is bad, an NORC study for the e President's Commission (63) found that most people tend to think of the situation as outside their own immediate neighbour-

hood. 73 per cent of the respondents in medium to high crime rate precincts in Boston and Chicago felt their own neighbour-

hoods to be either very safe or moderately safe compared with

other neighbourhoods. Further, there was very little statistical correlation between the experience of having been victimized

and the attitudes toward most aspects of the crime problem.

There are other findings which direct themselves

to this point. Again referring to President's Commission data,

polls found that the majority of respondents felt that courts • were too lenient in sentencing criminals yet they were also - 29 - distinctly in favour of a rehabilitative approach, and particularly with a young first offender, felt he should

be given another chance (63). The most recent Complan

study for the Ministry of the Solicitor General (1971)

attests to the overwhelming feeling (89 per cent) that rehabilitation should be stressed in prison, and more importantly 86

per cent expressed positive attitudes to spending more money

on rehabilitative efforts (22).

Another study found that the public viewed juvenile courts as too lenient, but when asked to suggest sentence, the penalties they chose were similar to or less severe than the ones actually handed down in juvenile courts (48). • The findings of Bogart regarding differential reponses to opinion requests when responsibility becomes involved as a reality of the decision affirm that result. Pioneering but extensive work

done by Sellin and Wolfgang (59) and more recently by others (2, 3, 4, 13, 14, 15, 32, 33, 34), in the area of public perception

of the seriousness of crimes has suggested that with regard to this aspect, "a pervasive social agreement transcends simple qualitative concordance; it extends to the estimated numerical degree of seriousness of crime (59, P.268)". In several instances, penalties indicated less serious treatment than what was being

handed out in Court.

• - 30 - • 2. Many researches, of which Complan is only one, suggest that the important variables in attitudes about the penal system are: the liberal-conservative dimension of social

values, education, age, sex, occupation, social economic status,

etc. The first two are the most important; further, primary and peer reference groups, particularly in an "opinion vacuum" are a most significant determinant of opinions and attitudes (1, 7, 10, 40, 50). The variety of public opinions and attitudes (on correctional matters) are based, therefore, on a variety

of considerations (22), and there does not appear to be one clear cut ideology shared by the public, which necessarily relates issues to each other (6). The public has different

attitudes towards different aspects of the crime problem (63).

This has been noted in many other countries as well. It also

speaks to the issue noted much earlier concerning the appropriate publics which should be of concern for corrections.

3. Newspapermen have been found to be among the least believable sources of information (about correctional

matters) when the public were polled - though of course that does not mean they carry no effect. However, it has been found that, when public opinion was tapped on crime and correctional issues, the public's views did not seem to be influenced by the

biases in the local newspapers, but, in fact, were surprisingly

close to the official picture (53). The implication here, of • - 31 - course, is that the official picture must be the true one; and the pertinent question is, has corrections been presenting an untrue picture of itself (which of course it has, by the very act of closure). At any rate, these findings are analogous

and complementary to these mentioned previously regarding other aspects of crime (such as seriousness). In short, corrections does not give the public enough credit.

In these regards, in summing up their work, Boydell and Grindstaff make an important point for these present

purposes: "A disparity between executive policy and public attitudes may merely be a function of the fact that the public at large does not have access to the same information ... If • this is the case, then it would seem to be the responsibility of those (involved in corrections) to disseminate such

information (13, P.18)".

Further, the President's Commission, after extensive study, concluded: "There is a clear responsibility to keep citizens fully informed about crime so that they will

have the facts to go (in making decisions) (63, P.89)". The Joint Commission on Correctional Manpower and Training (U.S.) has concluded from their survey that a "good deal of the present lack of public ... support may be ascribed to the failure of

corrections to show how public funds have been invested and • - 32 - what the returns have been in men, women, and children who have returned to the community after imprisonment (62)". At the present, "the field of correction is suffering from a serious communication (and credibility) gap (parentheses

added, 26, P.466)", both internally and externally.

In short, then, the public (mis-)perception that there is an increase in the relative amount of crime should not be a major consideration in an enlightened correctional program, and there is no doubt that corrections is as responsible

as the media for its own (apparent) demise. The public have indicated a willingness to try to understand, and the elitist positions one often hears in corrections about the "stupid • public" is an excuse, not a reason. Once there was a reason as part of a mandated philosophy, but as Peter McNaughton Smith has

stated: "When the reasons change, and the activity remains,

the reasons begin to look like excuses (45)".

This is said also with the priviso which Boydell and Grindstaff make to their comments previously noted, and which

lies, after all, at the core of the democratic ideology; that

is "If (public opinion) does not (change as a result of receiving all requisite information), however, such (proposals) may indeed be enough out of step with public sentiment as to be deemed inadvisable (13, P.180)". • - 33 - • How then, can corrections achieve the needed discourse, with appropriate publics as well as present itself

in the best possible light.

•

• - 34 - • IV PUBLIC RELATIONS Perhaps noother area of the criminal justice aggregate, has received such whimsical, but tremendously significant, for its impact, publicity as the trial process. By and large, it has been marred by inexperience and unsophis-

ticated public relations on the part of the system, and

extravagant irresponsibility on the part of the press.

Views on the resolution of the free press - fair trial issue are often polarized to the extreme; from the assumption that the"white light" of publicity is the greatest deterrant to corruption and inefficiency in trials (6)", (the assumption being that that is the natural tendency) to various • attempts at total news black-outs which were the result of the Reardon Report (based on the Dr. Sam Sheppard case). The

views of the press on the latter is summed up by their feelings

of one of their main functions: "How is the watchdog to perform its function if it is kept muzzled in a kennel far from the

house it is support to protect (37, P.33)".

The essence and impact of the dilemma was once

summed up by Supreme Court Justice Hugo Black, when he wrote that "free press and fair trial are two of the most cherished policies in our civilization, and it would be a trying task

to choose between them (61, P.20-21)". The result has been • - 35 - arbitrary rulings and orders by individual judges (23) which have been played as fodder in the hands of the press to maintain that "the law is an ass".

Yet the problems are very real, as shown by rulings of mis-trials on the basis of prejudicial publicity affecting the jury: the Hauptmann trial for the Lindberg kid- napping, the Dr. Sam Sheppard case involving his wife's murder, the Sgt. William Calley case of the My Lai massacre, and the now unlikely possibility of a trial for Nixon in the Watergate affair. As Columbia Law School Professor Abraham Sofaer has said: "No one has the right to get away with a crime (simply because it) is so notorious everybody knows about it (61, P.20- 21)". The resolution of the cases against the "dirty dozen" involved in the Kingston disturbance is an example of possible controvention of "justice" as a result of intensive publicity.

The task of the press and the justice system is one of mutual interest. The press has the task of informing the public, forming public moral views, and teaching the public to identify really unlawful and immoral behaviour. At all times, therefore, it is requisite that the press demonstrate a good knowledge of the subject and a good sense of responsibility (51). The press have usually always, in the cool light of day, accepted that as a reasonable premise (25). - 36 - • Corrections must realize the need also for sensational stories, but that there is no reason why both

agencies cannot get similar mileage out of them (56). As Hill (1970) notes, writing in the American Journal of Corrections, "How to Improve our Public Image", corrections must use the

media (36). Sometimes the best community relations will come from helping another organization fulfill its committments:

public relations programming and efforts should be a part of every

correctional organization. The tension and dynamic involved

in corrections - press - public issues is directly analogous to the issues surrounding pollution control. Writing with regard to the latter, Chambliss and Walsh make an important • point: "... it is clear that sound press relations work excellently ..., maybe even better than in other places because (the area) is ... changing so fast. And bad press relations practices do even more damage here, because of the complexities and suspicion

that exists (20, P.22)".

Public relations is defined by Canfield and Moore as "... a social philosophy of management expressed in policies and practices, which, through two way communication with its publics, thrives to secure mutual understanding and good will

(18, P.4)". The basic objective of public relations is to

measure, analyze and influence public opinion, which develops from the attitudes of individuals comprising the public. • - 37 - • Note that there may be several "publics"; note also that the stress is placed on two-way communication - which in practical terms means assessment directly as well as analysis of media presentation.

Canfield and Moore go on to stress the need for decentralization in public relations for an organization.

This expedites public relations at the local level by providing

closer contact with the public, better insight into local opinion, and improved communications. Writing with regard to business: Public relations is the responsibility of all managers at every level of authority from the top to the bottom of an organization. A public relations department is an administrative group which aids the managers of all departments in carrying out their • public relations functions. It has no line authority, but exists to advise, assist, and stimulate line operating executives to improve their internal and external communication (18, P.99 - emphasis added). To change the tenor of this presentation just

briefly, I suggest that this is a worthwhile model for corrections

agencies to consider, and thus am at variance with the

recommendations in this regard of the Interim Report of the

Ministry's Task Force on Information (July 1971) (16). I concur on the basis of information in this paper to this point with

their descriptions of aims and objectives, the need for internal communication and education, and the general thrust

of the suggested "style of public relations (P.9)". • - 38 - Based on foregoing discussions, however, I cannot agree that public relations in corrections can continue to be low-key" and be effective within the new terms of

reference and emphasis on community corrections; that is not to say it should not be subtle and sophisticated.

The nature of the news, as pointed out previously, achieves its sensationalism only to the degree that it stands out over "regular fare". If sensational incidents within the

correctional sphere are to maintain a constructive end for corrections, two things must happen: (1) they must be seen

within a broad and correct context, necessitating a heightened awareness of correctional aims, problems and dilemmas, i.e., • within an increased threshold of "excitation", and (2) correctional agencies must have greater control over the flow of information pertaining to themselves as it appears on or in the media. This control is not to be seen as achieved through the negative construct of censorship, but rather through mutual and reciprocal

facilitation and understanding between the media and corrections;

this is seen as only to be achieved through extensive use of the media and interpersonal relations, by policy and not by chance. The personal attitudes of the correctional agent towards the media will have the greatest amount of influence in successful such public relations (35).

• - 39 - • Before noting some of the suggestions of various authors with regard to (correctional) public relations programs, there are some very important findings with regard to media

selection which demand more than passing reference, and which speak to the technical nature of effective public relations.

In a fairly recent article by Wade and Schramm, they point out from their findings that public affairs information which "impacts" with the widest segment of the populace

comes from the television (although this is also dependent on education level). Health and science information seems to come from written material. But education is the most powerful predictor of mass communications use: the more education a person has, the more likely he/she will use print as his major

source of news and information. There is a decided interaction between education, the information to be imparted, and type of media use (64).

This is not an isolated finding. For the

Canadian case, the Complan study came to a similar conclusion

after examining their data: ... information programs instigated by the department should be geared to the various educational levels and the media sources of information used by each group (22, Section 4, P.3)". This requires extensive data compilation

to maintain accurate profiles and indices. Corrections must • - 40 - • (directly) read the message the public is getting*, which requires extensive, solid research. Without that "intelligence", corrections risks responding out of unnecessary ignorance and dangerous self-delusion. How has dissatisfaction occurred;

what are its roots; and to what degree are the solutions within control of corrections?

Corrections must avoid only "communications" solutions. The task is to change the (allegedly) negative

image of corrections, but it is also not to make it necessarily

a "good" one. The story must be told as it really is. Do not delegate the problem solely to professional communicators. The task requires exposure of correctional leaders as credible s and creditable people for thepublic - as people in whom the public can have faith - not hiding behind a body of smooth communications specialists or an effective screening organization.

* Some of the following thoughts are adopted from "By Gosh the Pitch is Wrong: Marketing Communications in the Grocery Industry" by Mel S. Morgen (46).

• - 41 - • V A BRIEF SUMMARY AND SOME FURTHER SUGGESTIONS

The problem with summarizing is that in so doing, many of the subtleties and nuances of information become., and there is a tendency to over-simplify complex . matters. lost,

We are in a position at this stage of at least partially

answering some of the questions posed on the first page of this paper. However, that exercise shall wait until Part III; notwithstanding, a brief summary sha11 be made to provide "bench-marks" for the analysis which will comprise Part II of

this paper.

The literature seems to indicate that the media do

have an impact on public sentiment, but the impact is more in the direction of modification rather than absolute change,

except in rather unusual circumstances. Different media carry with them different "reaches" in terms of audiences, impact, and the type and nature of communication. The more information which is available, the wider the base upon which discourse can be enticed; discourse would appear to be the real mistress of change.

Opinion leaders seem to be crucial to the process; opinion

leaders and the media are not mutually exclusive*. Level of

education of the audience and small "c" conservatism and small

* The need to know opinion leaders was stressed by the Task Force on Information. A compilation of such people has been undertaken • by the Ministry. - 42 - "1" liberalism are the most important determinants of attitude formation and stands on issues. The public must be made aware

of its own misconceptions about corrections, about its own potential role in corrections and of the positive efforts it can undertake. There is a need for geeater candor and contact

between correctional leaders and the public.

Corrections has not so much been a failure at handling the media, because the closure has been an historical ideological function, but it has failed to realize the importance

of good public and press relations as needed for the long term

effectiveness of its goals. Public opinion has infrequently been tapped in terms of continuing sources of checks and balances; • the mandate once achieved was never re-examined. There is an uneasy suspicion that this phenomenon is still with us, as

correctional politics seems to be geared to media response with

no yardstick by which to separate it from public response.

Sources of media information are not known at this time, but it seems that correctional change is a direct,

and perhaps inverse, function of intensity of media coverage,

based on political considerations. Corrections has kept the public ignorant, and then gotten ignorant responses; there is no

need to assume that would always be the case for the majority. • - 43 - • Research findings as to police effectiveness and efficiency have found no distinct and consistent correlation between the public perception and the amount of negative media coverage.

In short, we do not give the public enough credit. That is not to say that one must not use sophisticated techniques and

approach the area with intelligent caution.

Visible public relations should be the responsibility of all correctional managers throughout the chain of

command. Field level personnel should be considered as excellent sources for the public if there is adequate vertical

and horizontal internal communication, and with the advisory and consultative assistance of behind the scenes communication • specialists in staff positions. The media must be made aware that corrections is

a special field requiring specialized knowledge for adequate

coverage. Representatives of both groups should meet regularly

to discuss mutual problems and possible solutions. Corrections, due to its past lack of co-operation, must take the initiative towards the media to establish better lines of communication.

Corrections must hold an offensive rather than

defensive posture. That means seeking out newsmen and assessing

for them critically and realistically existing correctional practices, problems and needs. It means contacting newsmen • - 44 - * and taking the time to explain in detail the risks and goals of new programs. It means understanding what newsmen regard as news and working to secure for them within limits set by law and professional ethics the human interest examples that

are often needed to make correctional concepts comprehensible to readers.

All corrections personnel should be well briefed nationally and locally in order to provide adequate press and public relations. The risks are great, but perhaps worth undertaking if we are really sincere about the so-called rehabilitative emphasis in corrections. The dangers of poor

briefing may be likened to Faust, who as he listened to the • witch as she was concocting the golden drink that was to give him happiness, love and knowledge, said: "What balderdash doth she recite? Methinks I hear in chorus, quite a hundred

thousand idiots prating (54)".

• - 45 - • VI RECOMMENDATION That a study, such as that proposed for Phase II

of the Complan study, should be undertaken, with specific foci on their terms of reference, IV, V and VI.

IV To expand certain areas of questioning. For example, in the pilot data on media usage to gain information on the penal and parole system were both useful and revealing; however, by expanding questions on media credibility, opinion maker credibility, sources of readership presently used, etc., we would furnish the information service with a comprehensive profile of the public as a consumer of media and as a believer (or non-believer) of both media and author. This information would then permit the department to disseminate information in the most efficient manner. V Questions should be added to determine respondent attitudes to those penal reforms already introduced as well as those planned for the near future. Are the reforms too slow? Too far reaching? Not broad enough? VI Phase II would be a pulse-taking of reactions to the Department's handling of both short and long term problems, some of which are unforeseen and must be resolved in the public eye. (22, Phase II, P.4).

If we could first know where we are and whither we are tending, we could better judge what to do and how to do it.

A. Lincoln (16, P.17)

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•

• PART I, APPENDIX

• - 53 - APPENDIX A

1. BOBROW, Davis B. Mass Communication and the Political System. Public Opinion Quarterly. (1973-74), 37/4, 551-565.

2. BOLT, W. Public Opinion and Law Reforms. Criminal Law Review (1961) June: 385-394. 3. BRAITHWAITE, W.J. Press, Prison, Publicity Paper presented to the Third Biennial Canadian Congress of Corrections. Toronto May 1961.

4. BROWN, R. Social Psychology. New York: The Free Press. (1965) P. 784.

5. CANADA, Special Committee on the Mass Media. Senate Report. (Keith Davey) Ottawa: Information Canada (1971).

6. COCHRAN, M.O. The Police and the Media. Police Chief. (1971) 38/10 (6).

7. DEVEREAUX, Mary Sue. Television and Violence. Ottawa: Carleton University, School of Journalism (1970).

8. ERSKINE, Hazel The Polls: Opinion of the News Media. Public Opinion Quarterly (1970-71) 34/4, 630-643.

9. EVANS, R. How to Handle the Press. Law Society Gazette. (1972) 69/5 (1).

10. FRIENDLY, Alfred and Goldfarb, Ronald. Crime and Publicity New York: The Twentieth Century Fund (1967).

11. GEISER, R.L. and Newman, R., Psych. and the Legal Process: Opinion Polls as Evidence. American Psych. (1961) 16/11: 685-690.

12. GIBBONS, D. "Who Knows what about Corrections?" Crime and Delinquency (1963) April, 137-44.

13. HARTMANN, E., Isaacson, H. and Jurgell, C. Public Reaction to Public Opinion Surveying. Public Opinion Quarterly (1968) 32/2: 295-298

14. HINDALONG, Michael J. Public Opinion Regarding Crime, Criminal Justice, and Related Topics. Journal Res. in Crime and Delinquency (1974), July, 101-116. - 54 -

15. JAFFE, C. The Press and the Oppressed - a Study of Prejudicial News Reporting in Criminal Cases. Journal of Criminal Law, Criminology and Police Science. (1965), 56/1, 1-17 and 56/2 (158-171).

16. KADUSHIM, Charles. Power, Influence and Social Circles: A New methodoloty for Studying Opinion Makers. American Social Review (1968), 33/5, 685-698. 17. KING, Charles W. and Summers, John O. Attitudes and Media Exposure. Journal of Advertising Res. (1971), 11/1, 26-32. 18. LANGE, G.E. and Lang, K. Some Pertinent Questions on Collective Evidence and the News Media. Journal of Social Issues (1972), 28/1, 93-110. 19. MAISEL, Richard. The Decline of the Mass Media. Public Opinion Quarterly (1973-74), 37/2, 159-170.

20. MacCORMICK, A. "Fight Back", urges Austin MacCormick. American Journal of Corrections. (1971), 33/3, 5 and 17. 21. McDOWELL, C.P. The Police as Victims of Their Own Misconceptions. Journal of Criminal Law, Criminology and Police Science (1971), 62/3, 430-436.

22. McLUHAN, Marshall. The Medium is the Message. In Schramm, Wilbur and Donald F. Roberts (Eds.) The Process and Effects of Mass Communication. Chicago: University of Ill. Press (1971) Pp.100-115. 23. MINERVINE, G. Freedom from Fear. Ross. (1967), 17/4-5, 533-544. 24. ORLOW, D.Z. and Francis, A. Mass Communication and Crime. Social of Crime. (1961), 239-254. 25. SCHOENFELD, Clarence A. Publicity, Media and Methods. New York: The Macmillan Company (1963), Pp. 371. 26. STREET, George T. Public Relations - Parole and the Police. American Correctional Association 99th Annual Congress of Corrections. (1969), 208-303. f - 55 - 27. TICHENOR, P.J. Donahue, G.A. and C.N. Alien. Mass Media Flow and Differential Growth in Knowledge. Public Opinion Quarterly (1970-71), 34/2, 159-170. 28. VAN LEEUWEN, W.H.M. Public Relations in the Penal System. Moandschr. Gevangenisw. (1968), 20/2, 25-34.

29. WARREN, R.S. and Abell, J.M. Free Press - Fair Trial: The 'Gag order', A California Aberration. Southern California Law Review. (1972), 45/1, 51-88.

•■

• • - 56 -

PART II •

• • -57-

PART II, SECTION A

• - 58 -

PART II, SECTION A As indicated in the Introduction to this study, this

part and section contains collated data on the major newspapers in the country vis a vis distribution, amount of coverage given Parole Board matters, and the usual direction such coverage takes.

By province, those newspapers are here included which indicate four or more items per year in which: a) the article deals specifically with the Parole Board or Service as a focus or b) the Parole Board or Service was mentioned in passing within some

other (correctional context) or in which parole or some aspect of parole pertaining to the federal service was similarly mentioned.

The time frame is January 1971 to December 1973.

The selection of articles falling within the above terms • of reference are those which were found within the total body of articles abstracted from major newspapers across the country by the Ministry clipping service, Paper Clips. That clipping service was started in 1971, on an informal basis to keep personnel in various services of the Ministry informed on a country wide basis of what was being written about them and the relevant issues. At this point

Paper Clips subscribes to 40 papers across Canada and one person goes

through these daily, photocopying articles relevant to the Ministry

and these are circulated daily to Ministry personnel. A monthly edition of these is put together, and for brievity, the less important items are culled; it was the monthly editions which were used in this analysi

Therefore, articles not picked up by that service will not appear in this analysis. Articles in French, for these present purposes, • are also not included. - 59 - The results of the analysis, by paper and by year for the three years, are presented on "Information Sheets", following a specific format, as can be noted from below. In

the top left and right hand corners of the page, the name of

the particular paper and the particular year are noted respectively. "1" is a narrative including the following information: a) the total number of articles appearing during the year falling within the terms of reference; b) the number in which parole matters or the

Parole Board or Service are of focal concern, and of those, those which are i) supportively written or presented or carry a positive impact

ii) neutrally reported occurrances and those which

seem to suggest no negative or positive connotations, and

iii) distinctly critical, unsupportive, negatively sensationalistic or carry a negative impact;

c) finally, the number in which the Parole Board or

Service or parole matters are mentioned in passing are noted also broken into the rough categories noted above vis a vis impact. Also included in this naraaraph are the months in which articles appeared.

"2" is the article by article précis and analysis which supplies the information in "1". It is concerned with authorship, • and is broken down into three categories: - 60 - a) those articles in which the naine of the writer is indicated;

b) editorial comment, and c) those articles in which no writer is indicated;

also included in this latter are letters to the editor. Generally speaking, the articles so presented in list form in this section are printed chronologically, from the first of the year to the last.

"3" is a narrative summary for the year, to be seen in addition to "1 11 . Included in this summary is the inferred

editorial policy, the apparent major interests of the paper vis a vis

parole, whether in depth articles have been done or not, particularly • perceptive articles are noted, and those writers which seem to stand out in terms of presenting balanced or supportive or

constructively critical articles are indicated. It generally is

to present an overview of the material presented in "2".

Note: For a quick estimate of the position of the paper, section "1" and "3" will suffice.

Also Note: The data presented and the comments included are solely

the judgement of the writer.

The "Information Sheets" are presented by Province and year, from West to East. Included in a face sheet for each province is the circulation of the papers concerned (per 1973 ABC Factbook),

the rank it holds amongst other papers in the country based on that, - 61 - and up to four centres including its own where the paper has a substantial circulation. "T" indicates total circulation. All of the above is presented as Appendix A. Also appendicized are the following:

B Data Summary Sheet for the foregoing analysis;(Appendix A)

C Circulation and rank of the major newspapers countrywide per ABC Factbook; D Major market circulation coverage analysis for major newspapers countrywide per ABC Fackbook.

Based on all the above, the following summary analysis and interpretations are now presented: I Province by Province II The Issues III The Writers. IV Four Very Brief 'Case Studies' - 62 - PART II, SECTION A I ANALYSIS: PROVINCE BY PROVINCE:*

In British Columbia, the papers of note are the two

major dailies in Vancouver, the Province and the Sun. Neither indicate a particular interest in parole matters, judging by the dearth of articles noted (See Appendix B), but what material does appear seems to suggest a critical stance in both

cases (both editorially and otherwise). The Sun has about double the circulation of the Province, however, and of the two it seems less critical. Further, articles by Dave Stockand are particularly well written and balanced, even when judging on

a national basis. He also has an interest noted over two years.

These two newspapers do not seem to have major market centres

outside Vancouver, with the exception of a very small circulation • in Victoria. In terms of population reach, it might be noted that the Sun is the third largest in Canada.

As with B.C., the Alberta daily major newspapers noted do not appear to have much interest in federal parole matters. What interest there is seems to present itself in a positive vein.

Neither of the papers, the Edmonton Journal or the Calgary Herald, have a noted reach outside their respective places or origin,

* It is important for the reader to appreciate that the analysis indicates only material relevant to the Parole Board or Service, and does not speak to the amount of material not examined (or not existing) which focuses on other areas of corrections. It may be suggested, however, that due to the inter-relatedness of correctional issues the level of interest (quantity and quality) generated towards the Board or Service may be construed as • representative of the paper's general interest in corrections. - 63 - in terms of population reach. It is worthwhile to note that the Edmonton Journal is ranked seventh on a national basis. Circulation and market data was not listed with the other major dailies in Canada, for the Prince Albert Daily Herald in Saskatchewan. Noting that, and the dearth of articles of interest to this study for that paper, it becomes difficult to suggest any status. It can be noted that of the articles appearing, most were editorials and all of those were of a positive and supportive nature vis a vis parole and corrections generally. No daily newspaper of substantial circulation and written material, per the criteria outlined in the introduction to this Section, is noted for Manitoba. The Regina Leader Post, the Winnipeg Free Press and the Winnipeg Tribune, circulations 66,425; 134,541; and 74,857 respectively, though amongst the larger papers in Canada, indicate almost no articles which fall within the present terms of reference. What articles do appear are of a generally supportive stance. The picture in Ontario is particularly complex, as a result of the general high level of interest indicated by several of the major dailies and the circulation impact many of them have. The Toronto Star is ranked number one in circulation size across the country. Although not nearly as prolific as the Toronto Globe and Mail (which is second in the country, but has just half the circulation), by far the majority of its - 64 - editorials are constructively critical or particularly supportive.

This also holds true for other articles appearing in the paper.

The converse is true for the Globe and Mail - by far the majority of editorials are critical as are other articles

appearing in the paper. If it can be stated that the Star has a mild interest in corrections vis a vis parole, it is in

the area of bolstering the idea of parole and keeping the public

advised of policy changes, it can also be stated that the Globe and Mail seems to be very interested in parole and sees itself as a reactive and reform body (of parole, that is) and is not inclined to constructive criticism. As can be noted from a

following section, John Beaufoy is one of the more prolific writers for the Globe and he seems to take a consistently critical stance. Nationally, no other writer compares in terms of quantity, except Rae Corelli of the Star who vaguely leans on the balance toward supportive presentations.

Notwithstanding the Star's double circulation compared to the Globe, the latter paper appears to have a wider range of circulations, with only half of the daily production

remaining in the Toronto area. Of the Toronto papers,.it turns up in Ottawa far more often than its rival, and of the cities

where there is a substantial mutual distribution, ie., Hamilton

and St. Catharine's - Niagara, it holds well over double the

circulation. The Toronto Globe and Mail, on that basis, is an extremely influential paper. • - 65 - The two Ottawa papers, the Journal and the Citizen vie with each other for superiority in distribution; they are

ranked over all 19 and 17 national wide on that basis. The largest portion of their daily production stays in Ottawa. Between the two, the Citizen indicates slightly more interest

in parole, but the interest level generally is not striking. Berth papers are inclined to take a vaguely critical stance, based on the editorials noted and other articles appearing. Don Sellar of Southam News Services is by far the most prolific writer, and he also is noted in the Globe and Mail and the

Montreal Gazette. He seems to appear neatly on both sides of the issues in those papers - with a slight predisposition on the balance towards being critical of corrections initiatives.

The Kingston Whig Standard in size is not of particular note, but its location suggests its importance. Interestingly, although parole issues do not appear as strong interests, the few articles which can be noted are balanced, and generally supportive. It does not have a wide circulation, but may (and this is speculation) be a paper which is watched nationally for stories. Comparing the Whig Standard to the Globe and Mail, their differential responses may lend credence to the notion that issues and events are treated in a more balanced way locally because of the "feel" of the local paper for its area, then at some distance. - 66 - Before leaving Ontario, there is another point of

worth to be noted. In both the Star and the Globe and Mail,

the editorial focus proceeds chronologically a series of items

on the same topic or point. There seems a subjective correlation

between the general stance of articles in the paper and ensuing editorial stance. No causal implications are needed here, but the question becomes a question of how general and/or editorial

policy is set; one may assume that in a general or specific way, it must be set.

The major English speaking Quebec papers reviewed are the Montreal Star and Montreal Gazette. Both papers are ranked

in the top 10 nationally (fourth and ninth respectively),

regarding circulation, but two of the French dailies, also

Montreal based, are also in that category. This is important to realize when reading this analysis.

The Gazette has a more wide ranging circulation than its English speaking rival; it has a reasonable circulation in

Ottawa-Hull where the Star does not, and has double the circulation of the Star in Quebec City. Of the two, however, the Gazette also tends to be the more critical paper, both in editorial policy and with regard to relevant articles generally. Neither paper

shows excessive interest in parole matters. However, a note-

worthy series in the 1971 Star by Jean de Guise is by far the most outstanding article nationally for all three years with regard to a perceptive and balanced presentation of correctional issues, and those pertaining to parole. It will later be suggested

that this kind of article is that which corrections generally and

parole in particular should encourage. - 67 - The Maritime newspapers do not provide many articles

dealing with parole or parole issues. Of those which do, most take a supportive or a nondescript stance; only the Moncton

Times and the London Free Press suggest themselves to take a

critical stance; note also that this comment is made based on few articles.

• - 68 - II THE ISSUES

• As can be noted from Appendix B, over the three year period, in terms of numbers (the issue of quality and quantity - length, etc. is separate), the National Parole Board received substantially equal "time" in terms of positive or supportive

articles and negative or critical articles, both where parole was a focus of the article and where there was passing reference.

However, it is also apparent that in terms of length, and direction, articles critical of the National Parole Board hold the balance.

The vast majority of the total number of articles

noted were of a criticism - defense nature, i.e. reactive. The defense usually took the form of statistics being quoted and/or • mention of general philosophical or economic (in a few cases) justifications for parole policies. The critical or negative

articles focused in most instances around cases which had become "cause celebres",apparent inconsistencies in Board policy and a lack of a clear headed philosophy, the excessive power of the

Board, the secrecy of the Board, and the need for public education in that latter context. Neither the defenses nor the criticisms were generally very perceptive.

There were two particular kinds of "criticisms" which are worthy of note; there were several articles (1) chastizing

the Board for over-reacting to public pressure and backing away

from a progressive stance; and (2) essentially supporting the • - 69 - whole idea of parole, but taking the pragmatic stance that too many mistakes (i.e., laxity of parole granting) would cause a

public backlash which would over-wash onto all areas of corrections and considerably set back public confidence in the penal and

parole reform which was needed. This latter point suggests

very clearly the importance of timing in correctional matters, an issue which will be taken up in Part III of this study.

It can be noted that there were very few articles succinctly pointing to the need to "pound home" the number of

successes, rather than always focusing on failures. Of the almost 300 articles noted over the three year period in this study, there were only three which could be considered at all as indepth balanced discussions or presentations of the issues in parole. In addition, there was the odd human interest story of a success.

• - 70 -

III THE WRITERS

Of the 52 writers across Canada who have written within the terms of reference of this study, 22 have written one or more article(s) which may be construed as supportive or

positive. The majority of these, however, have only written

the one article. Those who have written more than one in a

consistently supportive manner are_the following: James 7' Vancouver Province), Rave Stockap2 (Vancouver Sun), Paiii- Jackson (Vancouver Sun and Ottawa Journal), Frank DQbbs

(Calgary Herald), Ben Tierney (Ottawa Citizen, Montreal Gazette), Bob Pennington (Toronto Star), Rae Corelli (Toronto Star),

Richard Fleming (Kingston Whig Standard), Jean de Guise (Montreal Star), and W.A. Wilson (Montreal Star). Dave Stockand and Jean de Guise have been mentioned in previous text as particularly outstanding. Those writers who appear in more than one paper are those where the article is syndicated.

There are several writers who appear consistently

critical or unsupportive of the issues regarding parole, and who have written more than one article. These are: Bob Bell (Edmonton Journal, Ottawa Citizen), Don Sellar (Ottawa Citizen, Toronto

Globe and Mail, Montreal Gazette), Michael Valpy (Toronto Globe and Mail), and John Beaufoy (Toronto Globe and Mail). Sellar,

Valpy and Beaufoy all seem particularly prolofic writers, and it would appear some efforts should be made to seek them out and

make them aware of the complexity of the issues; this would also • - 71 - be true for many of the "supportive" writers, in order that

their articles may be more perceptive. The reasons for

the importance of this will be suggested later when discussing how the print media operates on a day to day basis.

• - 72 -

IV FOUR VERY BRIEF 'CASE STUDIES':

In order to assess the potential reach of significant incidences (based on perusal of all the material) four of the more notable were chosen; two of them originated in the West, two in the East. Two (one of each) were of incidences arising out of the parole "context" and two (again, one of each) were of occurrances and publicity surrounding the temporary absence program, but which bver-flowed' into the area of parole when substantively dealt with by the newspapers. The four were: the Anderson caper in the B.C. (Matsqui), Bewley's "62", the Geoffrey case, and the controversy surrounding the (early) release of the Nelles kidnappers. The results may be quite simply stated.

The Nelles case did not appear in any of the articles noted outside of Ontario, receiving its most extensive coverage by the Globe and Mail. The Anderson incident did not appear in articles noted outside of B.C., with the Vancouver

Sun and Province seeming to 'carry the ball' on that one. The Geoffrey case, of course, received substantial headlines in the East; it did also in both Vancouver papers, though the activity seemed to die down quite quickly. Bewley's "62" received the most extensive coverage, both East and West of any stories noted throughout this study. In conjunction with that publicity, - 73 -

was that of criticism by ex-provincial court judge Mulligan; both were referrenced repeatedly by Eastern based papers.

In this connection,it might be noted that both of these people wrote extensive articles themselves, Mulligan in the Weekend Magazine and Bewley in the Vancouver Sun.

If one can generalize from these findings, it would appear that two conclusions are possible:

(1) newspapers perceive 'local' stories as

being most if not entirely significant for their purposes (whatever those purposes may be), and (2) when dealing with the media a two pronged

effort is required to obtain national 'cohesiveness': a) at a local level, and b) at a national level.

With regard to that latter, it may require utilizing national media, such as Weekend Magazine or its counterparts. The information

contained in such national uses must have national stature and

interest, i.e., both local and general. Perhaps, after all, what is happening in geographically distant parts of the country

can never attain real psychological significance for the reading public. That latter is said assuming that the implicit newsprint

'psychology' is correct. These findings are indeed congruent with those indicated in Part I of this study. • - 74 - e

PART II, SECTION A • APPENDICES A-D

•

- 75 - •

BRITISH COLUMBIA

PAPER RANK CIRCULATION CITY

• 1. Vancouver Province 15 112,100 T 74,834 Vancouver 587 Victoria

2. Vancouver Sun 3 234,902 T 190,877 Vancouver 883 Victoria - 76 -

INFORMATION SHEET

PAPER: VANCOUVER PROVINCE YEAR: 1971

Note: Nothing appeared in paperclips which pertained to the

National Parole Board or Service for the year 1971.

• - 77 - INFORMATION SHEET • PAPER: Vancouver Province, YEAR: 1972 1. There were ten articles which appeared this year dealing specifically, or relating specifically, to Parole Board or Service (critical and non-critical). There were three other

articles which appeared in which the Parole Board or Service was mentioned in passing, the focus being on other areas of corrections. Of the total of the thirteen articles, five were

of a distinctly critical nature and two were marginally critical (these latter two were where passing reference was made to

parole in another critical context). Four of the articles were distinctively suomortively presented, including one letter

to the editor by an ex-parolee's wife. The articles appeared in February, April, June, September, October and November.

2. Authorship: a) James SPEARS, two articles: First, large feature article, April 29, focus on Matsqui program for drug offenders, explains program, where parole fits, seems accurate, supoortively presented. Medium to large article, October 30, report of project of industry helping parolees, supportively presented.

Alex YOUNG, two articles: First, medium length article, November 16, neutral kind of reporting of Donald Anderson case, local public officials vs CPS official quoted, parole mentioned in passing. A small to medium length article, November 18, report of an MP calling for a Parliamentary enquiry into paroles and temporary passes, etc. Focus on CPS rather than NPS, vaguely critical by implication. • - 78 -

PAPER: Vancouver Province YEAR: 1972

b) Editorials: There were two editorials this year, both of them taking a critical stance. First, a medium length article, February 3, calling for more emphasis on protection of public and parole decisions, quotes Bewley, calls for system to be tightened up. Second, medium length article, June 22, criticism of Goyer! ,s parole policy, call for availability for the public of how the system works, a call for explanation of policies.

c) Not Named: Letter to the editor, ex-parolee's wife, supportive of notion of parole, stress to look at successes and not only on failures. A small article, June 10, report of Bewley's comments and criticisms of NPB when re-sentenceing a parolee, critical by inference. A small article, June 21, appeal for • volunteer sponsors to work with parolees, U.B.C. project, supportively presently. A small to medium article, September 15, fairly neutral kind of reporting of Street's comments in defence of parole releases. A medium length article, October 7, quoted report of Goyer' s hard position towards parole for drug offenders and his instructions of same to Street, supportive by inference. A small article, November 10, implicitly critical of Parole Board by the reporting of Bewley's comments while sentencing to jail a man who had already broken parole four times (also one of Bewley's "62").

3. Both editorials take a distinctly critical stance and on the

balance there appear to be more critical articles than non-critical

• articles. James Spears seems to stand out as being most supportive, • while Alex Young leans towards the critical. There were not indepth articles noted. - 79 -

INFORMATION SHEET • PAPER; Vancouver Province YEAR: 1973 1. There were two articles which appeared this year dealing specifically with Parole Board and Service matters; two others mentioned parole in passing. Of the total of four articles, one of them maybe suggested to be critical and the

other one leaning towards criticism. Two articles were distinctly supportive of parole and National Parole Board. The articles appeared in the months January, March, May, and July.

2. Authorship: a) Berton WOODWARD, large article, January 29, report on Street and Bewley confrontation at U.B.C., both points of view presented, weighted in favour of Street, statistics on releases quoted. Jack CLARKE, medium to large article, March 9, • a perceptive article, use of statistics, and international comparrisons, suagesting that we can't rehabilitate a person in jail, we must accept some parole failures and continue to rehabilitate on parole. b) Editorial: There was only one editorial in this year. It was of medium length, May 15, suggested recognition of the complex issues in corrections (prisons and parole), but need for public information and a call for institutions to be escape-proof until methods of release become more sophisticated.

c) Not Named: Small article, July 7, quotes Mulligan's criticisms of penitentiary system and Parole Board.

3. The editorial policy as in 1972 continues to lean towards

the critical. As in 1972 there are again calls for public

education and information and explanation of policies. Both

Clarke and Woodward appear perceptive writers who would be supportive of corrections' initiatives. The Clarke article

may be suggested to lean towards indepth reporting. - 80 - INFORMATION SHEET

PAPER: Vancouver Sun YEAR: 1971 1. There were no articles appearing this year dealing specifically with Parole Board or Service matters either of a critical or non-critical nature. Of the two articles noted parole is mentioned only in passing in the context of the article focusing on other aspects of corrections. Neither of the articles may be construed as being critical in any way. The total number of articles for the year is two and the articles appeared in February and October.

2. Authorship: a) Neither of the articles were written under anyone's name.

b) Editorials: One of the articles was an editorial focusing on the CPS and a new work for pay program in prison. George Street was quoted briefly and the whole editorial could not be construed as anything but supportive of rehabilitative progress.

c) Not Named: One article, quite short, dealt with citizen participation in corrections. It was a neutral presentation.

3. Unable to conclude much on the basis of two articles, however, as noted previously, the editorial was distinctly supportive. - 81 -

INFORMATION SHEET

PAPER: Vancouver Sun YEAR: 1972

1. There were seven articles which appeared this year dealing specifically with Parole Board or Service matters (critical and non-critical). The three other articles which appeared this year mention parole only in passing reference. Of all the articles, four were of distinctly critical nature. Not included in the latter was one article by Dave Stockand in which the criticism was of a different focus as noted below. In a miscellaneous category there was a cartoon by Norris which ridiculed parole. There were therefore ten articles which appeared this year; appearing in the months, January, June,

August, September, October and November.

2. Authorship: a) Paul JACKSON, medium length article, January 5, focused on parole as a useful tool, supportive, Street quoted, parole statistics given to support general success.

Judge Les BEWLEY, very lengthy feature story, January 11, "Why Attempt to Reform a Rotten Man?", reiterating the Court as the proper focus of the CJS, focusing on criticisms of correctional groups who have set their expectations of success too high and who implicitly undermine impact of the Court. Simma HOLT, lengthy article, January 24, parole mentioned only in passing, focuses on an inmate who is "making it". Neutral as far as parole is concerned. - 82 - Vancouver Sun YEAR: 1972 gl, PAPER: Jim BILLINGSLY, small to medium length article, June 17, quoting Mulligan at length re his and Bewley's criticisms of Parole Board.

Peter WILSON, Medium length article, August 2, use of citizens with parolees to give support (U.B.C. program), a call for volunteers. Dave STOCKAND, two articles: 1st, large article, October 30, very supportive of parole and temporary absence program, stressing need for public support. A very length feature article, September 19, focusing on whole area of corrections as a result of Geoffroy's and Tanya Busch incidents, criticism focussed more towards corrections backing away from its proper and progressive stance, informative and factually correct.

h) Editorials: Only one editorial appeared this year, June 17, medium length, criticism principally focussed on Goyer re his parole principles and specificially and implicitly on the Parole Board itself. c) Not Named: Two very lengthy articles appeared under this category, both November 16, re the Donald Anderson caper, high dearee of ridicule and criticism of whole federal system through quotes of local officials, information gleaned, etc. - focus on parole as responsible and on - temporary absence program under which Anderson was operating.

3. There were quite a number of hot issues available during

this year and the articles seemed to reflect this; in terms

of size the critical articles held the balance, in terms of number support held the balance. Principally STOCKAND, but • also Peter WILSON and Paul JACKSON would be good contact people • based on the articles. - 83 -

INFORMATION SHEET

PAPER: Vancouver Sun YEAR: 1973 1. Of the total of the three articles which appeared this year, only one focus specifically on the Parole Board and Service.

One of the other articles was filled with the criticisms of an MP in the House of Commons on parole and social scientists in the corrections system and the other was implicitly critical. The articles appeared in May and January.

2. Authorship: a) Dave STOCKAND, length article, January 29, report of Street and Bewley confrontation at U.B.C., points made by both people noted, a fair presentation by Stockand, equal time to both views. Conclusion: appears to be mildly supportive of NPB position.

h) Editorials: There was one editorial, a fairly lengtlyarticle, May 17, criticism that Parliamentrv enquiry into prison • parole and temporary absence not enough - should have a Royal Commission in to the whole corrections, particularly parole and screening processes. c) Not Named: Medium length article, May 17, report of strong criticism by MP in the Commons re the Charles Head case, slamming parole and social science "bleeding hearts".

3. On the balance a critical pose particularly with regard to the editorial; as in 1972 Dave Stockand presents balanced and supportive articles. •

- 84 - •

ALBERTA

PAPER RANK CIRCULATION CITY

1. Edmonton Journal 7 160,053 T • 121,559 Edmonton

2. Calgary Herald 16 110,322 T 94,781 Calgary - 85 - INFORMATION SHEET

PAPER: EDMONTON JOURNAL YEAR: 1971

NOTE: Paperclips do not note any articles appearing in 1971 pertaining to the National Parole Board or Service.

• - 86 - INFORMATION SHEET • PAPER: Edmonton Journal YEAR: 1972 1. There was only one of the total of three articles this year which dealt specifically with Parole Board or Service matters. It was supportively presented as was the other which

mentioned parole in passing. There was one miscellaneous item

namely a cartoon which took a poke at day passes. The items

appeared in June, October and November.

2. Authorship: a) There were no articles written this year under anybody's name.

b) Editorials: There were no editorials noted this year. c) Not Named: A small article, November 24, report on savings to taxpayers and figures earned by parolees at work in the city and in Canada, D.R. quoted. • A small article, October 26, report on panel discussion at University of Manitoba, re general successes of use of day passes and day parole.

3. A summary for the year is not indicated.

• - 87 -

INFORMATION SHEET • PAPER: Edmonton Journal YEAR: 1973 1. Of the six articles which appeared this year, only two dealt specifically with Parole Board or Service matters. The other four mentioned the NPB or NPS in passing, two of which were in supportive or positive context. One of the six articles

is scathingly critical and two others are mildly critical. The two mildly critical articles do not focus specifically on the

Parole Board or Service. The articles ampeared in January, February, May and December.

2. Authorship: a) Bob BELL, small to medium length article, February 8, straightforward report of government intention to tighten parole rules, mention of Huggessen Report to be released soon to stir up debate, informative. • b) Editorials: One small article, May 16, report on the announced parliamentary committee on penal system, call for it to move ahead quickly to find the problems and to give enlightened answers, mildly rebuking.

c) Not Named: A timy article, January 31, report of comments of someone who scathingly attacks both judges and Parole Board, critical inference.

Letter to the editor, February 2, supportive, but a call for review of granting procedures. A small to medium length article, May 15, regarding parliamentary enquiry, essentially same position as the already noted editorial. A small article, December 14, parole mentioned in passing in positive context.

3. A summary for the year does not seem indicated as a result of • the small number and size of the articles appearing. - 88 - INFORMATION SHEET

PAPER: Calgary Herald YEAR: 1971

NOTE: Analysis of paperclips provided no relevant articles for this year.

•

• - 89 -

INFORMATION SHEET

PAPER: Calgary Herald YEAR: 1972

1. Of the four articles appearing this year, three focussed directly on Parole Board and Service matters. In the remaining one parole was mentioned inpassing. None of the articles appearing this year could be taken as critical. The articles appeared in September, October and November.

2. Authorship: a) Frank DABBS, two articles: 1st, medium length article, September 29, report of comments Senator Hastings made to some inmates at Drumheller re their input into Senate Parole Report, positive impact.

2nd, lengthy article, November 27, re conference between businessmen, correctional parole officials and inmates, report of feelings expressed at same, supportive presentation. Val WERRIER, medium size article, September 20, contradictory position seems taken by writer, basically supportively presented though, statistics used.

h) Editorials: There were no editorials noted this year.

c) Not Named: A small to medium article, October 4, report of comments of Frank Miller upon retiring, supportive.

3. Although there were few articles to infer from the presentations all seemed in a positive focus. Frank Dabbs appears to have some interest in corrections and though his reports noted are not indepth, he seems to write in a supportive manner.

• - 90 - INFORMATION SHEET

PAPER: Calgary Herald YEAR: 1973

1. There were four articles which appeared this year, three of which dealt specifically with parole matters. All three of those could be seen as supportive or in a positive light, the remaining one was critical in its focus on slamming the whole penal system. The articles appeared in April and May.

2. Authorship: a) No articles appeared this year under anyone's name relevant to parole matters.

h) Editorials: There was one small editorial May 17, essentially agreeing with CCCA position on parole.

c) Not Named: Small article, May 10, straightforward report of Parole Board expansion.

Small article, May 16, reads somewhat like an editorial, criticism of Canada's penal system and criticism of the govern- • ment. A small article, Apri117, report of committee of Senator Hastings calling for focus on success in parole instead of failures, statistics quoted, positive impact.

3. As with the previous two years noted corrections does not appear to be of particular interest of the Calgary Herald. However, what articles do appear seem essentially positive and supportive. There are no indepth articles.

• •

SASKATCHEWAN

PAPER RANK CIRCULATION CITY

1. Prince Albert Daily Herald Not listed as falling within the top 80 newspapers regarding circulation.

• - 92 -

INFORMATION SHEET

PAPER: Prince Albert Daily Herald YEAR: 1971 & 1972

NOTE: There were no articles appearing in paperclips relevant to Parole Service or Board matters in these two years.

•

• - 93 -

INFORMATION SHEET

PAPER: Prince Albert Daily Herald YEAR: 1973

1. Of the six articles appearing this year, none could be seen as critically oriented. As many as three were editorials focusing both on the prison system and on parole. The articles this year appeared in March, May and December.

2. Authorship: a) Oren ROBINSON, small article, May 10, quoting Faguy and population rise in prisons, informative article only, neutral stance, in *conjunction with other medium size articles about prisons.

h) Editorials: Small to medium length article, March 5, criticism of our archaic prison system, but recent indicents should not cause public to apply pressure to cut back on humanitarian freedoms, call for more parole.

A small to medium length article, March 10, criticism of prison system and suggesting more paroles should be granted. A medium size article, December 6, in support of inmate self-help group, a call for funds, critical of formal system by inference, but not seen of much significance in total impact.

c) Not Named: Small to medium length article, March 10, report of Allmand announcing new parole policies, positive impact, supportive presentation. Series of short articles appearing together on St. Leonards, March 24, positive impact for St. Leonards and parole idea.

3. If anything can be inferred from the editorial policy this paper is most supportive of the corrections generally and parole in particular. As nothing is noted in the previous two years, it seems that corrections may be becoming of more focal interest of this paper.

- 94 -

• ONTARIO PAPER RANK CIRCULATION CITY

1. Ottawa Journal 19 82,719 T 55,587 Ottawa-Hull

2. Ottawa Citizen 17 91,622 T 78,074 Ottawa-Hull

3. Toronto Globe and Mail 2 268,393 T 149,917 Toronto 16,408 Hamilton 12,062 Ottawa 11,978 St. Catharines - Niagara

4. Toronto Star 1 539,125 T 415,528 Toronto 9,021 Oshawa 4,659 St. Catharines - Niagara • 2,673 Hamilton 5. Kingston Whig Standard 36 32,346 T (No other data available)

• - 95 - INFORMATION SHEET

PAPER: Ottawa Journal YEAR: 1971

1. There appear to be only three articles turning up for this year, only one of which focuses specifically on parole. None take a critical stance. The articles appear in April, May and October.

2. Authorship: a) Mike BRYAN, large article, April 29, focus on Parole Board, supportive of parole principle via presentation of Street's remarks.

b) Editorials: No editorials appear this year.

c) Not Named: Small article, May 15, report on Solicitor General's announcement of Mohr Committee, parole mentioned in passing, neutral presentation. A small article, October 1, supportive of education projects in prisons to help a person eventually on parole.

3. Nothing conclusive can be inferred from the articles: the Bryan article is not indepth but reasonably perceptive and supportive in nature. ■■ •• - 96 -

INFORMATION SYSTEM • PAPER: Ottawa Journal YEAR: 1972 1. All eight of the articles appearing this year relating vis a vis parole to correctional matters/7ocus specifically on the National Parole Board. Of these, four were of a distinctly critical orientation and one more was mildly critical in impact. Three of the articles were distinctly supportive and positive in nature. The articles appeared in January, March, June, July and November.

2. Authorship: a) David YATES, medium length article, January 20, report on Goyer's critical comments of NPB at Richelou Club, neutral presentation.

Danny FRANCIS, small to medium article, March 15, report of comments Street made re support of parole, statistics of success quoted.

Paul JACKSON, small article, July 3, report on figures released by Goyer, figures quoted for keeping a person in jail vs parole, parole notion supported as cheaper. h) Editorials: Two editorials appeared this year: 1st, a small to medium length article, January 21, suggesting there is a need for examination of basic principles of parole, but criticizing Goyer's attacks on NPB as inappropriate.

2nd, a small article, March 10, criticism of NPB, too many releases of borderline cases, statistics quoted of increase in failure rate.

c) Not Named: Letter to the editor, November 29, very critical of Parole Board's policy of releasing prisoners, well written article.

Small article, June 29, criticism of Goyer's administration of prison and parole release system. - 97 -

• PAPER: Ottawa Journal YEAR: 1972 A small article, June 29, report of comments made by Kirkpatrick in support of parole.

3. As inferred from editorials, it may be suggested that the position of the paper is from mildly critical of the NPB, however, also critical of buck-passing by administration.

Jackson's article appeared to be the more indepth of any of the others and most positive from the corrections point of view. None of the articles were striking as very perceptive, though none were very lengthy. • - 98 -

INFORMATION SHEET • PAPER: Ottawa Journal YEAR: 1973

1. Of the eight articles appearing this year, four may be construed as positive and supportive of the National Parole Board and Service. Seven of the eight articles focus specifically on parole, sometimes in conjunction with a more general focus.

Only the one article mentions parole in passing, and that is in a supportive context. Three of the articles may be construed as being of a critical orientation. The articles appeared in February, March, April, May and November.

2. Authorship: a) Richard JACKSON, small to medium length article, February 8, report of Allmand lunching with CPCA, well presented ' article from Allmand's point of view, parole as one of a number of topics • discussed. Kathleen SHAW, (ex-director EFS), lengthy article, March 9, vindication of present system, perceptive article suggesting the complexity of problems, call for public education and informative response.

Diane JUDGE, lengthy article, November 29, report on Kingston pre-release centre for women, tenor of the article is supportive, parole mentioned in passing. b) Editorials: There appear to be three editorials appearing this year, two may be construed as critical and one mildly supportive.

Small article, April 27, critical of whole system for not getting on with its business, tongue in cheek supportive presentation, impact as cfiticism. A small article, May 20, criticism of duplication of temporary absence and day parole system, call for both under • Parole Board. - 99 -

PAPER: Ottawa Journal YEAR: 1973

Small article, May 15, criticism of Street and NPB for not getting on with his job instead of complaining that no one appreciates the Board.

c) Not Named: Small article, February 6, reporting of a crime committeed by parolees, negative impact. Small article, May 10, announcement of Zeitoun as Community Liàison man.

3. If anything may be construed from the editorials appearing this year, it would appear that correctional matters were of interest around the middle of the year and that generally the interest took the form of criticism. Only the SHAW article

treated corrections indepth and was a particularly good article, • however, she would not appear to be a regular journalist. Corrections matters does not appear to be of particular concern to the Ottawa Journal during this year.

• - 100 -

INFORMATION SHEET

PAPER: Ottawa Citizen YEAR: 1971

1. There were only two articles which appeared this year, one of which was supportively presented criticism and the

other, which carried negligible impact one way or the other. The constructively presented article was one focusing specifically on the NPB; the other was mentioned only in passing. The

articles appeared in April and December.

2. Authorship: a) Ben TIERNEY, small to medium length article, December 6, report of pending examination of NPB and possible revamping of it, positively presented vis a vis NPB, stresses successes, but indicates need to look into system. b) Editorials: No editorials were noted for this year.

c) Not Named: Medium length article, April 30, • report of Goyer speaking to JHS, focusing on pending federal-Provincial conference, parole mentioned as one of many issues, neutral presentation.

3. Summary for the year: Not much can be inferred for this year, because of girth of articles, however, the Tierney

article definitely indicated constructive biases.

• - 101 - INFORMATION SHEET • PAPER: Ottawa Citizen YEAR: 1972 1. Of the five articles which appeared this year in which the National Parole Board or Service was referenced, f-i-veV00,

on the NPB and the remaining one mentioned focussed specifically

it in passing. There was only one article which could be

construed as critical, with the rest maintaining a rather neutral stance. The articles appeared during the months of July, September and November.

2. Authorship: a) Don SELLAR, medium to large length article, November 23, report on Goyer's suggestion of tightening parole policies for particular kinds of offenders in the wake of temporary absence program violations incidences, Geoffroy and Head, some explanation of system given, neutral kind of presentation.

h) Editorials: There was only one editorial appearing this year, a small article on November 11, criticism of Street for polarizing people as either for or against the NPB, call for him to respond to message, not messengers. c) Not Named: Tiny article, July 3, focus on notion of Regional Boards to screen all people leaving prisons, even TAP.

Small article, September 15, neutral presentation of Street's comments to PJA in B.C. re cutting back on paroles because optimal level of releases had been reached. A small article, November 25, parole mentioned in passing in report on the potential use of ex-cons in penitentiary service, netural presentation.

3. As in 1971, the Ottawa Citizen does not appear to be greatly concerned with correctional matters. Anv concern indicated from

an editorial point of view was critical. No indepth articles appeared this year. - 102 - INFORMATION SHEET

PAPER: Ottawa Citizen YEAR: 1973

1. Of the ten articles which appeared this year in which the National Parole Board or Service was mentioned, seven of them focussed specifically on Parole Board or Service matters. Passing reference was made in the other three. Two of the articles were distinctly supportive of the parole, and one other appeared in which support might be inferred. Three of the articles could be construed as of a neutral kind of presentation.

Two of the articles contained implied criticisms and one other carried a definite negative impact. A passing sort of criticism could be construed from one other. The articles appeared in February, March, May, July, September and December.

2. Authorship: a) Bob BELL, small article, February 8, suggestion of pending tightening of parole system prior to release of Huggessen Report, which would stimulate public debate, neutral presentation. Doris SHACKLETON, medium length article, May, recognition of complexity of issue in corrections but calls for need for maintenance of high degree of credibility of Board and that means tightening up on paroles. Steven SCOTT, medium length article, December 15, supportive report of just completed federal-provincial conference and some of the matters of federal- provincial co-operation discussed. Don SELLAR, Medium length article, March 14, report on position of CCCA brief to Senate Committee on Legal and Constitutional Affairs, supportive presentation, includincr CCCA criticism of NPB's cutback in paroles. Large article, May 7, recognition of difficulty any SG finds himself in, suggests Allmand seems to have done all right to date, speculation on whether he can continue to do so, but positively framed. Parole mentioned in passina. - 103 - 110 PAPER; Ottawa Citizen YEAR: 1973

Medium length article, May 11, reporting on Allman's announced intention to expand Board, while Huggessen Report is still pending, excessive work load stressed, reasonable article, supportive implications.

Medium length article, first of a series, July 26, a story about a native parolee breaking his parole in a con- fidiential meeting, point of article not clear, implied indirect criticism of NPB for releasing the person.

h) Editorials: No editorials were noted for this year. c) Not Named: Lengthy article, February 19, focus on capital punishment debate in Commons, criticism of parole in passing. Large article, March 17, focus on petition of citizens in Kingston concerned about high crime rate,implied result of high density of parolees in city, negative impact.

Small Article, May 23, netural presentation of fact that lifers will continue to get few paroles,

Small article, September 27, focusing on parliamentary committee's visit to P.A. Penitentiary, Parole Board mentioned in passing re native peoples low granting of paroles, concern over same noted.

3. On the balance, there seems to have been given about equal time to number and size of critical vs supportive articles. Sellar was obviously the most prolific writer for this year; he seems to

do a fairly neat job of appearing on both sides of the issues;

his articles are usually fairly long and he does not always appear particularly perceptive, inclined to pander to "populas taste",

but does also do the more constructive type of articles. He is

with Southam News Services. Interests of the paper inferred from the

fr, . - 104 - 110 PAPER: Ottawa Citizen YEAR: 1973

to corrections. There were no real indepth articles done and no editorials.

• - 105 -

INFORMATION SHEET

PAPER: Toronto Globe & Mail YEAR: 1971

1. of the seven articles noted which appeared this year, four focus specifically on the National Parole Board and parole matters. Of those four, two carry a sort of positive impact and two a distinctly negative one. Of the three articles in which parole was mentioned in passing none were in a critical context and two were distinctly positive, the other two being neutrally presented. The articles appeared in January, April, May, October and December.

2. Authorship: a) No articles were written under anyone's name. h) Editorials: Only one editorial was noted a small to medium length article, ' January 5, focusing on the issue of parole of commuted lifers, is critical of possibility of parole, but is constructively so, effective support for notion of parole, with suggestive modification of system for particular cases.

c) Not Named: A small article, April 3, Barrington's PEI report quoted re setting up of parole and probation system, NPB mentioned in passing, neutral presentation.

A small to medium length article, May 12, neutral presentation of Goyer's comments in Vancouver about development of smaller prisons, parole mentioned in passing, positive kind of impact.

A small article, May 31, neutral reporting of Goyer's comments to N.B.'s John Howard Society, National Parole Board mentioned in passing, positive impact. A medium to large length article, October 8, report of a 20 minute speech Goyer gave to Commons outlining reforms, "we have decided to stress the rehabilitation of individuals rather than the protection of society", neutral reporting, statistics given, but ending with implied criticism in the use of Caouette's criticism that some prisoners get an advantage of free education. - 106 -

PAPER: Toronto Globe & Mail PAPER: 1971

A small article, December 16, report of Goyer's testimony to Senate Committee on Parole, neutral reporting, possible implied criticism of National Parole Board by focus of suggested changes in administration. A small article, December 17, Street defends early release of Nelles' kidnappers, nothing specifically negative, but has a negative impact re issue of preferential treatment for those middle class types.

3. Summary: All those articles appearing under no name with the exception of the letters to the editor were taken from the CP wire service. As far as editorial policy goes, from the one noted, it would appear that the paper takes a constructively critical approach. On the whole, it would appear that many of the articles are neutral reporting of events. No indepth articles appears here.

• - 107 - INFORMATION SHEET PAPER: Toronto Globe & Mail YEAR: 1972

1. Thirty-one items appeared this year in which the Parole Service or Parole Board was either mentioned or in which they were presented in focal concern. Twnety-six of those items focussed specifically on the National Parole Board or Service: 13 of these were of a distinctly critical nature or

left a definably negative impact; 8 were distinctly positive and supportive presentations; the rest were of a neutral nature. Of the five articles in which parole was mentioned in passing, none were distinctly negative, one appeared as a neutral presentation, and three represented positive context. Articles appeared in the months of January, February, March, • April, May, June, July, September, October November and December. 2. Authorship: a) Michael VALPY, a very lengthy article, January 13, sets out John as the underdog in the whole CJS, Nelles case mentioned in criticism of NPB and an unguarded comment of Street's.

A medium to large length article, November 11, reporting of an incident involving a parolee and resulting in the Ontario Criminal Injuries Board criticizing the NPB, and a parole officer in particular, critical impact. A medium length article, November 15, follow-up to November 11 article above, wherein NPB is vindicated to a degree, however slight negative impact remains (a re-statement of incorrect facts). Donald GRANT, a small to medium length article, January 6, report on Nelles' kidnappers release, neutral reporting of circumstances • and reasons given by Street. - 108 - PAPER; Toronto Globe & Mail YEAR: 1972

Clair BALFOUR, medium length article, March 10, report on Higgitt's comments to Senate Committee on Parole, parole mentioned in passing, supportive of difficulties. A medium length article, March 9, report on Street's comments re tightening up of paroles, statistics quoted, supportive. John CLARKE, a small to medium length article, February 5, deals with issues of critical comments made by various judges towards the NPB and response and defence by Merv Davis (JHS), ends by saying notwithstanding public is getting uneasy, supportive criticism, vague negative impact. Stanely McDOWELL, medium length article, June 23, representation to Senate Parole Committee by three Drumheller inmates to have Committee expand their focus, supportive presentation, positive impact for NPB. Don SELLAR, A small to medium length article, December 4, "public outcry forces cutbacks in paroles", notes shift and tightening up, notes also Goyer's pending Huggessen Report, impression one that Parole Board is in difficulty because of ill Members, etc., negative kind if impact.

h) Editorials: Medium length article, January 15, highly critical of Board re Nelles and John cases. A medium length article, February 5, "Parole Board oversteps", highly critical.

A medium length article, March 13, criticism of contradictory Board behaviour, tightening up of paroles and release of Nelles' kidnappers, critical. A medium length article, April 18, a call for Goyer to release Justice Moran's report on the Nelles kidnappers to clear up possible contradictory implications re their early release, criticism of Goyer, NPB indirectly. - 109

PAPER: Toronto Globe & Mail YEAR: 1972

c) Not Named: Letters to the editor, January 21, one by Malcolm Robb, and one by W.R. Outerbridge in rebuttal to editorial of January 15. Letter to the editor, February 10, former NPB Member response to critical editorial of February 5, defence. Letter to the editor, April 6, Street defends parole system further to a highly critical evaluation editorial appearing March 28. Letter to the editor, October 13, response to critical editorial of October 6, which focussed on NPB and CPS, by Kirkpatrick, rebuttal. A small to medium article, January 7, report on Nelles' kidnappers release and condition under which they are in community, neutral presentation. A lengthy article, February 3, report on comments of Cyril Greenland re the sexual offender, parole mentioned in passing, supportive. A small article, March 10, "R.C.M.P. backs parole", Higgitt comments noted.

A small article, February 12, comments of Owen Fonseca suggesting concerned judges send reports to Parole Board expressing their feelings on a particular case or cases, neutral kind of impact. A small article, Febraury 18, report of pending release of one of Nelles' kidnappers, neutral presentation of material. Small article, March 2, reporting of comments of Senator Hastings that mandatory "parole" is a retrograde step, Street's defence, neutralizing each other. - 110 -

PAPER: Toronto Globe & Mail YEAR: 1972

A small article, May 3, Goyer commenting that NPB is overworked, but also suggesting they can't keep up with change in correctional system, critical implications for NPB. A small article, July 19, report on recommendations of Manitoba White Paper on upgrading correctional systems, parole mentioned in passing, supportively represented.

A large article, September 25, report on a parolee who was hired by CPS and they by NPB and let go soon after, despite Goyer's comments that there might be a place for this kind of person in corrections, vaguely critical in that context. A tiny article, October 6, Trudeau defending parole system over open line show, supportive. A medium length article, November 11, reporting on comments made by Syd Brown of CPS re concern over general correctional system showing greater concern for criminals than victims, parole mentioned in this passing critical context.

A tiny article, November 2, report on existence of a car lot for day parolees to park their cars, neutral presentation.

A small article, December 2, Street's rebuttal to critics of system, statistics quoted, positive impact.

A small to medium length article, December 7, report of the Saskatchewan government denying responsibility for the release on parole of a provincial prisoner who subsequently shoots and kills and person, responsibility indicated to lie within the NPB, negative impact. - 111 -

PAPER: Toronto Globe & Mail YEAR: 1972

3. Summary: Editorial policy for this year may be construed

as nothing but critical, presented in imprecise and not very

perceptive inflamatory and sensational articles. With the exception of letters to the editor by people with a particular interest and involvement in corrections, there is little real defence or support of parole policy. Of the reporter showing more than one item, neither Valpy nor Balfour indicate a

particular perception of the difficulties in corrections and in particular Valpy takes a mildly sensationalistic approach. There is no indepth reporting noted for this year, with all the articles essentially taking a reactive pose. 1972 also • appears to have been a year in which several incidents lend themselves to an easy perception of contradictory behaviour on the part of the Board. Notwithstanding, the series of explanatory letters to the editor, a lack of communication ï , between the Board and the media seems to show through as a

impression.

• - 112 - INFORMATION SHEET

PAPER: Toronto Globe & Mail YEAR: 1973

1. 44 items appeared this year dealing with parole matters or in which parole was mentioned in some kind of passing context. Of the 44, 35 focussed specifically on or around

the National Parole Board and parole matters; 14 of these

could be construed as negative in impact or of a distinctly critical nature; 8 could be construed as presented supportively or as having apositive impact; and 13 were virtually neutral presentations of material construed as having no impact one

way or the other. The remaining 9 articles of the 44 were those in which the Parole Board or Service was mentioned in passing; 5 of these were those in which parole or the • Parole Board was mentioned in a negative or critical context; none appeared in a postive or supportive context; four

could be construed as appearing in a neutral kind of context. During 1973 articles appeared during the months, February, March, April, May, June, July, August, September, October, and December.

2. Authorship: a) Donald GRANT, a small to medium length article, May 26, report on last of Nelles kidnappers being released on early parole, supportive presentation. Hugh WINDSOR, a medium to large article, May 16, report of criticism arising in Commons of penal system in wake of escapes, parole mentioned in • passing, critical context. - 113 -

PIPER: Toronto Globe & Mail YEAR: 1973

John BEAUFOY, a small to medium length article, June 30, report on Canadian Congress of Criminology and Corrections, Regina, criticism of inability of anyone to say how to rehabilitate a person after all the words spoken at the Congress, critical comment on his part. A large article, August 4, criticism of secrecy issue re Doyle case and NPB's revocation, comparison to sentences aiven in other cases, noted by Beaufoy as inconsistent. A small article, October 11, neutral presentation of Ballard's pending release on parole. A small article, October 23, neutral reporting of Landry hearings, parole mentioned in passing. A medium to large article, November 7, • report on an article in the CJCC by psychologist Carleson in Ontario Correctional Centre reporting statistics to show most return to jail, indicating Ontario Parole Board and NPB don't have effective criteria for release, general criticism of system, meant to be provocative per Carleson statement. A medium length article, December 25, reporting on fact that Board will be expanding, parole regualtions under review pending Senate Report, Board expansion, Street quoted, neutral presentation. A medium length article, December 25, the Howarth case, re parole revocation, implied and direct criticism of NPB's so called sweeping powers.

h) Editorials: A small to medium length article, March 15, drawing on other previous articles as sources, criticizes and attacks • NPB record and policies. - 114 -

PAPER: Toronto Globe & Mail YEAR: 1973

An article by Allan Mewett in editorial section, a small article, March 15, re difficulty of parole decision, suggesting "even a person who is totally rehabilitated and presents no danger to public may still be deserving of punishment", a perceptive article, critical implication.

A small article, April 30, focusing on early parole for Nelles kidnappers and comments by a CPS official that it was harder for a middle class types to settle into prison, takes side of inconsistencies for lower class and presents them as underdogs re the NPB. A small article, December 6, comment on unlikeliness that principle of hiring minority groups (including Indians and ex-cons) enunciated by Allmand and Lalonde will see any of same get into NPB, because there is not a single one in the whole Service, critical.

A small to medium article, December 27, criticism of arbitrary decisions of NPB, secrecy, etc., based on two cases where parole was revoked. A medium length article, July 19, criticism of lack of protection of prisoners inside prisons, NPB mentioned critically in passing. A tiny article, September 24, tongue in cheek criticism of Allmand's "magnanimous gesture" to represent Native peoples in NPB by having a Native Indian Member, criticism. A medium to large article, November 14, comment on Carleson's findings as related to November 7, John Beaufoy article, parole mentioned in passing, • critical in text. - 115 - • PAPER: Toronto Globe & Mail YEAR: 1973

c) Not Named: A tiny article, December 5, reporting Ontario AGs request to have provinces control all parole in provincial institutions, neutral presentation. A tiny article, February 8, Ballard refused an early parole, no comment.

A small article, March 7, neutral report on comments Therrien made to Senate Parole Committee re system. A small to medium length article, March 14, report on presentation of brief of CACP to Senate Committee on parole that there are not enough safeguards for public in parole system, neutral presentation, but negative impact.

A small article, March 9, report on recommendations of Quebec Social Workers suggesting that Parole Board, not Cabinet, should make parole decisions on murderers, implicit support. A small article, March 9, report of brief to Senate Parole Committee by E. Fry of Ontario, in defence of parole even for violators. A small article, April 26, report of Braithwaite's announcement of increased buildings for CPS to accommodate overflow in prisons, parole mentioned in passing as part of the reason, neutral kind of Presentation as far as the NPB is concerned.

A small article, May 31, neutral presentation of Street's remarks that NPB should give temporary absences, and defence of entire system.

A small article, May 30, report of Street's comments to Senate Committee that too many people are jailed, need for more parole officers, public now more punitive minded than two years ago, neutral kind of impact. - 116 -

PAPER: Toronto Globe & Mail YEAR: 1973

A small to medium length article, May 11, report of Street's comments to Commons Justice Committee re over- looking of successful paroles and other parole issues. A medium length article, May 31, reporting of recommendations of brief from Canadian Bar Association suggesting both parolees and Crown has right to appeal parole decisions, neutral presentation.

A medium to large article, August 25, report on overcrowding of prisons, in part due to fewer paroles, criticism of politics and corrections for over- reacting to public pressure, focus of cricitism is in a slightly different direction here. A medium length article, August 16, implicit criticism in administration involved in Cabinet decision of lifers for parole. A small article, August 9, neutral report on the fact that Doukhobours in B.C. won't apply for parole.

Letter to editor, rebuttal to Beaufoy article of August 4, a perceptive article in support. A small article, October 30, report of a case of a 77 year old parolee receiving another sentence, neutral presentation. A medium to large article, December 13, report on federal-provincial conference re changes in jurisdiction over granting of paroles, neutral presentation. A small article, December 4, reporting of opposition in Commons to adding Native and ex-cons to Parole Board, neutral presentation.

Letter to the editor, December 18, Allmand rebutting critical editorial of December 6 re hiring of minority groups in NPB and CPS. - 117 -

PAPER: Toronto Globe & Mail YEAR: 1973

A small article, July 26, report of two cases of parole revocation, criticism of NPB in one case as being inflexible and not giving reasons. A medium length article, July 23, (1st of two articles) criticism of Mohr Report's position on letting NPB decide length of sentence, taking it away from judge, criticism of NPB's present performance and the secrecy issue. A medium length article, July 24, (2nd of two issues) continuation of criticism of NPB and task force report. A small to medium length article, September 21, report on House Second Reading of Act to increase Board size to make Board more responsive to local demands and more effective, Allmand's comments, positive impact. A medium length article, November 3, report of a letter by Allmand to Kingston re a petition by local residents of concern for high crime rate in Kingston, impact is that Allmand passes the buck, negative for parole ideas. Letter to the editor, November 1, Allmand's response to a critical editorial of October 25 re NPB. A small article, November 20, report on comments Street made on a tour through Atlantic Provinces re cut back in paroles in defence of system, supportive.

3. Summary: As in 1972 the editorial policy continues to be consistently critical of the National Parole Board. It can be noted that editorials frequently refer to a number of preceding articles appearing in the paper in formulating its own position.

Therefore, one might suggest that the editorial position is a result of the tenor of articles appearing in the newspaper proper. - 118 -

PAPER: Toronto Globe & Mail YEAR: 1973

It may also be noted that while the editoriàl policy shows

consistent criticism of the Board, the direction of its criticism vis a vis liberal or conservative decisions in ' parole matters is inconsistent and contradictory. By far the

most prolific writer of the year is John Beaufoy who while he presents several articles indicating a rather neutral

presentation, he seems more consistently to take a critical posture vis a vis the National parole Board. In general there are no indepth articles appearing this year and most of the articles appear to be reactive in situations specific. The

articles generally seem to suggest a great deal of political

movement and pending change and instability incurred in the whole of corrections generally. The Globe seems to show a continuing interest in correctional issues and events. With the exception of Allan Mewett's article, the items did not

appear particularly perceptive.

• - 119 -

INFORMATION SHEET

PAPER; Toronto Star YEAR: 1971

NOTE: There were no articles noted to appear regarding Parole Board or parole matters for this year. - 120 - INFORMATION SHEET • PAPER: Toronto Star YEAR: 1972 1. Of the 19 articles which appeared this year relating to Parole Board or parole matters, eleven focussed specifically on

these interests; three could be construed as being critical

or carrying a negative impact and eight suggested support or positive impact. Of the remaining eight articles in which the Parole Board or parole matters were mentioned in passing, three were within a negative or critical context and one was

in a critically supportive context. Two were neutral and two were within a supportive framework. The articles appeared January, February, May, June, July, August, October, November and December.

2. Authorship: a) Jack CAHILL, a lengthy article, January 26, report on interview with Goyer re philosophy of SG., etc., National Parole Board criticized by Goyer, negative impact.

Bob PENNINGTON, a lengthy article, June 14, . very supportive presentation vis a vis Parole Board, focusing on success cases instead of failures, mentions Nelles case, statistics quoted, thrust of article and of writer seems summed up by the caption "Parole Board hopes an angry public won't harm the good work that's done". A medium to lengthy article, July 24, supportive presentation of the plight of sex offenders vis a vis the public backlash against granting paroles and getting jobs. • - 121 -

PAPER: Toronto Star YEAR: 1972

Rae CORELLI, a very lengthy article, July 3, describing the activities of two NPB Members for the day of parole hearings, supportive presentation, good presentation through description of the problems found by the Board.

A medium to lengthy article, November 11, discussion regarding a parolee involved in a claims with the Ontario Criminal Injuries Compensation Board, criticism of Board by implication. A medium length article, November 27, discussion of impact and lack thereof of Criminal Records Act re application forms of employers, discussion of problems, supportive presentation of the problem, NPB mentioned in passing. John GILLESPIE, a medium to large article, August 9, (retired staff superintendent for Metro Police, Toronto), critical by implication of parole policies as causing backlashwlich will bring back capital punishment, which writer is against, a perceptive article.

Helen SLINGER, a lengthy article, October 16, presentation of Mulligan's scathing attack on Goyer and corrections system, parole mentioned in the passing critical context, writer seems sympathetic to Mulligan's cause.

Trent FRAYNE, a very lengthy article, November 25, focusing on capital punishment issue and various people and party stands on it, including views of Syd Brown, parole mentioned in passing, takes no stand on this issue but implies in favour of abolition. - 122 - • PAPER: Toronto Star YEAR: 1972 b) Editorials: A medium length article, January 28, points out criticisms by Goyer of NPB, plans for local board expansion, suggests too much decentralization would be bad, calls for fewer but regional boards, supportive of NPB.

A medium length article, May 4, criticism of Goyer's implied and direct criticism of NPB, favourably compares NPB efficiency when looked at that of CPS.

A medium length article, June 29, a call for continued rehabilitation efforts as to best long term safety of public, but a call for caution with violent criminals best it create a backlash, call for NPB to utilize other professionals in their decisions. A small article, July 18, re death penalty issue, takes stand for abolition, but calls for tight parole system for such offenders, meutral kind of presentation.

c) Not Named: A medium length article, December 31, report on findings of a study of parole attitudes done by University of Toronto, Centre of Criminology, critical of NPB and parole administration. A medium lengthy article, July 15, report of resolution moved at CPA convention in St. John's, one of which concerning restricting parole for violent crime offenders, neutral presentation. A small article, June 30, comments of a judge sentencing a violent offender, critical of NPB and Goyer: 'seems capable of letting him out, be it on their heads not mind', negative impact.

Letter to the editor, a medium to lengthy article, February 10, starting with dispute of Nelles case going on to discuss the whole notion of rehabilitation, crime and justice, ends up with a call for the Board to make public reasons for decisions. - 123 -

PAPER: Toronto Star YEAR: 1972

Letter to the editor, a small article, June 27, in support re Pennington's article, of June 14, but pointing to inadequacies of parole policies around Toronto, a call for a commission to study how penal system operates.

Letter to the editor, a small article, June 27, supportive of parole and rehabilitation and Pennington's article of June 14, but concern expressed re contradiction in releasing Nelles kidnappers.

3. Summary: The focus of the editorial policy inferred from those noted is of a small 11 1" liberal stance with regard to corrections issues; le., in favour of abolition of the death penalty, however, takes a pragmatic approach to the need for caution lest the public backlash destroy progressive rehabilitation and corrections initiatives. Other articles, in fact, take a similar stance. No real indepth articles appear this year, however, Pennington, Corelli, and Frayne seem to take a reasonable stance vis a vis the Parole Board and parole matters generally; particularly Pennington is supportive of corrections initiatives in the area of parole. - 124 -

INFORMATION SHEET

PAPER; Toronto Star YEAR: 1973

1. Of the 13 articles appearing this year, nine focus specifically on the Parole Board or parole matters; three

of these are of a critical nature or carry a negative impact, two are neutral presentations and four are distinctly supportive or carry a positive impact. Of the four articles

in which parole is mentioned in passing, three are those within a neutral context and one within a supportive or positive context. The articles appeared during the months February, May, April, July, August, September, November and

December.

2. Authorship: a) Rae CORELLI, a small article, August 10, neutral reporting of situation that NPB not travelling any more due to overwork. S. E. GORDON, small to medium length article, December 13, neutral reporting of announcement by Allmand at Federal-Provincial Conference that provinces could grant paroles in provincial institutions, amongst other issues. Arlie KELLER, a small to medium length article, November 9, article on an inmate re a boxing career, parole mentioned in passing, neutral presentation. b) Editorials: a small article, May 7, criticism of Courts and prison and parole system for implied lack of communication, and seeming lack of clear-headed policy, supportive if critical. • - 125 -

• PAPER: Toronto Star YEAR: 1973

A small to medium length article, August 25, a fairly perceptive presentation of support for parole ideal, calls for quick implementation of plans to regionalize (per Huggessen Report), "the principle of parole is too important to go by default because of administrative difficulties, public misunderstanding, or a minority of failures". A small article, December 6, support of NPB and critical of courts which try to make Board's job difficult by giving compensatory sentences. A small to medium length article, July 5, fairly strong support of NPB as the expert in field of rehabilitation, public should not be ignored but also not used as a basis for policy, expanded Board suggested to be a help in carrying out duties. A small article, November 21, comments on the reduction of paroles in response to public outcry, presents statistics to suggest parole record not too bad, implications for support of continued parole, but with caution. c) Not Named: A small article, August 20, neutral reporting of a resolution passed at annual meeting of Association of Municipalities of Ontario to deny parole to sex deviates, negative implications. A small article, July 5, quoting CPS official in rebuttal to Ballard's comments of an easy prison life, parole mentioned in passing, neutral presentation. A small article, September 26, vaguely supportive presentation of Allmand's plans to systematize the CJS, reference to pending Provincial-Federal Conference, parole mentioned in passing. - 126 - PAPER: Toronto Star YEAR: 1973

A small to medium length article, April 26, report of CCCA opposition to decreasing paroles for lifers, and other issues vis a vis parole, negative kind of impact. Letter to the editor, a small article, February 5, from Allmand clarifying his position re minimum sentences before parole eligibility for murderers.

3. Summary: There were relatively large number of editorials appearing again this year, and with the exception of one which was supportively critical all the rest took definitely a positive and supportive stance with regard to parole and the National

Parole Board. All the editorials discussed essentially the same issue, je., that of tightening up the parole releases as a result of public outcry, which the editorials expressed as not the most tehcnical and scientific way of setting policy. They do however, stress caution in certain instances taking a rather pragmatic approach to the political nature of corrections.

Indepth reporting is not noted. If a policy can be inferred from the other articles it would seem that the paper is interested in keeping the public up to date on policy and other decisions. - 127 -

INFORMATION SHEET

PAPER: Kingston Whig Standard YEAR: 1971

NOTE: There were no articles appearing in the press clippings relating to the Parole Board or Service for this year.

• - 128 - INFORMATION SHEET

PAPER: Kingston Whig Standard YEAR: 1972

1. Of the four articles which appeared this year, only one ) an editorial, focussed specifically on parole matters; it also was a supportive perceptive article. Of the other three articles the NPS or NPB was mentioned only in passing, on two occasions (bn a supportive context and on one occasion in a neutral context. The articles appeared in January, September,

October and December.

2. Authorship: a) Sheldon MacNEIL, a very lengthy article, December 29, focussing on work of a day parolee, Bob Greer in helping drug abusers, NPB mentioned in passing, positive context. b) Editorial: A medium length article, September 19, comment on inadequacies of prison screening for temporary absences or paroles, takes a reasonable balanced position, a call for a study of the situation (task force report noted as pending). c) Not Named: A small article, January 25, noted changing of name from Penitentiaries to Institutions, NPB mentioned in passing, possible merger of NPS and CPS noted, neutral reporting. A very lengthy article, October 19, article focusses on effects of prison on family, particularly women, NPS mentioned in passing, problem discussed in a perceptive manner.

3. SUMMARY: Although there were not many articles appearing as can be noted above, those which do appear to be fairly perceptive and balanced. This was particularly true of the editorial, and the MacNEIL article indicated that reporter as likely one who is supportive of progressive corrections initiatives. The .,.

- 129 - • PAPER: Kingston Whig Standard YEAR: 1972 articles were not reactive, and did appear to deal in some depth with the focus of its discussion.

• - 130 -

INFORMATION SHEET • PAPER; Kingston Whig Standard YEAR: 1973

1. Of the 11 articles which appeared this year, only two focussed specifically on parole and parole matters; one of

these had a negative impact and the other was supportive and positive. The breakdown of the nine other articles in which parole was in some way mentioned in passing, is as follows: In one article it was mentioned in a negative context, in two in a neutral kind of context, and in six within a distinctly

supportive kind of context. The articles appeared during the

months of February, March, October, Septepber, and December.

2. Authorship: a) Richard FELMING, medium length article, February 8, report on a panel discussion involving a variety of interested parties, stressing community involvement in corrections, a supportive article despite criticism noted by the reporter, parole in passing but focus by implication. A medium length article, September 10, quoting Maloney on resolving social problems to combat crime, support for notion of parole. A medium length article, December 13, re agreement in principle at federal- provincial conference that female inmates should be handled in provincial institutions rather than in Prison for Women, neutral reporting, informative.

Steve HUMMELL, a small article, February 16, report on Napanee councillors endorsing a motion to be taken to SG, Prime Minister, etc., re denial of parole to sex deviates after a local incident, reported in a neutral tome, but negative • impact. - 131 - f PAPER: Kingston Whig Standard YEAR: 1973 Robin CHASE, a small to medium length article, March 6, discussion of report of Executive Director of "Friendship Concept" and some of its accomplish- ments and future aims, parole mentioned in passing, supportively presented. Terry REILANDER, a small to medium length article, October 23, neutral kind of reporting on comments of different members in a discussion sponsored by E.Fry re Prison for Women and female inmate problems, concern noted, parole mentioned in passing, balanced article.

Barbara ROBSON, lengthy article, September 27, report on overcrowding of pens due to a number of reasons, one of them being fewer paroles, need for more building and staff stressed, supportive impact. Harry KILFOYLE, a medium to large article, September 14, report on concern of citizens of Bath area, near Millhaven re security of of prison and presence of day parolees in town, criticism of the system by town councillors noted, neutrally reported, but negative impact. h) Editorials: A small to medium length article, October 6, discussion of local attempts to get an overhaul of penal system because of high crime rate in Kingston and large number of institutions in the area, defence of Allmand and CPS, parole mentioned in passing. c) NdtNamed: A small article, March 21, report on findings of Queen's University study that attitudes towards prisons and inmates are no different in locations where there are institutions and where there are not, parole mentioned in passing, supportive impact.

Letter to the editor, February, written by an inmate and professor at Queen's support for continuing use of temporary absence program, enunciating some pro and con attitudes in the communiby, a perceptive article, partole mentioned in passing. - 132 - e PAPER: Kingston Whig Standard YEAR: 1973

3. Summary: Taken as a gestalt again this year, the articles appear to be generally supportive of correctional issues and workings. If editorial policy can be inferred from one editorial,

this paper this year takes a balanced and supportive stance with regard to correctional issues. Flemming was the most prolific

writer for this year, and he generally seems to take a supportive stance or at least report in a neutral kind of fashion. No

real in depth articles are mentioned, but several appear to be

quite perceptive. Focus of interest appears to be dilemmas inherent

in rehabilitation of inmates in the community and in correctional • institutions.

QUEBEC

PAPER RANK CIRCULATION CITY

1. Montreal Star 4 188,577 T 163,798 Montreal 1,514 Quebec

2. Montreal Gazette 9 137,801 T 109,209 Montreal 7,700 Ottawa-Hull 3,637 Quebec

e - 134 - INFORMATION SHEET

PAPER: Montreal Star YEAR: 1971

1. Of the five articles which appeared this year in the Montreal Star, four focussed specifically on parole board matters; three take a distinctly supportive and positive stance, one appeared in which the information is neutrally

presented. The one article in which the NPB and parole was mentioned in passing was in a distinctly 'supportive context. The articles appeared in March and December.

2. Authorship: a) Jean de GUISE, two large articles, December 11 and 13, series of articles written on (1) Goyer's position on rehabilitation and (2) on the National Parole Board itself respectively, in depth in both cases, balanced presentation of facts, statistics, etc., accurate presentation of the problems, descriptive rather than evaluative, focus in NPB article on administration and philosophy. Steve HENDLER, a small article, December 16, reporting on Goyer's comments that NPB • needs to be changed, decentralization issue, Goyer quoted as critical of legislation concerning NPB, not individuals theory, negative impact.

b) Editorials: There were no editorials noted this year. c) Not Named: A small article, March 19, Street quoted regarding the likelihood of parole being granted to Paul Rose after his conviction for non-capital murder and sentence of life, neutral reporting, Street allaying public fears, sensitive topic. neutral presentation.

A large article, no date noted, report of a parole hearing, supportive of difficulties in the decision making process "one mistake and everybody hears about it - with a bang". - 135 - e PAPER: Montreal Star YEAR: 1971 3. Summary: As may be noted from above, no articles appeared this year which were critical or non-supportive of corrections and issues. The Jean deGuise articles stand out as extremely perceptive and balanced, and it would appear he would be an

individual who would make a good contact for corrections, specifically parole. His articles provided a good example of indepth supportive but balanced reporting. Interests of paper based on those articles plus two others indicate an interest in administration and philosophy.

• - 136 -

INFORMATION SHEET

PAPER: Montreal Star YEAR: 1972

1. Of the five articles appearing this year, four focus specifically on parole and NPB matters; two could be construed as having a negative impact or were critical, and two were distinctly supportive and positively presented. Of the one article in which parole was mentioned in passing, it

could be construed as having a negative impact. The articles

appeared in the months of February, July, September and October.

2. Authorship: a) W. A. WILSON, a large article, February 4, criticism of Goyer's criticism of the National Parole Board, supportive of NPB.

A medium length article, July 17, very supportive of NPB, takes a swing at Association of Police Chiefs among • other things for their criticism of NPB. Paul DUBOIS, a small article, July 7, quoting Choquette suggesting that NPB in doubt should not release, critical impact, hint of critical reporting. James S. DUTTON, A medium to large article by prisoner regarding life inside October 13, critical of parole officers, not of parole system, suggesting more active use of ex-offenders who can understand , possible critical impact.

b) Editorials: no editorials were noted in paperclips for this year. c) Not Named: A small article, September 30, Goyer asks for time and patience, admission of mistakes but need to continue along with reform, vague • negative impact. - 137 - f PAPER: Montreal Star YEAR: 1972 3. Summary: The Wilson articles are most suipportive of the

National Parole Board itself, and it is interesting to note that they are several months apart; it maybe possible to construe from that that Wilson has an on-going interest in corrections and is aware of the difficulties. Both

articles indicated a balanced but perceptive apiproach. No

indepth reporting was noted for the year. It would not be possible to infer particular interest of the paper on the basis of the available information. • - 138 - INFORMATION SHEET PAPER: Montreal Star YEAR: 1973

1. Of the nine articles which were noted to appear this

year, six focus specifically on National Parole Board or Service or parole matters; two of these had a negative impact

or were critical; three are suggested as neutral presentations and one was of a distinct supportive and positive nature. Of the three articles which mentioned parole in passing, one

was in a negative or critical context, one was in a neutral context, and one was in a distinctly positive and supportive context. The articles appeared during tle months of February, May, July, November and IDcember.

2. Authorship: a) Paul DUBOIS, a medium length article, May 23, focus on NPB and CPS • possible merger to prevent escapes (Huggessen Report to be released), decentralization issue, Allmand quoted, balanced reporting, neutral presentation. A medium length article, July 21, NPB well presented, CPS criticized.

Angelo CASTILLO, a medium length article, July 4, report on lifers sending letter to MPs re Capital Punishment issue, leniency on parole, neutral reporting, parole mentioned in passing. Peter CUMMINGS, a large article, July 7, article about Pierre Jutras as a humane director at Drumheller, NPB mentioned only in passing, positive context.

Gillian COSGROVE, a medium length article, December 22, "Parole Board ruins young Julie's Christmas wish" (to have her father home from prison), speaks for itself, critical reporting, negative impact. - 139 - PAPER: Montreal Star YEAR: 1973

b) Editorial: A small article, April 9, a report on Senate Committee on Legal and Consti- tutional Affairs, no conclusion presented, does not take any sides. c) Not Named: letter to the editor, February 1, continuation of a debate through letters to editor by a medical doctor deriving the effectiveness of corrections system, parole mentioned in passing, critical context. A small article, May 3, announcement of NPB no longer doing prison visits due to over work, neutral reporting. A small to medium length article, November 14, report on comments made in the Commons criticizing Board expansion does not go far enough in reforms, negative impact.

3. Slimmary: The editorial comment seems to represent a fair minded approach. Paul Dubois is the most prolific of the writers who concern themselves with corrections issues this year; he appears to take a neutral to mildly critical stance in reporting

issues. Generally the articles seem to vary between ongoing reporting of events and some reaction to events. No indepth articles are noted. There seems to be no specific area within parole matters which shows itself as of primary focus for the Montreal Star for this year. - 140 -

INFORMATION SHEET PAPER: Montreal Gazette YEAR: 1971

1. Of the ten articles which appeared this year relating to the National Parole Board or parole matters, nine focus

specifically on that subject; three were of a critical nature or had a negative impact and the other six were supportive or

postively presented. The one article in which parole was mentioned in passing was in a critical context. The articles

appeared in the months of February, March, May, October and December.

2. Authorship: Hubert BAUCH, a medium to long article, February 20, interview with Luc Genest discussing parole issues, etc., supportive presentation. A medium to large article, May 22, • report on efforts of Bergevin to help train parolees in a trade, supportive article. Geroge RADWANSKI, a large article, October 16, a wide ranging perceptive article, presenting both sides of the issue in a rough way, "rehabilitation vs society backlash", thought provoking, vague critical impact at end, particular vis a vis Parole Board. b) Editorials: A small to medium length article, October 9, criticizing Goyer's choice of words re his comments in the Commons re stressing rehabilitation rather than protection of society, calling for caution in the granting of paroles lest it cause a backlash which would prevent other valid reforms, parole mentioned in passing. •

2 - 141 - -

PAPER: Montreal Gazette YEAR: 1971

A small article, December 22, comments critically on Goyer and Street's comments to Senate Committee on Parole, points out contradiction in philosophy, and implies " a misunderstandings" between Goyer and Street. c) Not Named: Medium to long article, March 3, report of an interview with Steve Cumas discussing philosophy and ideas of parole, supportively presented.

A medium length article, February 20, statistics quoted to suggest parole as successful, Luc Genest quoted in support of parole, supportively presented. A medium length article, February 20, report of a half-way house for parolees, suoportively presented. A small article, October 7, report on announcement of Gilbert's appointment to the Board, positive impact re police- man's views as a blance for the Board. A small to medium length article, December 17, reports on comments Street made to Senate Committee on Parole and implies "misunderstandings" between Goyer and Street, Nelles case came up, negative impact.

3. Summary: The editorial policy as construed from the two editorials seems to direct itself at criticism of the Minister as opposed to the Parole Board per se; however, the impact is one of criticism and negative impact by implication for the Board. Both BAUCH articles are extremely supportive vis a vis parole and he seems to focus on interviews with people in the field; material supportively presented. The Radwanski article is more perceptive perhaps than those with a vague leaning towards criticism. Indepth reporting per se not noted, however, Radwanski - 142 - 10 PAPER: Montreal Gazette YEAR: 1971 article focuses on some critical dilemmas. Programe and issues seems to be the main interests as a general inference from all the articles.

• .t - 143 - INFORMATION SHEET

PAPER: Montreal Gazette YEAR: 1972

1. Of the ten articles appearing this year, seven focus specifically on parole or parole matters. Of these, five carried a criticial or negative impact and two were supportive or carried a positive impact. Of the three articles which mentioned parole or the Board in passing, all three were either in a critical context or carried a negative impact. The articles appeared in the Months, February, March, April June, July, September and November.

2. Authorship: a) Ben TIERNEY, a small article, February 15, report on Street commenting on Bewly's criticism, statistics quoted, article was a supportive presentation of Street's comments, positive impact in terms of vindication. Don SELLAR, a medium length article, April 26, critical reporting of Goyer suggesting his ineptitudes, parole mentioned in passing critical context, criticism of NPB itself inferred only. Rene LAURENT, a small article, June 27, presentation of critical quotes of a judge on premature release of inmates as a danger to society, critically presented vis a vis the National Parole Board. Steve KOWCH, a small article, July 5, report on comments of Therrien re expension and decentralization of the Board, neutrally report, positive impact. b) Editorials: A small article, March 13, critical of Street by way of implication of his change in policy towards now tightening up on parole, article suggests this change is an indication of mis-handling in parole and "sentimental application of parole", Street had been commenting on criticism of a provincial court judge. - 144 -

PAPER: Montreal Gazette YEAR: 1972

A small article, June 29, very critical of Goyer's comments re Head case in B.C., parole mentioned in passing critical context. A small to medium length article, September 11, critical of Goyer and penal system, parole mentioned in passing, critical context. A small article, November 13, quotes Bewley commenting as he sentences one of his "62", goes on to criticism of National Parole Board and Goyer. c) Not Named: A small article, September 20, report on brief of CACP to Senate Committee, noting tough line against liberalization of parole system, neutral reporting, negative impact. A small article, September 20, report on AG (Ontario) critical comments towards Parole Board, and comments of C.A.M. Edwards re those comments, vague critical presentation.

3. Summary: All the editorials appearing this year are of a of critical nature vis a vis corrections, particularly/Goyer, and the NPB by inference or by focus. Generally, the majority of articles appearing this year are of a critical nature. The general approach seems to be of a small "c" conservatism nature suggesting and seem to point towards/à lack of clear-headed directions for corrections in general. There is no indepth reporting; the Ben Tierney article, though small, seems to reflect a supportive attitude on the part of that writer. - 145 - INFORMATION SHEET • PAPER: Montreal Gazette YEAR: 1973 1. Of the seven articles which appear this year dealing specifically or tangentially with the Parole Board or with parole matters, six were written with a specific focus on parole. Of these, two were distinctly critical or carried a negative impact; three were neutral presentations and one was a distinctly supportive article. The one remaining article of the seven was that in which parole was mentioned in a passing positive context. The articles appeared during the months March, April, May, September and December.

2. Authorship: a) Arthur BLAKELY, a small article, March 27, a neutral to supportive presentation of the notion proposed by Allmand to have parolees live in "good homes" in the community as an extension of the idea of half-way houses. Stephen SCOTT, medium length article, April 6, a rather unclear article pointing of friction between NPB and CPS over temporary absence program, negative impact. Don SELLAR, a lengthy article, May 3, neutral reporting of the overcrowding situation in prisons as a result of fewer paroles and tighter security generally as a result of public backlash from escapes, figures quoted, no psotion noted on the relieving of the situation, problems presented. b) Editorials: A medium length article, May 3, deals with the issue of escapes from prisons and overcrowding, suggests that particularly economic reasons suggests that we should press on with policy of rehabilitation, seems to change stride halfway through article. - 146 -

PAPER: Montreal Gazette YEAR: 1973

A small article, December 10, critical of Allmand'sParole Board expansion bill regarding Native and ex-con representation as not giving the flexibility required, noted as too simple a solution. c) Not Named: A small to medium length article, May 30, neutral to supportive presentation of comments of Street and Gilbert regarding police presentation to Senate Committee, need for police involvement in parole, etc. A large article, September 18, a supportive presentation of a package Allmand announced in Commons to make the leave system more effective and efficient, je., vis a vis temporary absences and parole and Parole Board expansion, clearly explained.

3. Summary: The editorial policy noted for this year seems to be a rather mixed bag as may be noted from above. On the balance the paper for this year seems to suggest neutral to positive leanings vis a vis the National Parole Board and parole matters. None of the named writers stand out as being particularly supportive of parole matters, however, the Sellar article suggests a leaning towards indepth article. The concern of the paper this year appears to have been related to the circumstances surrounding and the impact of overcrowding of our prisons.

- 147 -

APPENDIXB

I 1971 1972 1973

DATA SHEET FOCUS PASSING 'FOCUS PASSING FOCUS PASSING ARTICLE ANALYSIS 1 2 3 1 2 3 1 2 3 1 2 3 1 2 3 1 2 3

BRITISH COLUMBIA

Vancouver Province - - - - - - 4 - 4 2 1 1 1 - 3 - - -

Vancouver Sun --- -11 5 - 4 -1- 1 - 1 1 - -

ALBERTA

Edmonton Journal --- --- --1 --1 111 2 - 1

Calgary Herald --- --- --3 --1 -12 1 - - SASKATCHEWAN

Prince Albert Daily - - - - - - - - 4 - 2 - Herald - - - - - -

leLNTARIO

Ottawa Journal --1 -11 5 - 3 --- 412 --1

Ottawa Citizen --1 -1- 1 3 - -1- 422 2- 1.

Toronto Globe & Mail 2 - 2 - 2 1 135 8 1 1 3 14 13 8 5 4 -

Toronto Star --- --- 3 - 8 323 324 -31

Kingston Whig Standard - - - - - - - - 1 - 1 2 1 - 1 1 2 6

QUE BEC

Montreal Star -13 --1 2 - 2 1 - - 231 111

Montreal Gazette 3 - 6 1 - - 5 - 2 3 - - 231 --1

TOTALS 5 1 13 1 5 4 38 8 36 10 7 11 33 26 30 13 12 12 I

*CODE: 1. Critical presentation or negative impact 2. Neutral presentation / no suggested direction of impact , • 3. Supportive presentation or positive impact.

TT= 1.76 24 2.35 24 3.79 27

- 148 - APPENDIX ABC DAILY NEWSPAPERS RANKED BY CIRCULATION SIZE

NEWSPAPER EDITIONS CIRCULATION RANK

Toronto Star EVE 539,125 1 Toronto Globe and Mail MORN 268,393 2 Vancouver Sun EVE 234,902 3 Montreal Star EVE 188,577 4 Montreal La Presse (F) EVE 175,118 5 Quebec Le Soleil (F) EVE 163,627 6 Edmonton Journal EVE 160,053 7 Le Journal de Montreal (F) MORN 8 Montreal Gazette MORN 137,801 9 Montreal-Matin (F) MORN 10

Wimipeg Free Press EVE 134,541 11 Hamilton Spectator EVE 132,170 12 London Free Press MORN/EVE 124,254 13 London Free Press MORN (75,270) London Free Press EVE (48,984) Halifax Chronicle-Herald, Mail-Star MORN/EVE 115,016 14 Halifax Chronicle-Herald MORN (66,942) Halifax Mail-Star EVE (48,074) Vancouver Province MORN 112,100 15 Calgary Herald EVE 110,322 16 Ottawa Citizen EVE 91,622 17 Windsor Star EVE 84,056 18 Ottawa Journal EVE 82,719 19 Winnipeg Tribune EVE 74,857 20

Victoria Colonist, Times MORN/EVE 71,510(B) 21 Victoria Colonist MORN Victoria Times EVE (31,146) Toronto Sun MORN 22 Regina Leader-Post EVE 66,425 23 Kitchener-Waterloo Record EVE 57,274 24 Saint John Telegraph-Journal, Times-Globe MORN/EVE 56,341 25 Saint John Telegraph-Journal MORN (29,857) Saint John Times-Globe EVE (26,484)

Saskatoon Star-Phoenix EVE 48,831 26 Three Rivers Le Nouvellist (F) EVE 48,704 27 Ottawa Le Droit (F) EVE 48,446 28 Sherbrooke La Tribune (F) EVE 40,667 29 Sudbury Star EVE 39,724 30 • - 149 - ABC DAILY NEWSPAPERS RANKED • BY CIRCULATION SIZE NEWSPAPER EDITIONS CIRCULATION RANK

Montreal Le Devoir(F) EVE 38,290 31 St. Catharines Standard EVE 37,018 32 Calgary Albertan MORN 35,969 33 Moncton Times, Transcript MORN/EVE 35,417 34 Moncton Times MORN (16,276) Moncton Transcript EVE (19,141) Thunder Bay Times-News, Chronic le-Journal MORN/EVE 32,837 35 Thunder Bay Times-News MO RN (6,813) Thunder Bay Chronicle-Journal EVE (26,024)

Kingston Whig-Standard EVE 32,346 36 New Westminster Columbian EVE 39,979 37 Sydney Cape Breton Post EVE 38,169 38 St. John's Telegram EVE 39 Brantford Expositor EVE 26,919 40 Peterborough Examiner EVE 26,100 41 Oshawa-Whitby Times EVE 24,816 42 Sault Ste. Marie Star EVE 22,218 43 Lethbridge Herald EVE 22,105 44 • Charlottetown Guardian, Patriot MORN/EVE 22,009 45 Charlottetown Guardian MORN (16,620) Charlottetown Patriot EVE (5,389) North Bay Nugget EVE 29,801 46 Welland-Port Colborne Tribune EVE 19,551 47 Le Journal De Quebec (F) EVE 48 Sarnia Observer EVE 19,079 49 Niagara Falls Review EVE 18,773 50

Quebec L'Action (F) EVE 18,718 51 Fredericton Gleaner EVE 18,047 52 Guelph Mercury EVE 17,868 53 Belleville Intelligencer EVE 17,189 54 Owen Sound Sun-Times EVE 15,606 55 Prince George Citizen EVE 15,320 56 Chatham News EVE 15,006 57 Cornwall Standard-Freeholder EVE 14,649 58 Galt Cambridge Reporter EVE 13,988 59 Brandon Sun EVE 13,453 60 •

- 150 - ABC DAILY NEWSPAPERS RANKED • BY CIRCULATION SIZE NEWSPAPER EDITIONS CIRCULATION RANK Timmins Press EVE 11,745 61 Kamloops Sentinel EVE 11,335 62 Brockville Recorder and Times EVE 11,213 63 Barrie Examiner EVE 11,186 64 St. Thomas Times-Journal EVE 11,066 65 Granby La Voix De L'Est (F) EVE 10,945 66 Red Deer Advocate EVE 10,728 67 Stratford Beacon-Herald EVE 10,285 68 Nanaimo Free Press EVE 10,171 69 Kelowna Courier EVE 10,131 70 New Glasgow News EVE 9,794 71 Woodstock-Ingersoll Sentinal-Review EVE 9,764 72 Oakville Journal-Record EVE 8,960 73 Moncton L'Evangeline (F) MORN 74 Nelson News MORN 8,819 75 Moose Jaw Times-Herald EVE 8,763 76 Sincoe Reformer EVE 8,703 77 Summerside Journal-Pioneer EVE 8,559 78 Corner Brook Western Star EVE 79 Medicine Hat News EVE 8,416 80

• - 151 -

APPENDIXD

MAJOR MARKET CIRCULATION COVERAGE ANALYSIS CENSUS METROPOLITAN AREA/ 1971 CENSUS AGGLOMERATION CENSUS EDITIONS CIRCULATION Montreal, Quebec Population 2,743,209 Households 806,025

*Montreal Le Devoir (F) EVE 19,372 *Montreal Gazette MORN 109,209 *Le Journal de Montreal (F) MORN 105,588 *Montreal-Matin (F) MORN 96,204 *Montreal Star EVE 163,798 *Montreal La Presse(F) EVE 143,751 Toronto Globe and Mail MORN 1,377 Toronto Star EVE 509

Toronto, Ontario • Population 2,628,043 Households 774,465

*Oakville Journal Record EVE 8,877 *Toronto Globe and Mail MORN 149,917 *Toronto Star EVE 415,528 *Toronto Sun MORN 66,130 Hamilton Spectator EVE 2,592 Oshawa Times EVE 640 Vancouver, British Columbia Population 1,082,352 Households 346,215 *New Westminster Columbian EVE 30,911 *Vancouver Province MORN 74,834 *Vancouver Sun EVE 190,877 Ottawa-Hull, Ontario-Quebec Population 602,510 Households 171,040

*Ottawa Le Droit (F) EVE 33,002 *Ottawa Journal EVE 55,587 *Ottawa Citizen EVE 78,074 Toronto Globe and Mail MORN 12,062 Toronto Star EVE 907 Montreal Le Devoir (F) EVE 2,830 •

*Denotes Newspaper Published Within Market

- 152 ° CENSUS METROPOLITAN AREA/ 1971 • CENSUS AGGLOMERATION CENSUS EDITIONS CIRCULATION Montreal Gazette MORN 7,700 Le Journal De Montreal (F) MORN 1,960 Montreal-Matin (F) MORN 1,476 Montreal La Presse (F) EVE 607 Winnipeg, Manitoba Population 540,262 Households 166,670 *Winnipeg Free Press EVE 105,276 *Winnipeg Tribune EVE 50,046 Hamilton Ontario Population 498,523 Households 146,315

*Hamilton Spectator EVE 116,728 Toronto Globe and Mail MORN 16,408 Toronto Star EVE 2,673 Edmonton, Alberta Population 495,702 Households 144,810 *Edmonton Journal EVE 121,559 Calgary Albertan MORN 2,570 Quebec, Quebec Population 480,502 Households 127,510 *Le Journal De Quebec (F) MORN 17,507 *L'Action-Quebec (F) EVE 7,682 *Quebec Le Soleil (F) EVE 85,820 Montreal Le Devoir (F) EVE 5,010 Montreal Gazette MORN 3,637 Montreal Matin (F) MORN 3,857 Montreal Star EVE 1,514 Montreal La Presse (F) EVE 1,127 Calgary, Alberta Population 403,319 Households 121,290

*Calgary Herald EVE 94,781 *Calgary Albertan MORN 24,912 •

- 153 - CENSUS METROPOLITAN AREA/ 1971 CENSUS AGGLOMERATION CENSUS EDITIONS CIRCULATION

St. Catharines-Niagara, Ontario Population 303,429 Households 88,995 *Niagara Falls Review EVE 18,590 *St • Catharines Standard EVE 34,561 *Welland-Port Colborne Tribune EVE 18,239 Hamilton Spectator EVE 791 Toronto Globe and Mail MORN 11,978 Toronto Star EVE 4,669 London, Ontario Population 286,011 Households 87,230 *London Free Press MORN/EVE 66,627 Toronto Globe and Mail MORN 5,772 Toronto Star EVE 911 Windsor, Ontario Population 258,643 Households 74,235

*Windsor Star EVE 65,842 Toronto Globe and Mail MORN 3,313 Kitchener, Ontario Population 226,846 Households 66,585 *Galt Cambridge Reporter EVE 13,602 *Kitchener-Waterloo Record EVE 44,222 Toronto Globe and Mail MORN 6,460 Toronto Star EVE 2,045 Halifax, Nova Scotia Population 222,637 Households 60,010

*Halifax Chronicle-Herald, Mail Star MORN/EVE 59,771 Toronto Globe and Mail MORN 644 Victoria, British Columbia Population 195,800 Households 66,510

*Victoria Colonist, Times MORN/EVE 60,986 Vancouver Province MORN 587 Vancouver Sun EVE 883

- 154 - CENSUS METROPOLITAN AREA/ 1971 CENSUS AGGLOMERATION CENSUS EDITIONS CIRCULATION

Sudbury, Ontario Population 155,424 Households 39,430 *Sudbury Star EVE 30,942 Toronto Globe and Mail MORN 3,553 Toronto Star EVE 978

Regina, Saskatchewan Population 140,734 Households 42,595 *Regina Leader-Post EVE 37,790 Chicoutimi-Jonquiere, Quebec Population 133,703 Households 29,725 Montreal Le Devoir (F) EVE 688 Le Journal De Quebec (F) MORN 1,005 Montreal-Matin (F) MORN 1,454 Quebec Le Soleil (F) EVE 16,295 St. John's Newfoundland Population 131,814 Households 29,755 *St. John's Daily News MORN 4,978 *St. John's Telegram EVE 19,157 Saskatoon, Saskatchewan Population 126,449 Households 38,640 *Saskatoon Star-Phoenix EVE 31,688

Oshawa, Ontario Population 120,318 Households 33,995 *Oshawa Times EVE 21,869 Toronto Globe and Mail MORN 3,932 Toronto Star EVE 9,021 Thunder Bay, Ontario Population 112,903 Households 32,215 . - 155 - CENSUS METROPOLITAN AREA/ 1971 CENSUS AGGLOMERATION CENSUS EDITIONS CIRCULATION *Thunder Bay Times-News, Chronicle Journal MORN/EVE 26,816 Toronto Globe and Mail MORN 1,335 Saint John, New Brunswick Population 106,744 Households 28,780 *St. John Telegraph-Journal, Times Globe MORN/EVE 29,063

*Denotes Newspaper Published Within Market • PART II, SECTION B

• - 157 - • PART II, SECTION B The news has previously been defined from the literature as "... a vaguely definable commodity recognized more by instinct than by copybook maxims". To ascertain just what does constitute news in the field (vis à vis the press), the following media personnel were interviewed: an editor (Journal), a member of the editorial board (Journal), reporter on the 'law and order beat (Journal), crime reporter (Citizen),

newseditor (Canadian Press Wire Services), and a news director (CJOH-TV). The material obtained will be presented in the following manner: I The Press, II The Wire Services, III Television News, IV Impressions. While comments are based on contacts with those media, it is apparent that they may also • apply more generally, and may be taken to do so.

• - 158 - • I THE PRESS The newspaper is made up of three autonomous components: the advertising department, the news department,

and the editorial board. On any one day, the size of the paper,

i.e., number of pages, is dictated by the advertising department; they look at the number of advertisements they have, the number of pages they need to lay them out, and proceed to do so. Having "dummied"* the ad space, the "dummy" book for the day is given to the newsroom for the use of the remaining space. The editorial board automatically has allocated to them the editorial page and the "op-ed" (page opposite the editorial page), they are responsible for filling both these pages, and for "dummying" them.

• Once the newsroom receives the day "dummy" book, the Managing Editor ** allocates for the day, the number of pages each editor has to fill: the city news editor, the international news editor, sports editor, etc. The decision about what

news goes in on any one day is usually left to the discretion

of the particular editor, though they are being monitored by the Managing Editor.

* To "dummy" is to take a scaled down blank sheet of paper, which represents a full page in the newspaper, and mark off the size and shape of the space required for particular items.

**Different papers appear to have their own particular brand of organizational hierarchy, though the basic structure is the same. This chore may be carried out by the Managing Editor, the Editor, the Chief Editor, or whatever his title might be. The basic • hierarchy will be presented in the next few pages. - 159 - • The items which appear as news are obtained daily from a number of sources: reporters on staff, in Ottawa - reporters in the Press Gallery, correspondent (reporters) from surrounding areas, other papers in the chain (if the paper is a part of one - in Ottawa, the Journal is part of the F.P. Chain and the Citizen, the Southam Chain), and the wire services (mainly Canadian Press*, but depending on the paper, perhaps also UPI; may also be connected to the New York Times or some other major American paper). Each editor is responsible for giving out assign- ments to the reporters which report to him. For example, the city (news) desk, which has the highest number of staff reporters organizationally (both papers have in the region of 40-50

• reporters doing city news), allocates regular 'beats' - such as "law and order", "court reporting", "police reporting", etc. but also assigns particular stories or events to the reporters. Obviously, most of the city news is obtained through these people; an editor who is responsible for Canadian news (national basis) would get most of his stories from the wires*e Feature stores which appear from time to time are usually done by reporters in their spare time unless they are specifically asked.

* Canadian Press will be dealt with in detail below. **The wire services are a common thread for all editors. They are regularly monitored and items which are of interest to particular editors are brought to their attention. Obviously, the extent of the use of wire material depends on the res- • ponsibilities of the particular editor. - 160 - • Reporters are encouraged to dig up their own news and to keep the editor informed as to their activities. There seem to be a fair degree of freedom in these regards. Correspondents who usually write from surrounding areas are often given a modest retainer (such as $200 or $300 a month), or are hired on a contract basis to cover stories as they happen in their local area. (Correspondents also "work" certain areas of interest, such as business and finance.) Correspondents are usually doing that as a sideline to their own job (as "Stringers"); in many cases, they are reporters on small-town papers. The Press Gallery seems to be a largely autonomous group itself; they have access to telex machines on the Hill, have their offices there, and write their stories there. There was no contact with this group. • The organizational set-up appears to be somewhat like the following: *Publisher Editor (in Chief) Managing Editor Executive Editor (News) (Editorial Board) I Ass't Managing Editor t I s i - City News Editor News Editor Sports Editor Etc. (ie. Local) (le. the rest of the t "hot" news plus page 1) I District I 1 1I Editor Reporters Reporters 8 I Reporters Correspondents

* This is the hierarchy of the Ottawa Citizen; the Journal is different in detail, but similar in function. This is not • an official reproduction. - 161 - As can be seen, the editorial board is a completely autonomous unit; in fact, so much so that on both papers there appeared to be an undercurrent of internecine warfare, feelings of mutual isolation and lack of reciprocated understanding. In the Journal, the editorial board meets regularly with its members to lay out prospective approaches; they have literally nothing to do with the news component. Their writings, however, often follow articles which appear in the paper because that means they

do not have to build the item up from the ground - they are free to comment more briefly (and thus on more issues on one day) when the groundwork has already been done. However, at the Citizen, there are daily morning meetings of all the editors and the publisher to discuss direction and prospective issues and coverage, for internal communication between components, and to set policy. Within rough guidelines, however, each constituent is autonomous. Editorial policy appears to be a combination of policy, individual members' interests, and tradition. What, then, are the realities of the "blue-pencil" level? As an example, I will focus on the city news editor. All his decisions have to be made by not later than about noon, in order that the paper may go to press and be on the street at a competitive hour. (Some editors have earlier

deadlines - their news areas are usually of the more routine nature.)

• - 162 - The city news editor spends the afternoon working on the next day's paper. Reporters are assigned daily, and it is expected they will hand in their stories for certain deadlines. At the Journal, the editor compiles all the stories available for the day, continuously monitors the wires (and other competitive local papers' previous issues for leads), and notes how many pages he has to fill, how many "news holes" he has. He then lists his stories in terms of priorities, checks with other editors - particularly the Managing Editor and the front page editor to see if certain of his stories are needed elsewhere, and then decides by himself what will go in. He selects the photographs he wants if there are any, and then writes the headline. If he has a lot of stories and little space on any one day, he "pares" stories arbitrarily, or decides not to print them - or takes out the photograph. This is then "dummied" and sent to press. At the Citizen, the process is slightly different in that the reporter's story immediately goes on computer tape, and the city editor calls it back on a monitor, edits it, and dummies the final page from the monitor. A "slot-man" writes the headlines in this case. Essentially the rest is the same, though the actual printing process is more advanced. It is interesting to note that in terms of stories appearing on any one page, or - 163 - • several, this is strictly the relatively autonomous and subjective decision of the particular editor. The other impact he can have, is in terms of the kind of "paring" which he does, and the headlines which he okays or writes himself. Reporters are technically supposed to write neutrally, unless, and even then not obviously, if they are doing an interpretative piece. All opinion articles and position items are supposed to issue from the editorial board; that is their function. According to the press people I spoke to, this is accepted and is policy. However, now that personnel are becoming more educated, i.e., almost without exception a degree in journalism is required to be hired now unless the individual has considerable experience, and because the papers are also • beginning to examine their function as a public service, more latitude is allowed in interpretive reporting and feature writing.. "By-lines" (indicating the name of the writer of the particular article) are given solely as a reward for an item well done, or to establish a new reporter's credibility with his sources, or where it is to the paper's advantage to note it if it is a well known correspondent, or where there is considerable interpretation and background included. It is the editor's decision

at all times - may be a function of the space available on that date.

• - 164 -

In conclusion to this part, then, what actually gets into the paper on any one day is a function of the advertising department, the reporter's selectivity, what is available for the day, and the editor's decision; all is circumscribed by time.

•

• - 165 - II THE WIRE SERVICES

Canadian Press is the major Canadian wire service. It is a co-operative venture owned by the member papers, which in this case is all the papers in Canada (104). Policy is set by its members, each member, regardless of size, having one vote. Amount of membership fee, however, is determined by circulation size. The condition for membership is that the paper is responsible for notifying the nearest CP bureau of newsworthy items (in smaller centres, and where the bureau is not geographically close; by Phone). CP has bureaus in major centres across Canada, with its Headquarters in Toronto. Toronto is the cut-off point for information flows East or West respectively. Every article which any member paper writes has the potential to be used in any other paper in the country, with the exception of competing papers in the same city, where CP monitors the information flow. "Blacks" or carbon copies of every article written are made available to CP for them to transmit. Obviously, there are many articles of local interest which are not of interest nationally, at least for the smaller papers, and these are not put onto the major cross country circuits. All of the larger papers, however, in the larger centres are hooked up to the major CP circuits, and they receive virtually most of the articles; papers such as the Vancouver Sun; the Toronto Globe and Mail, or the Toronto Star prefer to make their ownselection. Smaller papers are on regional circuits and there • - 166 - appears to be some "culling" by CP in terms of what they receive. International input is done at Toronto, through which all information travelling on the wire service eventually passes. "Culling" also takes place (as well as re-writing) at local major bureaus, so that picayune items do not foul up the lines, and that duplicate copies of the same story do not go out. Generally speaking, bureaus do not have their own reporters, unless they are major, or in a location of particularly heavy activity, i.e., Ottawa (Press Gallery) and Toronto (and, I imagine cities as large as Vancouver). They do have writers, and do put their own versions, or re-writes, of stories on the line if necessary. Each member paper has a CP representation whose responsibility it is to keep the information • flowing to CP from the particular paper. Member papers may request information from CP, who have their own "morgues"; however, most of these requests are sent directly to other papers for contribution of the information. For example, if the Moncton Times wants to write an article on housing being proposed by the Government of New Brunswick, and that paper is aware that the program has been tried in Saskatchewan, they can request background information from major Saskatchewan papers. This request would be forwarded through CP and the response put over the wire. The Moncton Times would pay extra for this service, unless it was something a number of papers could use. • - 167 - Generally, the wire services are supplying a service to papers from a wide background of traditions, political stances and interests. To that extent, their service must satisfy all those interests and therefore, culling or re-writing is attempted in an as unbiased way as possible. However, there are no resitrictions on the use of the information going over the wires. The paper which decides to use an item may emphasize any part of it, re-write it totally, or imbue any prejudice or bias they so desire. Thee are not the interests of the CP wire service, as stated. In a later section on "Impressions", their own subjective views will be expanded upon, however, in re-writing and culling, they have the same conception of what is newsworthy as the papers with whom I spoke: conflict, the • unusual, the nameworthy - all within the context of timing. Southam News Services supply an analogous kind of service to papers in the Southam chain. However, it is a separate organization from the Southam chain and it sells news to the different Southam papers; i.e., it is a subcription service, with news as the commodity. I did not enquire into the financial end of the paper business at all, but each Southam paper in the chain appears to be a separate entity, and each buys the amount of news it requires from Southam News; the papers also, of course, use regular wire services. Southam News has its own reporters, who supply their news. • - 168 - III TELEVISION NEWS • This section is added, very briefly, to focus on sources of information, in order that the model and recommendations suggested in the final part to this study maintains a wider validity. A one hour interview was held with Max Keeping, News Director for CJOH-TV. His impressions and suggestions will be noted in the following section "Impressions". Sources of news for the type of news program offered by CJOH are the following: Canadian Press, Broadcast News (a re-write of some CP stuff), the daily papers, (2) full time reporters on the Hill, individually developed contacts, receipt from mailings of CPS and NPS, in addition to speeches, etc. Mr. Keeping assigns reporters on a daily basis, to focus on areas of interest, as he sees them in his capacity and in his • position as having an overview of what is going on. He also expects that they will develop their own stories. Since he "fronts" the news himself, he expectes it should be some indication of himself. He writes his own news several times a week; someone else does it other times. He may not put the news together himself every day, but he has the final say in what goes or stays in. On Saturdays and Sundays, their news is only half an hour, with "Regional Contact" taking up the other half hour. It is in these half hours that bits of news of local interest get in which do not make the news during the week, or of which are of particular interest. (Mr. Keeping expressed a particular interest in corrections, and has filled several of those "slots" with informational • or position pieces.) - 169 - • Mr. Keeping was involved in the national news production for some years, and it would appear that the process there is similar. The national news we see is comprised of "inserts' from major areas (i.e. Bruce Phillips for the Ottawa Bureau), and their own assigned reporters. The information gathering is essentially similar, though more national and international in scope. There, it becomes more a question of selection from a steady influx of "inserts".

• - 170 - IV IMPRESSIONS • There seems little doubt that there is a great deal of subjectivity, albeit experienced, involved in the putting together of the newspaper. Notwithstanding euphamistically importuned clichés about the news being the truth, to educate the public and the politician, and to be a watchdog on the government ( all of which were mentioned), the reality of the reporter's lot is to please his editor; the realities for the editor is to put out a paper he feéls the majority of the public wants to read. It is important to note that the people I spoke to do have an awareness of the need for responsibility in printing items, but there are definite limits placed on this by time and space. Varying degrees of acceptance of the potential • impact of items were noted - from one reporter who said the public would not be interested in more in depth articles and would not read them (.e., public "cannot be educated"), to Max Keeping who felt the "public" could and should be educated about (correctional) issues. He went on to note that a study he had read somewhere placed corrections and broadcasting very low on the priorities of public interest, though this was location specific (Kingston would have a higher level of interest). This does not mean that perceptive awareness cannot be achieved, even if the actual interest level remains low.

• - 171 - Most people interviewed had a fairly consistent view of what people want to read; conflict, sensational events, name content and the unusual were all mentioned as of top importance. One reporter felt that supplying background to even sensational events had to be done in small insert paragraphs throughout the account; she felt that people would not read explanatory information if presented as a separate article. On the other hand, these paragraphs were those often "pared" by the editor if space was a problem. There was an awareness that different publics have different interests; the general view was to provide particular items for these, however, to by and large select items which would have the widest interest. There was no apparent bias noted towards placing "confounding" articles in proximity for seruptitious design (i.e. one on the success of a rehabilitative program next to one on a police shooting by a parolee). There is an attempt to place articles of a similar area in proximity to each other, for readership convenience - this is a particular policy of the Citizen. It was the unanimous agreement of all interviewed that papers do not go on "campaigns" anymore; that is not to say that policy and tradition do not dictate stance. Most papers may have a target readership in mind, but by and large, hope to find adherents in the largest possible range of the public. - 172 - • Most newspaper decisions are made on the line in pressure situations, with initial selection starting with the reporters. Generally, most papers print "all the news that fits". It is also important to note that, as with any large organization, there are social cliques and groups in states of "semi-friction" at all times; editors are having to adjust to a newer breed of more independent reporters and reporting, more in depth types of analyses, and pressure for a new definition of social responsibility. To the question "How can corrections come to grips with the public in explaining its policies (and should it) and what role could the media play?" there were a variety of suggestions and answers. The responses ranged from a viewpoint that the public will never accept progressive correctional programs; the "public" are non-educable to a level of an understanding of the complexities of the issues which will facilitate correctional aims; to the notion that corrections must develop a much more visible profile of it is to succeed in its own goals. One reporter suggested that corrections must change the way they are in order to give the media something positive to write about. All accepted that material which lent itself to the type of

medium concerned was hard to come by - in order to facilitate both mutual needs. The most commonly accepted solution was

to "open up" about corrections; to lay the cards as they are • - 173 - on the table. Inaccessibility of correctional 'information givers' was cited as a major cause of dissatisfaction; this is on the part of the media not surprising given a certain defensiveness/about past media performance vis à vis corrections (which was noted and which is a positive sign from a corrections pro-active point of view) and, perhaps more importantly, the time pressures reporters are under to get the story out. The general model which arose out of these discussions, and most coherently suggested by Max Keeping is the following: (1) free up field personnel as sources of information; (2) take a more offensive view towards the media,

know your media, and its reach, cultivate lôcal reporters and decision makers; (3) make yourself known to local media people and be an active resource person;

(4) be prepared to rebutt and/or otherwise deal with local issues, do not wait for the media to contact you for comment; contact them and comment; (5) develop a mutual trust that, from both sides, "off the record" stays of the record; (6) remember, you are not being done a favor by appearing in the media any more than the vice versa situation; - 174 - • (7) weekly newspapers have a special readership which more closely examines the product, do not fail to use them as resources; (8) very importantly, when dealing with any medium, timing is critically important. What appears on the front page on one day may not make the paper at all the next. Release information accordingly - this situation can also be monitored by knowing your people and what the interests are. Reporters do not get "promoted" in the normal sense, they just get more prestige "beats"; corrections is not one at the moment, but could become one. Corrections is not a particular interest of papers, particularly as historically • there has been little other than sensational incidents to report.

• • - 175 -

PART II, SECTION •

• - 176 -

PART II, SECTION C

Brief interviews were held with three Board Members who have been on the Board for some years; in order to attempt to get a feel for the impact the media has had on them as individuals, in their decision making, and on the Board in general. The writer's comments in this regard are not meant to be Cet:>-nouz in any sense, though they are written with an obvious bias. One of the most oustanding impressions the writer was left with was that media response was not a major consideration in their decisions at any time. A bad decision, which was made on occasion, was noted as such without the congizance or recognition of the media. Personal shifts in decision making was largely a self regulated phenomenon based on a desire to do • an effective job. A degree of anonymity as "a" Member of "the Board" serve some personal protection from any harrassment. There was some disagreementas to the degree of direction supplied by the Chairman in these regards, for the years in question. There is little indication in Board minutes for that period of particular concerns about media impact and public opinion. But theredoes appear to have been some, particularly from the Chairman's point of view as he was personally attacked - and he at all times appeared to defend in public the decisions of all Board Members. Several programs for amelioration of media attacks appear to have been suggested, however, none were carried • through (eg., informal get togethers). The apparent response - 177 - of the Board to public opinion, by decreasing the number of paroles, was, however, suggested to be as much a result of coincidentally timed circumstances not related to that pressure.

In particular, those were: the Board Members increased

familiarization and confortableness with the travelling panel

face-to-face decision making, increased familiarity with and knowledge about particular inmates on a face to face basis, individual adjustments of decision making on the face of previous decisions, changes in recommendation patterns of parole service

officers, and so on. There were differing opinions on the need to attempt to educate the public about the complexities of the parole decision, and on how to go about it. In only one case did there • appear to be a real interest in really tackling the job in a systematic way; another Member felt that generally speaking,

the public could not be educated. All agreed it was their

responsibility to talk to the press if need be, and to other interested groups, but the dominant impression the writer was left with was that essentially this was someone else's job

• (perhaps the Chairman's). To that extent, none had thought through a systematic approach which might be practical, though one had some ideas; all suggested that the basic question was one of inter-personal relations between Parole and media personnel. • - 178 - • Throughout the period in question there appears to have been no consistent philosophy of aims and objectives vis à vis media relations; to the greatest extent, it was a reactive effort by the Chairman, to keep a low profile, apparently based on limited information about the media and perhaps even about parole policy effects themselves. The earlier analysis of Paper Clips substantially bears this out. One thing seems clear, and was stated by one Member: develop a clear headed parole policy and be able to explain it to the media, and to the public; that includes a clear headed policy on media relations. e

• - 179 - •

PART II, SECTION •

• - 180 - PART II, SECTION D

In order to provide a functional model in the final Part to this study, it is necessary to have a clear headed view of what service presently exists for communications both internally and externally for the Ministry and for the National Parole Board in particular vis à vis the media. Interviews were therefore held with the Director and the Assistant Director of the Communications end of the Communications and Consultation Division of the Secretariat. A brief interview was also held with the Information Officer of the National Parole Board (and Service). The Communications Division of the Secretariat is set up as a specific service for the Minister, and is responsible to the Minister in his over-all duties of the business of the Solicitor General. Their program objectives and activity descriptions are appended as Appendix A, and will not be expanded upon here, as they are self-explanatory. As can be noted, they also provide a co-ordinating and consultation service vis à vis any communications problems to the various constituents of the Ministry. However, each component has its own consultant and director of communications. The CPS has a Director of Public Information Services who has under him five Information Officers. He reports to the Commissioner of Penitentiaries and is autonomous from the Ministry Communications Division. The R.C.M.P. has a Liaison Officer who has similar duties and reports to the Comm- issioner of the R.C.M.P. The National Parole Board has one individual in this position; he is known as the Information Officer. - 181 - The Information Officer for the National Parole Board describes his job as handling public information questions for the Board, acting as a consultant to the Board and Service field personnel in their contacts with the media, keeping abreast of what is going on in the field, distributing speeches or releases to the media for this component when asked, and becoming actively involved in media relations or other public group relations undertaken by the members, at their request. Only specific field personnel may engage in media relations and it is to these that he will supply his services when requested, i.e., District Representative of the National Parole Service and Board Members. His job essentially appears to be one of back-up and is largely • activated on request only. It was this writer's perception that there was a sense of isolation, and that his services were not available generally in most field situations simply as a result of geography and location. Board Members and other Service personnel, when asked, could not say what services the Information Officer could offer or did offer.

• • - 182 -

PART II, SECTION D

APPENDIX

•

— 183 —

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Activity Description

To fulfil these objectives the Communication Division is engaged in the following activities: 1. the writing and production of printed information. 2. the production ./.1c1 distribution of technical publicatibns originating from the research, consultation, and statistical collection and analysis activities of the Ministry.

3. the writing, production, and distribution of pressv releases, statements, announcements, and speeches emanating from the Solicitor General. co 4. the writing and production of regular items of information, i.e. newsletters, used to inform the staff of the Ministry of policies and events of significance. at the Secretariat leVel of the Ministry and of developments of interest occurring elsewhere in the corrections and law enforcement communities in Canada. 5. the production and distribution of publications that are the responsibility of the Solicitor General, i.e. annual report, reports of Task Forces and other groups reporting to the Solicitor General, material of a joint federal- • provincial concern that the Solicitor General is responsible for co-ordinating • and publishing for general distribution.

• 6. providing preàs relations service to the Solicitor General and his staff. 7. providing information to the public on general aspects of corrections and law enforcement in Canada. 8. co-operating with other federal government agencies, the private service agencies, and the appropriate departments of the provincial governments in programs aimed at increasing the understanding of the public about the purpose and programs of corrections and about the role of police in criminal justice. • • . • - 185 -

PART III •

• - 186 -

PART III • In the introductory paragraph to this study four questions were posited, which it was felt would require being

answered, at least to some degree, before the complexities and importance of the area of media relations - public opinion - policy making could be grasped and incorporated into the business of effective corrections (or any other 'public service' for that matter). These were: (1) To what degree is public sentiment formulated by press exposure;

(2) To what degree do public officials separate media response and true public sentiment;

(3) Towhat degree are such officials swayed or constrained by what they read in the press; and • (4) To what degree are press opinions congruent with public opinion.

Re-examination, in brief, of the cummulative and complementary findings in Parts I and II shall tentatively answer those questions. Based on such an analysis, an operational model of media relations which in the opinion of the writer is indicated, and based on field realities as known to the writer, will be suggested. The analysis shall comprise Section A; the model Section B. They are to be taken as in juxtaposition to each other.

• • - 187 -

PART III, SECTION A •

• - 188 -

PART III, SECTION A

To what Degree is Public Sentiment Formulated by Press Exposure: Examination of the material in Part I suggests

the following kinds of conclusions are possible as indicated by studies of public perception: The Press medium does (amongst

others) have considerable potential in formulating the underpinnings of public opinion and information. Further, by being

in a fundamental position (i.e., large numbers of people read the paper), and presenting material in such a way that discussion

amongst interested publics may be generated, its potential must

not be underestimated (in favour of TV, etc.). Ideas do penetrate slowly, depending also on a wide variety of individual and group • psycho-social factors; the discourse can be further generated however, by presenting material in a dialectical fashion, and the

editorial board, as noted from Part II is in a particularly

unique position to do so. However, this would require co-ordination, or at least mutual understanding between the news and editorial constituents of the, press as to possibilities for generating news and comment-worthy items on corrections on a broader base for

public consumption; the dialectics of corrections and criminal

justice are as many and varied as the imaginations of correctional academics, administrations, field personnel and news personnel can generate. This requies cultivating and educating both • components of the paper. - 189 - • Generally speaking, different publics have different levels of interest in corrections, or in different aspects of corrections. It is therefore important to isolate target publics, whether this be by education, institutiànal power, age, etc. Which public(s) can most seriously impede correctional progress? Print media impacts most strongly with the relatively

more education; multi-media relations would appear an (eventual) necessity. It should also be noted that while the general populace might always, as individuals, have opinions on issues when they reach a sensational level, generally this is not likely

the case, and correctional issues are not very high on the order

list of priorities of individual interest. This speaks most

importantly to the nature of the model to be proposed in • Section B. The education of the general populace, in addition to more concerted efforts towards specific publics, must therefore be subtle and sophisticated, and "fit" within the priorities of the varying groups; increasing the threshold too high over that which does "fit" is seen as disfunctional and may actually defeat its own ends. The impression one must conjure for the long term effectiveness of correctional goals is one of "psychological

comfort" for the populace, but based on perceptively presented

information, not on no information. Stories of 'local' interest will impact most within its own area;dialectic material lends itself most readily to national impact. • - 190 - II To What Degree do Public Officials Separate Media gl, Response and True Public Sentiment*

The answer to this question must remain largely

speculative in terms of direct information from correctional officials, but it is possible to infer from a number of findings in Parts I and II.

There is no indication that correctional policy

makers have, with the exception of Complan Phase I which is three years old, ever consistently tapped public opinion. The very underpinnings of the apparent major source of "pulse" of the

country designed to keep top officials informed is a newspaper and electronic media monitoring system. There are organizational

directives regarding keeping head office informed of field • incidences, but these are based on the premise or potentiality of it becoming a "sticky" or controversial item; in the final analysis to the media.

The (only) major category of articles appearing

in the newspapers across the country were of the criticism- defence i.e., reactive nature. The areas focused on were "caOsE. célèbres", apparent inconsistencies in Board policy and a lack of clear headed philosophy, excessive power of the Board, and the

need for the Board to educate the public, i.e., a call for it to

do so. There are no incidences of the Board responding to media

* The many comments made here in criticism of the Board are made without appreciation of the fact that as an organization • it is only16 years old, and that national circumstances have changed. - 191 - • criticism (allegedly on the public's behalf - and it should be noted here that most papers apparently subscribe to regular

public opinion polls) by citing counter support. Certainly

total lack of support of the populace would have called for a more clear headed appraisal of what the Board was doing, where it was going, and how it intended to get there (including public education if necessary). There appears not even to

have been an attempt to educate the people writing the articles (as a concerned public itself, for corrections); most serious counter articles were written by correctional personnel. One might work from the premise that education which is designed

to broaden the perspective, also mitigates against the

possibilities of ignorant ceriticism; perceptive criticism corr- • ections needs for its own vitality. Media personnel are an important public for corrections - at this point in time, probably, the most important. This lack of contact with the publics corrections

is supposed to serve, lends credence to the need as "touted" by the media, for them to act as a watchdog on government, report to the people as they see fit, etc. Corrections must stand on equal ground to the media with regard to the degree of common

support for progressive programs, and a circumscribing framework

of philosophy. • - 192 -

III To What Degree Are such Officials Swayed or Constrained 110 by What They Read in the Press The answer to this question seems to lie implicitly

in the inferences made above. It has been suggested that correctional

officials have not to any degree separated media response from true public response (and it is important to keep re-stating that they are not the same). Therefore the question ultimately becomes: what are the forces impinging upon officials of which

they are conscious or unconscious and which influence their decisions.

All major correctional decisions, and even minor ones,potentially must be able to withstand the "white heat"

of publicity and/or the floor of the Commons. This holds for • almost any parole decision as well as for policy or program decisions. There are other constraints, such as budgetary specifications, timing, over-all political climate, etc., upon which the writer is not in a good position to comment. Normally,

decisions, even by top administrators, are bound by certain implicit or explicit guidelines, and are never questioned - this would probably be true for most decisions. When a decision is exposed,

however, and focused upon ultimately or even initially by the media, the decision maker is: 1) likely made aware of perspectives

not previously noted) and if it is a contentious decision, 2) is

placed in a position of sticking to it, or modifying it, or • changing it entirely. Unless, and even perhaps in spite of, a - 193 - very clear headed and marketed and marketable product (decision, framework, etc.) can be suggested as justifying the decision, maintenance of a highly disputed decision is politically unsound.

(Remember here the comments of Scism in this regard). That

also makes it administratively unsound for top officials. The reaction of the Board during the three year period examined (from January 1971 to December 1973) is felt to

be a case in point. Notwithstanding, and accepting other

circumstances already noted in Part II, Section C, it seems, from the writer's point of view, that modification of parole decision making was a definite function in the main of adverse publicity. At least, that is what is perceived from the study of what appeared in the press.

Other studies already noted have stressed the

utility of the procedure known as "kite flying" or "testing the

waters" for certain contentions issues. Given the impact of the media on public opinion, and given a wide degree of real

expertise in media personnel, such a process, in conjunction with direct taps on its result, would seem a useful took, particularly as a forum for "sharpening" public knowledge and debate skills of those interested - particularly before full implementation of an expensive program. For obvious reasons such a procedure

must be used judiciously and much more thought than that given

here would be needed to assess the implications of it. • - 194 - IV To What Degree are Press Opinions Congruent with Public Opinion

This is a two pronged question: to what degree are they a) accurate regarding true public sentiment and b)

correct in their perception of . the focus of public interest. I will deal with the latter first.

As should have become apparent after reading Section II, Part B, the news which gets into a newspaper on any one day is the result of a number of organizational factors

which have one common denominator, a subjective experiental base to decisions framed by time pressures. Ultimately, of course, the paper's circulation is the final criterion of success, but the media people with whom I spoke who had final decision making • responsibilities (je., the editors), were just as isolated as correctional administrators in Headquarters positions might be perceived to be from the field realities (a perennial complaint, in my own experience). That is not to say that the decisions of both these bodies are out of phase - all it means is that

they might be. Certainly there is no hard data indicating clearly what the public will accept as news in any area, perhaps even as opposed to what we have been educated to want in this context. An experiment to determine this is not one most successful news organs might wish to undertake, for very real reasons. However, that is a digression. • - 195 - • As noted previously, most papers apparently subscribe to regular opinion polls carried out by specialized bodies, on a vareity of issues. It is my impression that they do not commission special polls, and merely collect (and

sometimes print) those which are made available to them. In

that sense, then, papers or individual writers, are in touch with true public sentiment (on correctional issues) only to the degree that such poils have been recently undertaken in the

correctional area. They are) therefore, more aware of such sentiment

to the degree that corrections (officials) do not take cognizance of these same polls. It should perhaps be noted that papers do not claim to always be speaking on the public's behalf. In a sense, • they see themselves as the so-called "Fourth Estate" in a free enterprise system, and a separate functional and necessary entity

of societal organization in themselves. This notion generally seems to be succumbing to the development of the modifying Social Responsibility theory noted in Part I, i.e., because of the

tremendous power such mass means of communication have in our

perception of the world (that is, most of us experience it by proxy) there is an extra responsibility to present both sides of the argument fairly, as a true representative of the people to the government and vice versa. This would be true of both the

editorial and news components of any medium. • - 196 - • Based partially on the foregoing, and also on data noted througout this study, the following model for communications is suggested, including priorities for the coming year.

• • - 197 -

PART III, SECTION B

• - 198 - PART III, SECTION B Recommendations (Year One)

That a person be hired full time for at least one year to co-ordinate and administrate the program to be suggested

below - to remove all such burdens from the Chairman, to brief him (daily) on significant and pending issues and researched responses ) to prepare materials and "kits" for issuance to the

field, and to generally facilitate the program's effectiveness.

This person should be in a staff position for the Chairman and he must be an individual with (preferably) already established credibility in parole field (Board and Service) and with a

knowledge of the media. The services of the Information Officer should be incorporated in this regard, and the program should be developed in liaison and consultation with the Communications Division of the Ministry. Discussion: The Chairman, in addition to field

personnel but most importantly himseff, must be a visible and

credible figure for the public to believe in. He must at all times be well briefed and responsive to needs, both inter and intra organizationally. The program to be suggested requires effective vertical and horizontal communication.

II That the priorities for the next year be seen in terms

not of particular issues, but of developing emerging in-service opinion leaders as spokesmen, interested in the goals of the present program, and of increasing the communication between the • - 199 -

Board (Service) and media personnel specifically in terms of

increasing the latter's information, understanding, interest and in service informational contacts vis the Board; this includes personnel from the radio, TV, and press media. Increased communications with other components of the Ministry

and directly with the public (see below) should be secondary

focus. Discussion: The findings of Parts I and II

quite clearly suggest that field personnel are in a particularly advantageous and logical position to act as local resource people

to the media about local issues, and as developed, about national issues. The Chairman must always remain extremely visible and active, but there are limitations on what he can do in terms of time and geography. Further, I feel, on the basis of several conversations and my own feelings, that forcing field officers

into public positions of "no comment"denigrates them in the eyes of the media personnel, the public, and themselves. In short, it

is a vote of "no confidence", whether justified or not. That is not to say that guidelines should not be laid down for such personnel

in their contacts with the media. Some training and/or information

(such as parts of this paper) in this area would have obvious advantages. The use of field personnel in such a manner is frought with potential hazards and difficulties, that is accepted. • - 200 - The real problems lie in the initial shift. The instances where the average parole officer would have to speak to media personnel

are likely few in number; the other, and most important side to that coin is the cultivation of the media. That requires one person in each area to do this as part of his job; and it should be someone who has the interest and capabilities. For

all practical purposes he would be the person contacted by the

media if they required comment in any regard. This person might be, but should not necessarily be the District Representative (in fact, perhaps should not be). That person who takes this on should receive a special briefing, and get special recognition (a smaller case load) for doing so - potential unXion difficulties should be addressed at the outset. It is therefore also recommended: III That one individual in each significant geographical location should agree to accept special responsibilities for the following: contacting the media (select personnel) and making

himself known as a resource person for information and background

facts, making such facts and perspectives on a variety of pertinent correctional issues known to select media personnel

(i.e., educating to all sides to the coin), making himself available directly for comment on local issues (including

imposing himself for comment) writing articles if need be, etc.

• - 201 - • Discussion:* This person must take an "offensive" stance with regard to the media (not a critical one) - and must

be a person who is not afraid to, and realizes the importance of, "mutual backscratching". It means, initially at least, a considerable amount of work and therefore requires someone who does not see it as "one more job dumped on the field worker from Headquarters". To get interested people, it may require

visits to most offices, and discussion of the advantages and

disadvantages of the present kind of program. If no one wants to take it on, then drop it for that office. A program such as this which does not have the support of the field personnel must fail - this aspect must be handled properly. Small pilot projects

with a view towards developing a "pool" of experiences and experienced people slowly spreading across the country over several years may be required. Interested field officers may see such

experiences as expanding the job horizons and may re-generate interests in the field, i.e., this program may speak tangentially

to the increasing staff morale by increasing the necessary (back-up) vertical flow of information and decision making.

IV That trying to raise the consciousness of the public should not be attempted as a primary focus, because unless the

NationalParole Board is prepared to expend considerable monies

* Oil companies, even with their massive advertising budgets, are taking care that their top officials are "media-wise" by sending them to school to learn when, how and what to • say to the media. This might be worth looking into. - 202 - • on expensive audio, visual, and print materials and technically trained personnel for its own department, such a focus would be wasted. Discussion: Field personnel are already hired

and available at no extra expenditure. There is no possible way, short of spending a great deal of money (which might be justified, but is unlikely to be ratified) in having professional media organizations contract for services or starting a separate

communications department, that parole can get the coverage

the already existing media can afford. It is up to the Board to use the media in such a manner that optimal coverage is gained (and credible coverage which might not necessarily be the case if professional public relations organizations are utilized). By of more O educating media personnel, one increases the likelihood perceptive and construcitve arcticles appearing (or pieces on

TV), and that is, after all, the goal. The following is important to note: this may not increase the number of items appearing

about corrections, although it most likely will by turning up

more areas in which articles could be written, but it would increase the quality as far as parole is concerned. The education of the public in that sense would be optimal, bearing in mind the

priorities corrections usually hold for the general populace.

One might therefore justifiably hope that when incidents occur (and they will), not only will they be reported more adeptly • - 203 - (even if sensationally) - because the local person will have supplied all the details, in addition to already having made the reporter more cognizant of the complexities of what he is

reporting - but the public at large will have a more accurate frame in which to place it. The only added expense to the Board or Service from such a program relates to the salary of the co-

ordinator and the print and other materials with which field representatives should be supplied.

V That a means of facilitating the absolutely requisite vertical and horizontal communications be developed. A model

as per the recent directive of the Chairman to the field re information the Minister should have for the House question period could easily be adapted for such purposes. s Discussion: The field at all times should feel free to contact the Chairman regarding consultation on any issue or policy explanation but the channels of communication could be directed through the staff co-ordinator, who will be briefing,

and being kept informed by, the Chairman appropriately. When

at all possible, explanation of policy or occurrances of interest or controversy should be available to the media on a local basis, to facilitate mutual credibility and responsibility at that level.

(Where possible, the local representative should attempt to get

select personnel from each medium - radio, press, TV - to become corrections specialists.) • - 204 -

Recommendations (continuation)(Year Two) VI That the ideas incorporated in the First Draft of the Inter-Institutional Communications Plan be undertaken in the second year, i.e., rap days, facilitated and organized by the local representatives.

Discussion: Since I have had the opportunity to read that report prepared by Mr. McGibbens, Media Consultant, I am taking the liberty of incorporating it here. My feelings are that it should be undertaken after the previously suggested groundwork has been completed to facilitate maximum field acceptance and optimal effectiveness. Its potential excellence in promoting external communication with other CJS components and the public should be incorporated in a comprehensive communications plan by increasing the credibility and exposure of field personnel and the visibility of the Chairman. At the moment, such an undertaking might not involve much expenditure on materials, but would certainly involve a considerable amount of time in organization, particularly at the field level, and might not, if imposed from above, find the acceptance which is required for such sessions to be successful in achieving more long range goals.

It would seem such sessions, however, would be most useful when the groundwork has been done in the field already, when field personnel feel more committed to a general communications program, and when there are ready made follow up existing procedures. - 205 - GENERAL DISCUSSION The aim of the framework as presented is to fit most conveniently into existing structures while maintaining clear cut communications goals. Such a program should not be in antithesis to progressive community corrections, the time and energy constraints if field personnel or the Chairman, and should meet the needs of the media, the Board and Service and its personnel. It could, by its nature, include in it, and facilitate communication between special interested groups at

the local and national level, community leaders, local and national elected representatives, etc. As a model, it lends itself to application to other components of the criminal justice system, and should at least facilitate communication between the Board

and those other components, both directly, and indirectly, via

the media. The largest difficulty, however, might well be in the direction of educating some other components (e.g., the Police), but it would be a mistake to move too quickly or undertake a plan of too much complexity at the outset. The primary goals, in the

initial stages, should be just to facilitate and develop effective communications within the Board and Service and between the Board and Service and media personnel.

Note: It is expected such a program would be constantly monitored, but that evaluation be undertaken after

one year based on specific criteria set down at the outset. • - 206 - Criteria for this kind of program would require discussion with the Chairman and field personnel as to the speed of implementation; they are therefore not outlined here.

FINAL RECOMMENDATIONS:

(1) That Complan Phase II be undertaken, as suggested in Conclusion to Part I of this study.

(2) That the information noted in Part II, A,(pp ln - of this study provide a base for the Chairman's activities, while continuing talks with the editorial boards of the press medium, in expanding to focus on individual reporters in the interim between now and any communications plan implementation, in the light of recent events in Canada. SOL.GEN CANADA L BB Bt.0 1111111 Ili 110 00000291 37

PN 4748 .C2 S7 1975 1 rib The press and the National .Parole Board : public opini 'on and correctional policy

•