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HV 8883.3 .C2 P4c 1985 c.2

September, 1985

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10 7 PEAT =I MARWICK

CORRECTIONAL SERVICE OF CANADA

STANDARDS FOR THE EDUCATION AND TRAINING PROGRAM

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STANDARDS FOR THE EDUCATION AND TRAINING PROGRAM

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September, 1985

TABLE OF CONTENTS

Page

EX.1 EXECUTIVE SUMMARY

1

11

,

I IF CORRECTIONAL SERVICE OF CANADA STANDARDS FOR THE

EDUCAiION AND TRAINING PROGRAM

1r IJ

I - INTRODUCTION 1.1

Approach 1.1 Development of Resourcing Standards 1.3 Structure of this Document 1.4

II - STANDARDS FOR CSC VERSUS CONTRACT TEACHERS 11.1

Background 11.1 Issues Relating to the Use of Contract Staff 11.3 Opinion of CSC and Contract Staff 11.8 Analysis 11.11 Recommendations 11.13

III - STANDARDS FOR STUDENT-TEACHER RATIOS 111.1

Background 111.1 External Practices 111.1 Opinion of CSC and Contract Staff 111.5 Analysis 111.8 Recommendations 111.11

IV - STANDARDS FOR SUPERVISOR-TEACHER RATIOS IV.1

Background IV.1 External Practices IV.2 Opinion of CSC and Contract Staff IV.3 Analysis IV.4 Recommendations IV.6

V - STANDARDS FOR CLERICAL SUPPORT V.1

Background V.1 External Practices V.2 Opinion of CSC and Contract Staff V.2 Analysis V.5 Recommendations V.6

CORRECTIONAL SERVICE OF CANADA STANDARDS FOR THE EDUCATION AND TRAINING PROGRAM

TABLE OF CONTENTS (Cont'd)

Page

VI - STANDARDS FOR TEACHING COSTS PER INMATE VI.1

Background External Opinion VI.2 Analysis VI3 Recommendations VI.5

VII - STANDARDS FOR ASSESSMENT AND COUNSELLING VII.1

Background VII.1 External Ôpinion VII.2 Opinion of CSC and Contract Staff VII.5 Analysis VII.8 Recommendations Vil 8

VIII - STANDARDS FOR EDUCATION AND TRAINING LIBRARIES . . . . . . . VIII.1

Background VIII]. • Document Review VIII.2

External Opinion VIII.5 Opinion of CSC and Contract Staff VIII.6 Recommendations VIII.8

IX - STANDARDS FOR PROFESSIONAL DEVELOPMENT AND ORIENTATION OF TEACHERS IX.].

Background IX.1 Literature Rèview IX.2 External Opinion IX.4 Opinion of CSC and Contract Staff IX.5 Analysis and Recommendations IX.7

APPENDICES

Appendix A - Documents Reviewed Appendix B - Experts Interviewed Appendix C - Personal Interviews Appendix D - Samples of Interview Questionnaires Appendix E - Mail-Out Questionnaires Appendix F - Detailed Breakdown of Teaching Costs

I.

.1,

EX.1

rffl 'EXECUTIVE SUMMARY

In February 1985, the Education and Training Division (E&T) of the Correctional

Service of Canada (CSC) retained Peat, Marwick and Partners to develop

standards that would serve as a management guide for the allocation of

resources to meet E&T program objectives. Standards were required for:

- the proportion of CSC to contract teachers

student-teacher ratios

- supervisor-teacher ratios

level of clerical support required for the E&T programs

- teaching costs per inmate

assessment and counselling of inmates

- E&T library resources, funding, and operations

professional development and orientation of teachers.

The study was conducted between February and June and consisted of a document

and literature review, telephone interviews with experts in adult education,

education in correctional institutions, provincial ministries and municipal

boards of education, and provincial correctional institutions, personal

interviews with CSC and contract staff at Headquarters (NHQ), the Regions

(RHQ) and selected institutions, and a mail-out survey of staff at institutions

where personal interviews were not conducted.

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EX.2

r . 4.

rffl Recommended standards for assessMent and counselling of inmates, E&T library

resources, funding and operations; and professional development and orientation

of teachers are based on external practices, professional opinion and standards

recommended by the Canadian Association for the Prevention of Crime and the

American Correctional Association.

Recommended standards for student-teacher ratios, supervisor-teacher ratios and

the level of clerical support required for the E&T programs are based on

internal CSC practices and requirements. It was felt that security

requirements, the low level of motivation of inmate students, facility

constraints, the length of the teaching day and the differing academic levels

of students in the same classroom made it particularly difficult to apply

external standards or practices in these three areas.

The two sets of standards which posed the greatest difficulties were éSC to

contract teacher ratios and teaching costs per inmate. Recommendations in

these two areas are based solely on internally generated CSC data and

opinions.

Some of the arguments made for and against the use of contract teaching staff

and CSC teaching staff were not supported by empirical evidence. For example,

the causes of staff turnover and burn-out rates of CSC versus contract teachers

could not be supported empirically or ascertained by the study team because of

scope, time and cost limitations.

The average and standard teaching costs by program element (i.e., Basic

Education, Academic, Vocational, etc.) are extremely rough estimates:

• Costs are based on a sample of contracts, primarily those over $50,000.

• SERADEP and Pacific Region detailed contract information was not available at Headquarters and therefore estimates were made.

111 1

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• Comparisons of CSC and- contract teacher costs do not cover exactly the same time period; CSC data are for March 31, 1985 and contract data are for December 30, 1984.

We have recommended standards in these two areas based on the best data

available. However, we feel these standards are open to challenge because of data inconsistencies, incompleteness and/or inaccuracies.

Wherever possible, we have provided information on how the standards were

developed. Therefore, if more accurate data are obtained, adjustments to the standards can be made »readily by CSC staff. Eor example, we have recommended that at a minimum, 30% of teaching staff should be indeterminate employees of CSC. If our calculations regarding the number of program elements offered at

each institution are inaccurate, this pereentage figure can be adjusted.

A summary of major recommendations by subject area follows:

CSC-Contract Teacher Ratios (Chapter II)

I .

' • At a minimum, we recommend one CSC teacher be employed for

each program element where there are on average 5 or more - . inmates enrolled in the program at the institution.

It • In those institutions where there are less than 5 inmates enrolled in a given program element, there should be one CSC employed teacher to provide overall program Illi continuity.

• In general, credit degree and diploma courses should continue to be taught by contract staff.

;- • Contracts for on-going academic and vocational programs

I

; (i.e., not special interest courses) should be negotiated , whith established boards of education, community colleges,

CEGEP t s, or universities, so that teachers, in most

Ilfr instances can be selected from the regular programs of l these institutions and can return to them.

EX .4

• Contracts should inclu4e provisions ensuring that the teachers placed with CSÇ are part of the regular, full-time staff of the contracting agency; the teachers will be assigned to CSC for a period of no less than two years conditional on satisfactory performance and no more than five years.

• The rate of progress from the current resourcing ratio (51% CSC staff) which should be considered a maximum to the

• minimum resourcing ratio (30% CSC staff) should be determined at the regional and institutional level and should take into consideration specific institutional constraints and requirements.

Student-Teacher Ratios (Chapter III)

• Student-teacher ratios should be established by the Assistant Warden-Education and Training at each institution. The ratios should be established with consideration for the institution's security level, the physical facilities available to the E&T program, the inmate requirements for specific programs and individualized attention, and the administrative • responsibilities of the teachers.

• The following standards shoUld be used as guidelines by Assistant Wardens:

basic literacy courses - 1 teacher for 6 students

elementary level courses - 1 teacher for 8 .students

secondary level academic students

courses - 1 teacher for 10

vocational courses - 1 teacher for 10 students

community college, CEGEP and university courses - determined by subject matter, teaching methodology, and number of students taking a specific course.

Supervisor-Teacher Ratios (Chapter IV)

• The overall existing ratio of supervisors to teachers (1:6.65) is appropriate provided that supervisors are given additional administrative and counselling support.

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FE • The ratios at individu4 institutions should be

re-examined. The maximum- acceptable ratio at any given institution should - not exceed 1:10.

• There should be a minimum of one supervisor, in addition to the Assistant Warden E&T in an institution where there are one hundred or more inmates enrolled in the program.

Clerical Support Standards (Chapter V)

• The following formula should be used in determining the clerical support required for the Education and Training Program within an institution:

EX .5

? Program Support

up to 50 students - 51 - 100 students - 101 - 200 students - 201 - 300 students - 300 + students

4 hours/week 7.5 hours/week 10 hours/week 15 hours/week 20 hours/week

Teacher Support

3 hours per week per teacher.

Teaching Cost Per Inmate (Chapter VI)

• We recommend that the standard cost per inmate per year by region and program element be developed by dividing the total teaching costs of each region by the recommended student-teacher ratio for each program element. These costs should be adjusted annually to reflect increases in collective agreements.

• We recommend that each region determine the actual cost of university and college programs by student, and that the national average of these costs be used as a standard.

Education Assessment and Counselling (Chapter VII)

• Assessment and counselling for education and training should be provided by a professional counsellor.

EX.6

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rffl • At a minimum, there should be a counsellor available at

each institution for eighteen to twenty hours per week and full—time at institutions where there are more than twenty inmates enrolled in the program.

Education and Training Libraries (Chapter VIII) 11

• • The funding for the print collection of the library should be based on the total inmate population of the institute. An appropriate guide would be the level of funding provided in a secondary school library. (Currently, this amount is $15 per student per year).

• The space provided for libraries should be .5 square meters per inmate. This standard would apply only to new or newly renovated libraries.

• Each library should strive for a basic print collection of twenty volumes per inmate.

Professional Development and Orientation (Chapter IX)

• There should be a minimum of seven days per year allocated for professional development for CSC employed teachers. Two of these days should be committed to regional workshops or conferences. The other five days should be allocated to special courses, conferences and workshops relevant to teaching in the fields of adult education or education in correctional institutions.

• Any requirements for training which may be identified by the supervisor during the annual performance appraisal should be in addition to the seven professional development days. Training to meet these performance related issues should not exceed five days.

• CSC and contract educational staff should be given the same orientation program provided to all CSC staff. An additional day should be added to the existing program to address specific issues related to teaching in an institutional environment.

vi ! e 1. 1

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11: IL

INTRODUCTION

In February 1985, the Education and Training Division (E&T) of the Correctional

Service of Canada (CSC) retained Peat, Marwick and Partners to develop

standards that would serve as a management guide for the allocation of

resources to meet E&T program objectives. Standards were required for:

the proportion of CSC to contract teachers

- student-teacher ratios

- supervisor-teacher ratios

- level of clerical support required for the E&T programs

- teaching costs per inmate

- assessment and counselling of inmates

- E&T library resources, funding, and operations

- professional development and orientation of teachers.

This introductory chapter contains a summary of the approach taken in develop-

ing the standards, a discussion of the constraints under which the standards

were developed, and the resultant affect on recommended standards, and an

outline of the structure of the remainder of the report.

APPROACH

The study was conducted in eight basic steps:

• Step 1 - Involved the review of reports, studies, and other documents which have been prepared on behalf of the E&T division. These documents served as a source for back-ground information and also provided suggestions for defining standards.

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I .

• Step 2 - Involved the collection and review of internal files and reports tht identified the current policies of the E&T program, and provided program statistics.

The documents, reports, files,-and policies reviewed in Steps 1 and 2 are

listed in Appendix A, attached.

• Step 3 - Involved telephone interviews with experts in adult education and education in correctional institutions and with individuals from provincial ministries and municipal boards of education and provincial correctional institutions. The individuals interviewed are listed in Appendix B, attached.

• Step 4 - Involved personal interviews with CSC and contract staff at NHQ, each RHQ, and selected institutions within each region to ascertain problems and issues associated with current program delivery and to obtain the opinions of those individuals who will be directly affected by the recommended standards. The individuals interviewed are listed in Appendix C, attached. Appendix D, also attached, contains the three questionnaires that were used for the interviews.

• Step 5 - Involved mailing-out questionnaires to CSC and contract staff at the institutions which have an E&T program but where personal interviews were not conducted. 133 questionnaires were distributed and 70 completed questionnaires were returned. Copies of the mail-out questionnaires are attached as Appendix E.

• Step 6 - Involved the consolidation of findings and an analysis of the requirements for standards.

• Step 7 - Involved the development of the draft standards and a review with CSC-NHQ staff.

• Step 8 - Involved the finalization of the standards and preparation of this document.

The information collection steps (1 through 5) were successful primarily because of the full co-operation and interest of many people in the Regional

Headquarters and at the institutions.

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1.3

Recommended standards for asseselent and counselling of inmates, E&T library

resources, funding and operationsi'and professional development and orientation

of teachers are based on external practices, professional opinion and standards

recommended by the Canadian Association for the Prevention of Crime and .the

American Correctional Association.

Recommended standards for student-teacher ratios, supervisor-teacher ratios and

the level of clerical support required for the E&T programs are based on

internal CSC practices and requirements. It was felt that security

requirements, the low level of motivation of inmate students, facility

constraints, the length of the teaching day and the differing academic levels

of students in the same classroom made it particularly difficult to apply

external standards or practices in these three areas.

The two sets of standards which posed the greatest difficulties were -CSC to

contract teacher ratios and 'teaching costs per inmate. Recommendations in

these two areas are based solely on internally generated CSC data and

opinions.

Some of the arguments made for and against the use of contract teaching staff

and CSC teaching staff were not supported by empirical evidence. For example,

the causes of staff turnover and burn-out rates of CSC versus contract teachers

could not be supported empirically or ascertained by the study team because of

scope, time and cost limitations.

The average and standard teaching costs by program element (i.e., Basic

Education, Academic, Vocational, etc.) are extremely rough estimates:

• Costs are based on a sample of contracts, primarily those over $50,000.

• SERADEP and Pacific Region detailed contract information was not available at Headquarters and therefore estimates were made.

Ii

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• Comparisons of CSC and contract teacher costs do not cover exactly the saine time period; CSC data are for March 31,

1985 and contract data are for December 30, 1984.

We have recommended standards in these two areas based on the best data

available. However, we feel these standards are open to challenge because of

data inconsistencies, incompleteness and/or tnaccuracies.

Wherever possible, we have provided information on how the standards were

developed. Therefore, if more accurate data are obtained, adjustments to the

standards can be made readily by CSC staff. For example, we have recommended

that at a minimum, 307. of teaching staff should be indeterminate employees of

CSC. If our calculations regarding the number of program elements offered at

each institution are inaccurate, this percentage figure can be adjusted.

STRUCTURE OF THIS DOCUMENT

Each of the next eight chapters summarizes the pertinent information related to

the eight required standards. In each case, we provide background information;

summarize CSC policies which may affect the standard; describe the current

institutional practices; outline our findings from the document and file

reviews; summarize the opinions expressed by individuals interviewed; provide

an analysis of the data; and present our recommendation for the standard.

IIIIIII Ile OM MI 1111111 11111111 Mg 11111 Wit ell 11111111 Ole 1111111

NUMBERS OF CSC AND CONTRACT TEACHERS BY REGION EXHIBIT II-1

(Percent of total by region is shown in parenthesis)

ACADEMIC VOCATIONAL ALL

Contract' CSC Total Contract CSC Total Contract CSC Total

Atlantic 16 (84Z) 3 (16%) 19 (100%) 13 (68%) 7 (35%) 20 (100%) 29 (74 7. ) 10 (26%) 39 (100%)

Quebec 37 (67%) 18'(33%) 55 (100%) 1 (2%) . 53 (98%) 54 (100%) 38 (35%) . 71 (65%) 109 (100%)

Ontario 31 (77Z) 9 (23%) 40 (100Z) . 2 (6%) 32 (94Z) 34 (100%) 33 (457) 41 (55Z) 74 (100%)

Praries 30 (91%) 3 (9%) 33 (100%) 5 (26Z) 14 (74%) 19 (100%) 35 (67 7. ) 17 (33 7. ) 52 (100%)

Pacific . 16 (66Z) . 8 (34%) 24 (100%) 2 (15Z) 11 (85Z) 13 (100Z) 18 (49Z) 19 (51%) 37 (100%)

National Overall ' 130 (76Z) 41 (24Z) 171 (100%) 23 (16Z) 117 (84%) 140 (100%) 153 (49 7. ) 158 (51 7. ) 311 (100 7. )

1 Source of number of contract teachers: Briefing notes for Director General, Education, Training, and Employment prepared March 21, 1985.

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11.1

II - STANDARDS FOR CSC VERSUS CONTRACT TEACHERS

In this chapter, we describe the current policy and practices related ta the

use of permanent CSC teachers and contract teachers; discuss the advantages and•

disadvantages of each as indicated by external'experts, teachers and management

within - the CSC Education and Training program; and, recommend a standard for

CSC versus contract teachers.

BACKGROUND

CSC has a policy of moving toward contractual delivery of academic and

vocational programs and has implemented this policy by staffing vacated CSC

teaching positions with teachers provided under contract. This policy has been

in effect since the early 1970's, and, over time, CSC academic and voCational

teaching staff have gradually been replaced by contract staff obtained from

community colleges, ministries of education, universities and, in Quebec, from

a private agency. At the present time, CSC employs 158 teachers and has 153

teachers under contract. The number of CSC employed teachers and contract

teachers by region are shown in Exhibit II-1, opposite. Teachers employed by

CSC are included in the E&T person-year allocation; contracts for teachers are

incorporated into the annual operations and maintenance budget.

The decision to use contract staff rather than CSC employed staff for academic

programs was apparently based on the assumption that this method of employment

would result in improvements to the quality of the educational programs.

Furthermore, program flexibility would be enhanced by the use of contract staff

who can be recruited and replaced more easily. Most importantly, staff

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11.2

contracted through the ministries of education would ensure that the inmates

would receive academic and vocational training which is consistent with

provincial standards of eduCation.

In the Report to the Solicitor General of Canada concerning The Educational

Program of The Canadian Corrections System (February 1979), it was recommended

that "The Service should continue to employ both service personnel and contract

personnel in the conduct of the educational program". 1 There was, however, a

dissenting view which stated that:

"all further appointments of teaching personnel should be under specific contractual arrangements. The policy of contracting applies to teachers in both academic and vocational classrooms. Supervisory and administrative personnel, such as school principals and assis .tant-directors, should be full-time CSC employees". 2

This dissenting view supported the existing CSC policy, and the practice of

replacing CSC teachers who terminated with contract teachers continued.

There continued, however, to be considerable controversy within CSC about the

merits associated with employing educational personnel directly and/or

contracting with various educational agencies for the services of educational

personnel. In 1981 July, a CSC Subcommittee on Methods of Delivery recommended

that:

"80% of the elementary, secondary, and secondary-equivalency teaching staff (academic and vocational programs combined) in each region be permanent CSC employees, and 20% of the teaching staff in these programs will continue to be obtained on a contract basis". 3

1 Ontario Institute for Studies in Education, Report to the Solicitor General of Canada concerning The Educational Program of the Canadian Corrections System, Phase 2, February 1 978-February 1979, P. 160.

2 Ibid, p. 187.

3 "Report to Project Advisory.Group, Education and Training from Subcommittee on Methods of Delivery", D.K. Griffin (Chairman) 1981, p.3.

ISSUES

• Use of contract teachers facilitates accreditation

• Contract ieachers can take advantage of resources and services provided by the contracting agency

• There is greater program flexibility with contract staff

• Contract teachers can be hired, replaced and/or terminated more quickly

• CSC teachers provide security backup and perform custodial duties

• Contract teachers work shorter days than CSC teachers TI

• The costs of contract teachers are greater than CSC teachers

. Cost differences are minimal

EXHIBIT II-2

1 CONTRACT VERSUS CSC TEACHERS

COMMENTS

• provincial accreditation has, and • will continue to be given to institutions using CSC teachers

• Contracts for special services can be arranged with educational agencies, boards, etc.

• Applies only to special interest courses

• True, but lack of job security on part of contract staff also increases turnover

• True, but these duties may have a negative impact on student-teacher relationships

• Although contracts stipulate shorter working days, there does not appear to be a significant difference in actual teaching schedules

• CSC teachers constitute a pool of experienced staff from which appointments to supervisory and managerial positions can be made

• There may be administrative duplication inherent in contracts

• Special negotiations with the Public Service Commission are required to allow contract staff to apply for all vacant supervisory positions

. No empirical evidence

It was further recommended "that contract teaching staff be hired on an

individual basis, rather then through group contracts with educational

agencies".1 These recommendations . were not implemented and the controversy

continued.

In the Evaluation Framework for the Educatkonal and Training Program compiled

by Peat Marwick in September 1983, it was recommended that some of the reasons

for and against contracting for services required extensive research before

they could be validated.

ISSUES RELATING TO THE USE OF CONTRACT STAFF

Our literature and document review, interviews and the responses to our

mail-out questionnaire raised a number of issues related to the use of contract

staff. For each of these issues, a number of viewpoints have been-expressed,

many of which cannot be substantiated empirically. These issues are summarized

in Exhibit II-2, opposite, and are discussed briefly below.

Program Design, Delivery and Accreditation

The Commissioner's Directive 500-2-01 specifies parameters for the vocational

and academic programs, including a requirement that the programs meet

provincial certification specifications, and incorporate the resources

available to the outside community. It is felt that teachers provided under -

contracts with ministries of education, community colleges, CEGEP's or

universities will be more effective in meeting these requirements. It is

argued that contract teachers will use the programs developed by their

respective educational agencies which are consistent with the provincial

standards. Further, these agencies may provide the contract teachers with

resources such as special consultants, audio/visual materials and psychological

services.

11.3

1 Ibid, p.4.

11.4

It is evident, however, that the_requirements in CD 500-2-01 can also be met

using CSC employed staff. Provincial accreditation can be given to an

education and training program at a specific institution or to all institutions

in a region. Special resources such as educational consultants, etc. can also

be made available to CSC employed teachers through arrangements with

educational agencies.

Program Flexibility

It is felt that the use of contract staff facilitates E&T program flexibility.

• Programs using contract teachers can be introduced to meet specific inmate

requirements and can be terminated if needs change. The majority of programs

offered by CSC, however are on-going in nature and hence, the need for complete

program flexibility, through the full use of contract teachers must be

questioned. It is agreed that for special interest courses, of a short-term

nature, contract teachers are preferred. However, there does not seem to be

any increased flexibility between contract and CSC employed teachers for the

regular, on-going academic or vocational programs.

The flexibility of employing contract teachers may, in some cases, be

detrimental to the institutions. Contract teachers who are on short-term

assignments, or who do not know if their contract will be renewed often seek

more secure positions outside CSC. This results in increased teacher turnover

which may have a negative impact on the E&T program.

Recruitment/Replacement and Termination of Teachers

CSC retains the right to request that an educational agency replace a contract

teacher who is unable to perform adequately within the institutional

environment. This is considered to be a major advantage of the use of contract

teachers. This advantage, however, is not always apparent.

Our interviews indicate that the teachers sent by educational agencies are not

always qualified and/or do not always have the teaching experience stipulated

in the contract. Further, when replacements are requested, they are often no

better qualified.

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11.5

CSC teachers must meet education and experience requirements. Those who are

considered to be ineffective cari be dealt with through careful monitoring

during the probationary period and,through the performance appraisal mechanism.

If this is inadequate, CSC's constructive discipline process provides. the

Assistant Warden and E&T Supervisors with the opportunity to correct the

situation.

Changing either contract or permanent staff, however, results in disruptions to

the program and to the inmates.

Security

CSC teachers are considered to be "peace officers". As such, they are able to

perform custodial duties such as frisking inmates and imposing disciplinary

penalties. During emergencies, CSC teachers are assigned other duties within

the institution. Contract teachers, on the other hand, are not trained in the

custodial aspects of dealing with inmates and are normally required to leave

the institution should there be an emergency.

There is an advantage from a security perspective to using CSC-employed

teachers. From an education and training perspective, however, it is

preferable that teachers not perform security duties as these duties can have a

negative impact on student-teacher relationships. Contract teachers, who do

not perform security duties often are able to establish better one-to-one

relationships with the inmates chus enhancing the education process.

Hours of Work

Contract teachers are governed by the collective agreements with their

respective educational agencies. These collective agreements often provide for

a ten month working year, and shorter daily teaching hours (generally 25-30

hours per week) than are included in the collective agreement for the CSC

teachers.

EXHIBIT II-3

AVERAGE ANNUAL COST OF CSC AND CONTRACT TEACHERS

• :1984-85 Contract Teachers Contract Teachers

CSC Average 'CSC Average Average Average Region Annual Costl Daily Cost Annual Cost 2 Daily Cost

Atlantic $39,024 $180 ' $36,160 $156

Quebec 39,716 183 36,382 — 46,7763 ' 155-200

Ontario 41,055 189 42,455 170

Prairies 37,659 174 47,080 201

Pacific 48,493 223 33,8824 142

1 Details of average annual cost of CSC teachers are provided in Appendix F.

2 Contract teachers average annual cost were based on a representative sample of contracts, and excludes contracts for university and community college courses. Refer to Exhibit VI-2 and Appendix F for details.

3 Salary and benefit costs represent 70-90 4 of total costs of contracts. As the actual salary and benefit figures were not provided in the SERADEP contract, a range was used.

4. The only information available about the Fraser Valley contract was the total value of $640,000. All other figures are approximations. See Appendix F for details.

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11.6

As the schools in the institutions must operate for 35 hours per week (30 hours

in maximum institutions) year round, the reduced working requirements of

contract teachers are perceived to be a problem.

It was noted during our visits to the institutions that this inconsistency in

working hours was often referenced as an issue, yet we observed that the

contract teachers appeared to be working the same schedule as the CSC-employed

teachers. In other words there is no apparent disruption to classrooms as a

result of the terms and conditions of teaching contracts related to hours of

work. There is however the question of costs associated with hours of work.

This matter is discussed below.

Costs

It has been argued that the cost to CSC of contract teachers exceeds the costs

of permanent teaching staff, partially because contract teachers work a . 10

month year and supply teachers are required as replacements for the remaining

two months. The number of days worked by an individual contract teacher

however, does not have any impact on costs. Contracts with educational

agencies, provide teaching services for a specified number of days, including

supply teachers to cover vacation and sick leave, at a specified cost. The

only consideration therefore, is the cost per day of a CSC teacher versus a

contract teacher.

To arrive at the daily cost figures for CSC teachers, we divided the average

annual salary of the teacher in a region by 217 days, which is the average

number of days worked by a CSC teacher (260 days less 20 vacation days, 11

statutory holidays, 7 sick leave days and 5 special leave days).

It should be noted that, supply teachers must be arranged to cover vacation and

sick leave absences of both contract and CSC teachers. We were not able to

ascertain the cost of supply teachers hired . to cover CSC teachers. Therefore,

the average daily cost of a CSC teacher is . slightly understated in Exhibit

11-3, opposite.

11.7

As the Exhibit indicates., there Is a minimal difference in the actual cost of a CSC teacher as compared to a contract teacher, and in fact contract teachers

may cost CSC less than permanent teachers.

Staffing Senior Positions

CSC teachers constitute a pool of experienced staff from which appointments to

supervisory and managerial positions can be made. Contract teachers cannot

apply for Supervisory or Assistant Warden positions under current Public

Service Commission staffing regulations related to closed competitions.

However, CSC could, in the best interests of the institutions negotiate special

arrangements for staffing educational management positions which would allow

experienced contract staff to apply for all vacant supervisory positions (i.e.,

Section 10 of the Act allows for open competitions under special

circumstances).

Teacher Burn-Out

Burn-out, that is physical, psychological and/or emotional exhaustion is caused

by working within a stressful environment. It is contended that teachers

working within an institution may suffer from burn-out more readily than

teachers within a regular school. There are also opposing viewpoints. Two

contract teachers interviewed felt that since disciplinary problems are handled

by security staff, teaching at an institution is less stressful than at a

regular school. .

Both arguments however, are somewhat contentious as there has not been any

study conducted which measures the level of stress on teachers in an institu-

tion as opposed to a regular school.

Administrative Duplication

The contracts with educational agencies often include the costs of a program

co-ordinator and other administrative staff, and as such, may duplicate the

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11.8

services provided within the CSC_E&T programs. On the other hand, it is

contended that CSC's administrative costs would increase if only CSC teachers

were utilized. CSC would require additional staff to recruit and supervise the

teachers, establish program and pedaegical requirements, test students and

mark examinations, prepare and deliver developmental programs, etc.

OPINION OF CSC AND CONTRACT STAFF

The E&T staff at the regional headquarters and selected institutions provided

their comments and perceptions on the use of contract versus CSC employed

teachers during personal interviews and through completinithe mail-out

questionnaire. Following is a synopsis of their comments.

•Atlantic Region

As indicated in Exhibit II-1, 74% of the teachers in the Atlantic region are

contract staff. The individuals interviewed in the Atlantic region indicated

their preference to continue using a high percentage of contract staff for

both academic and vocational programs. They felt that using contract staff

provides greater program flexibility, avoids teacher burn-out and establishes a

better learning environment for the inmates.

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They also indicated that there are some disadvantages to using contract staff

in that there is less continuity for programs and for inmates as there is more

staff turnover. Also, there is difficulty in getting competent relief staff to

replace contract teachers during vacations and sick leave (This problem,

however, exists equally for CSC employed teachers).

It was recommended by staff in the Atlantic Region that an equal combination of

contract teachers and CSC employed teachers would be appropriate. If contract

Ii teachers are to be used more extensively, there should still be a minimum of

20% CSC-employed teachers in order to maintain program stability and

continuity.

11.9

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Quebec Region

Only thirty-five percent of the teachers in the Quebec region are on contract.

For the most part, Quebec interviews indicate that they see very few advantages

to using contract staff and these advantages are strongly outweighed by the

disadvantages. In their opinion, the major disadvantage of using contract

teachers is the lack of continuity, resulting from high turnover of contract

teachers.

The contracting agency in the Quebec region for the elementary and secondary

level programs, is a company which has been set up solely to provide contract

staff to CSC. This organization, called SERADEP, is not affiliated with any

ministry of education, CEGEP, university or other educational agency. The

contract teachers employed through SERADEP use the educational curriculae of

the government of Quebec which is purchased by CSC through a separate.contract

with the Ministry of Education.

SERADEP hires teachers to work at the various institutions and pays a flat rate

regardless of the individual's education or experience. The teachers do not

receive any benefits or paid leave. As a result, there is a very high turnover

as teachers accept positions with SERADEP only until they are able to find more

secure employment within a traditional educational environment. Because the

turnover is so high, less emphasis is placed on integrating the contract

teachers into the CSC environment. The orientation program is superficial and

professional development is considered to be wasted on the teachers who will

likely be.terminating shortly. CSC staff in the Quebec region feel that

contract teachers tend to be less committed to the needs of the inmates because

both the inmates and the teachers know that they will not be working together

for long. An example of the problem was given by the Centre Fédéral de

Formation where twenty-six teachers were placed in three contract positions

within two years.

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There is a strong preference on the part of the individuals interviewed in the

Quebec region for CSC to employ . 'their own teachers for elementary, secondary, academic and vocational programs and use contract teachers only for special

courses and for CEGEP and university level courses.

Ontario Region

II [ The Ontario region currently has 77% of its academic programs and 6% of its

vocational programs delivered by contract staff. The key concern of the

Ill

Assistant Wardens E&T with respect to the use of contract staff is that they

are held accountable for the programs at the institutions, yet do not have as

I much control over the staff assigned as they would like. Contract staff cannot

le be screened, direction to staff must be given through the contracting agency,

and although unsatisfactory teaching staff may be replaced, the process is

time-consuming and cumbersome. . •

The advantage of using contract staff provided by a local board of education

ensures that the same education standards which apply in the "street schools"

will apply to the inmates. The contract staff are able to access special

consultants to assist with problem inmates. '

11 ' The individuals interviewed in the Ontario region identified a strong

preference for contract teachers to deliver academic programs and for CSC-

employed teachers to deliver vocational programs. There is a need for a small

number of CSC-employed academic teachers within each institution to provide

It backup to the Supervisor E&T and to ensure continuity of programs. Otherwise,

contract staff could be used. However, vocational teachers should be employees

of CSC as they must maintain security within the shops.

Prairie Region

The Prairie Region delivers 91 7. of its academic and 26% of its vocational programs with contract teachers. Contract teachers provide program flexibility

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in that courses can be eliminated if there is no demand for them, without

concern about redeployment of teachers. Contract teachers also bring a fresh

perspective and new approaches to the program. However, because contract

teachers do not have the same level of job security within the institution

there is a higher level of turnover which results in lack of program continuity

and commitment to the education process.

The Prairie region have confirmed their commitment to continue providing

education services by contract.

Pacific Region

The Pacific region also uses primarily contract teachers (66 7.) to deliver the

academic program and CSC employed teachers (85 7.) to deliver the vocational

courses. The same advantages and disadvantages of contract teachers identified

in other regions were repeated by interviewees in the Pacific region. The

preference here is to have an equal mix of contract and CSC employed teachers.

ANALYSIS

The primary focus in developing a resourcing standard for contract teachers

versus CSC teachers must be the cdnsideration for the overall E&T program

objectives. After an in-depth review of the opinions and perspectives of the

Assistant Wardens, Supervisors, CSC-employed teachers, contract teachers, E&T

management, and professionals in the fields of adult education and education in

institutions, there is still no clear indication that the use of contract

teachers or CSC-employed teachers is more effective in meeting the program

objectives. There appears to be an equal number of advantages and disadvan-

tages to both CSC employed teachers and contract teachers. Similarly, the

overall program objectives can be met using either method of program delivery

for both the academic and the vocational programs. There does appear to be a

minimum requirement for at least one CSC-employed teacher in the academic and

vocational program in each institution to provide backup to the E&T Supervisor

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and to ensure some continuity of:program coverage. Above this minimum level,

the method of program delivery should be determined at a regional level and be

based on specific institutional priorities and needs.

It is our observation that some of the disadvantages associated with the use of

contract teachers is a result of the contracting process. In particular, the

contract with SERADEP in Quebec should be reviewed. This contract is not with

an established educational agency, but with an employment agency for teachers.

The teachers obtained through the SERADEP contract are not always experienced

and do not have the security and stability which are associated with long-te=

contracts. This may result in high teacher turnover.

Contract teachers expressed concern about the vulnerability of not knowing if

they were going to have their contracts renewed and hence sought employment .

elsewhere. It was pointed out that teachers required a period of at ieast six

months to become familiar with the institutional environment and to establish a

rapport with the inmates to become effective. Rapid turnover of contract

teachers; therefore, results in additional costs to CSC in terms of additional

orientation costs, and lower program effectiveness.

These problems can be reduced if the contracts negotiated with the boards of

education, community colleges, CEGEP's and universities for the regular

on-going academic and vocational programs include specific requirements. The

contract teachers placed within CSC should at least:

- be part of the regular staff of an educational institution (school board, college, etc.)

- have teaching experience

- be rotated back into the regular school teaching stream after a minimum of two years and a maximum of five years, and be replaced then by other rotational staff.

In

11.13

This type of a contract provides CSC with experienced staff, a certain level of program continuity, and an infusida of new ideas and approaches. It also

provides contract teaching staff with : the job security they currently lack.

We question the requirement for teachers, either CSC-employed or contract, to

undertake security duties such as frisking indates in the normal day-to-day

routine. This type of activity may jeopardize the relationship between inmates

and teachers and can only diminish the effectiveness of the teachers. Such

activities as taking attendance and maintaining normal class room discipline

are considered to be part of the regàlar functions of.a teacher and these

requirements should be included in the contracts.

RECOMMENDATIONS

Our recommendations for a resourcing standard for CSC teachers versus- contract

teachers are based on the following assumptions:

1. CSC teachers are required as back-up to supervisory personnel.

2. CSC teachers are required for program continuity.

3. To meet these two requirements, a minimum of 30% of teachers should be employed by CSC on an indeterminate basis.

4. Before minimum resourcing levels can be put into effect, contracts with educational agencies must be negotiated to provide CSC with a level of confidence regarding the experience and commitment of contract teaching staff.

5. Current person-year allocations provide a maximum resourc-

ing constraint. (Currently, CSC-employed teachers

constitute 51% of all teaching staff.)

6. Individual institutions may have specific requirements

and/or constraints which should be taken into consideration

when determining resourcing standards.

au Is au age rue um ims lag MIR MI MI III MO IMO UM MI 1111111 111111111

EXHIBIT 11-4

CURRENT REQUIREMENTS FOR CSC-EMPLOYED TEACHERS (1)

( . Basic Recommended

Program Literacy Prerequisite Academic Other No. of CSC

Element Training Life Skills Courses Vocational Vocational Teachers - (

CSC CSC CSC CSC CSC CSC

Inmates Teachers Inmates Teachers Inmates Teachers Inmates Teachers Inmates Teachers Inmates Teachers Institution Enrolled Required Enrolled Required Enrolled Required Enrolled Required Enrolled Required Enrolled Required

Springhill 0 0 . 0 0 123 1 3 0 46 1 172 2 Dorchester 4 0 . 11 1 25 1 47 1 0 0 87 3 . Westmorland 2 0 10 1 21 1 2 0 5 1 40 3 Total

Atlantic 6 0 21 2 169 3 52 1 51 2 299 8

Laval 14 1 0 0 0 0 52 1 3 0 69 2 Fed. Training 10 '. 1 12 1 0 0 175 1 124 1 321 4 Leclerc 17. 1 ' 0 0 0 0 93 1 3 0 113 2 Archambault -8 -. 1 8 1 0 0 108 1 11 1 135 4 Cowansville 19 1 0 0 0 0 111 1 32 1 162 3 La Macaza 16 1 0 0 0 0 50 1 0 0 66 2 Total Quebec 84 6 20 2 0 0 598 6 173 3 866 17

Kingston 16 1 0 0 8 1 33 1 7 1 64 4 Millhaven 8 1 0 0 17 1 81 1 30 1 136 4 P for Women 7 1 4 0 0 0 36 1 9 1 56 3 Collins Bay 13 1 7 1 50 1 86 1 55 1 211 5 Joyceville 7 1 8 1 16 1 24 1 50 1 105 5 Warkeworth 10 1 6 1 15 1 101 1 20 1 152 5 Frontenac 2 0 4 0 2 0 4 0 . 0 0 12 1(2 ) Total Ontario 63 6 29 3 108 5 365 6 171 6 736 27

ratilbll 11-4 (contin)

CURRENT REQUIREMENTS FOR CSC-EMPLOYED TEACHERS ( 1 )

. . Basic Recommended

Program Literacy Prerequisite Academic Other No. of CSC Element Training Life Skills Courses Vocational .Vocational Teachers

CSC CSC CSC CSC CSC CSC Inmates Teachers Inmates Teachers Inmates Teachers Inmates Teachers Inmates Teachers Inmates Teachers

Institution Enrolled Required Enrolled Required Enrolled Required Enrolled Required Enrolled Required Enrolled Required ,

RPC-Praries 2 0 0 0 2 0 4 0 0 0 8 1(2 ) Stony Mtn. 16 1 0 0 25 1 48 1 1 0 90 3 Rockwood 0 0 0 0 0 0 0 0 29 1 29 1 Saskatchewan 15 1 0 0 26 1 20 1 55 1 116 4 . Sask. Shu 0 0 . 0 0 0 0 4 0 0 0 4 1(2) Drumheller 5 1 13 1 14 1 32 1 49 1 113 5 Altadore 0 . 0 15 1 0 0 0 0 0 0 15 1 Portal House 0 . 0 14 1 0 0 0 0 0 0 14 1 Grierson 2 '0 7 1 0 0 0 0 6 1 15 2 Bowden 1 '. 0 . 6 1 11 1 29 1 0 0 47 3 Edmonton 2 . 0 11 1 4 1 20 1 1 0 38 3 CSC Winnipeg 0 CF 80 1 0 0 0 0 0 0 80 1 Total Praries 43 3 146 7 82 5 157 5 141 4 569 26

William Head 2 0 6 1 4 0 16 1 27 1 55 3 Matsqui 8 1 0 0 41 1 16 1 35 1 100 4 RPC Pacific 1 0 0 0 0 0 16 1 1 0 18 1 Mountain 2 0 1 0 0 0 11 1 0 0 14 1 Kent 8 1 3 0 0 0 0 0 0 0 11 1 Elbow Lake 0 0 7 1 0 0 0 0 4 0 11 1 Ferndale 0 0 6 1 0 0 0 0 0 0 6 1 Mission 15 1 7 1 0 0 3 0 10 1 35 3 »Total Pacific 36 3 30 4 45 1 62 4 77 3 250 15

National ! Total 232 18 246 18 404 14 1225 22 613 18 2720 93

_ ; 1 ) Source for Full-Time Equivalent Inmate Enrollment provided by E&T Quarterly

Statistics ending 1984 December excluding university and college enrollment.

: 2 ) Number of inmates enrolled in each program element is less then 5, however 'me CSC-emploved teacher should be available to provide continuity and to

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Our recommendations for resourcing standards for CSC teachers versus contract teachers follow:

• At a minimum, we recommend one CSC teacher be employed for each program element (Basic Literacy, Life Skills, Prerequisite, etc.) where there are on average 5 or more inmates enrolled in the program at the institution. Based on current enrollment, the minimum number of CSC teachers by institution and program element is shown in Exhibit 11-4, opposite.

• In those institutions where there are less than 5 inmates enrolled in a given program element, there should be one CSC employed teacher in the institution to provide overall program continuity. These person-years are also shown in Exhibit 11-4, opposite.

• In generai, credit degree and diploma courses should continue to be taught by contract staff.

• Contracts for on-going academic and vocational programs (i.e., not special interest courses) should be negotiated with established boards of education, community colleges, CEGEP's, or universities, so that teachers, in most instances can be selected from the regular programs of these institutions and can return to them.

• Contracts should include provisions ensuring that the teachers placed with CSC are part of the regular, full-time staff of the contracting agency; the teachers will be assigned to CSC for a period of no less than two years, on condition of satisfactory performance, and no more than five years.

• The rate of progress from the current resourcing ratio (51% CSC staff) which should be considered a maximum to the minimum resourcing ratio (30% CSC staff) should be deter-mined at the regional and institutional level and should take into consideration specific institutional constraints and requirements.

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111.1

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III - STANDARDS FOR STUDENT-TEACHER RATIOS

In this chapter, we describe the currènt practices within CSC related to

student-teacher ratios; summarize the opinions and experiences of educators in

provincial ministries of education and in provincial correctional services;

summarize the opinions of CSC and contract staff at institutions, regional

offices and NHQ; and, recommend an approach for establishing teacher-student

ratios.

BACKGROUND

CSC has been striving to improve cost efficiency while still maintaining an

optimum level of program effectiveness. One of the means CSC used to reduce

costs was to increase the student-teacher ratio. Ratios are determined by a

simple arithmetic formula based on the number of full-time equivalent inmates

registered in the E&T programs . divided by the number of teachers. In 1979-80,

the ratio was 5.4 inmates to one teacher; in 1984, the ratio was 8:1 and in

1985 the target ratio was 9.5:1. This target ratio applies to all CSC programs

throughout the country.

EXTERNAL PRACTICES

According to Roger Brulé, Regional Superintendent for the Ontario Ministry of

Education, there has been no meaningful reéearch in the area of student-"teacher

ratios. Although logically one would assume that a low ratio would produce

better results, this has not been borne out by the experience of local school

boards. As a result, the provinces have not made any specific recommendations

on student-teacher ratios except for special education classes (blind,

disabled, etc.) where a low ratio of 7:1 is recommended.

111.2

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George Ambury of Queen's University confirmed this lack of professional data

and had only "unofficial recommendations" for a student-teacher ratio. For a

traditional, lecture-style classroom, a 12:1 ratio might be acceptable but

factors such as budget, room size, type of program, teacher's competence and

experience would be considerations.

Henry Hoekema, at Simon Fraser University recommends the following student-

teacher ratios because experience has proven that they are effective although

specific testing has not been carried out:

basic literacy: 6:1 ratio

high school courses: 10:1 ratio

university courses: 12:1 ratio.

Rick Price of the Frontenac Board of Education confirmed these concepts and

ratios.

At both Ontario's Maplehurst and British Columbia's Lakeside Correctional

Institutions, the student-teacher ratio is approximately 12:1. It should be

noted that at Maplehurst, there is very little group teaching and most programs

are based on a modularized learning approach developed by experienced teachers.

In 5 of the 16 subject areas, computer-assisted learning techniques are being

used and this has had no impact on the 12.1 ratio. At Maplehurst, the "life

skills course" is delivered in the traditional, group mode because a group

dynamic is needed.

In addition to determining student-teacher ratios in external educational

agencies, we were asked to examine two recent developments in educational

methodology to determine whether they would allow student-teacher ratios to be

increased. These two methodologies - the TRAC Program and Computer Assisted

Learning (CAL) are being tested currently in an institutional setting.

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The TRAC Program was developed by the British Columbia Ministry of Education as a self-paced, individualized instruction course for pre-entry to vocational

training. It was implemented at the post-secondary level in 1983 and is still

going through some basic revisions. The monitoring and assessment of the

program is only in the rudimentary stages, but discussions with Mr. Nick

Rubidge in the Vocational Program Branch at the British Columbia Ministry of

Education and with Mr. Roy Walton, Director, Vocational Program at Kwantlen

Community College suggest that positive results are indicated.

The TRAC program is a structured, self-paced program. The program contains

pre-packaged material for the student consisting of notes, and references to

existing texts. Extensive use of video tapes is a key feature of the program.

Program modules are built around three "cores" - the common core, the

vocational core and the specialty core. The student progresses at his or her

own pace through each module, using the instructor as a resource and: passing

periodic tests, both theoretical and practical.

At Kwantlen College, there is a built-in disciplinary system which has proved

to be effective in simulating the work ethic of the "real world". If a student

does not attend with regularity or punctuality, he or she is put "on contract".

If the terms and conditions of the contract are not met, the student will be

dropped from the program. Similarly, although TRAC is self-paced, a record of

productivity is kept for each student and he or she goes "on contract" if a

certain minimum standard is not met. The rationale is that the time and

resources are at the student's disposal. It is the student's responsibility to

optimize.them.

At Kwantlen College, the student-teacher ratio for common core modules is 63:5.

There are two classroom instructors, two lab/workshop instructors, and one,

full-time clerical employee who corrects tests and does general support duties

for the program. At the occupational and specialty level, the ratio is 16:1.

The rationale for this ratio is that it "works well for them" and can be

maintained within budgetary constraints.

111.4

The province has set completion of Grade 10 as the minimum standard for entry

to the TRAC program. At Kwantlen, 30% of the students test at only Grade 8 or

9. Kwantlen allows 20% of these Grade 8 and 9 students to register for TRAC

but recognizes that they need much more individualized attention.

The supervisory staff at Kwantlén College, for 42 instructors, consists of one

director, one counsellor, one part-time planner, and two aelmissions staff who

do testing and placement. Because of the modularized nature of the program,

and because there is continuous entry of students, the director feels that

there is a need to test students and review placements fequently. Although the

student-teacher ratios at Kwantlen College might, at first glance, appear to be

higher, there is in fact a proportionate increase in the number of supervisory

and support staff.

The complete assessment of the TRAC Program may indicate that it is a:pedago-

gically effective methodology that can be transferred to federal institutions.

Current information however, does not suggest that it is a methodology that

will allow student-teacher ratios to be increased significantly.

Computer Assisted Learning may also be an effective tool for institutional

education, but only in specific areas and not as a substitute for teacher/

student contact. According to George Ambury, at Queen's University, student-

teacher ratios may be as high as 20:1 when computer assisted learning

techniques are used, provided the student is completely familiar with the

system, and the instructor is only used as a resource person. The use of the

computer, or any modularized program, depends greatly on the type and quality

of the program. Computer assisted learning techniques are appropriate for

courses in basic skill development. These techniques are not appropriate for

courses having attitudinal or behavioural change objectives. Ambury stresses

that attitudinal changes to learning are the crux of the inmate's success in an

education program.

EXHIBIT 111.1

OPTIMUM S1MDENT -TEACHER RATIOS RECOMMENDED BY CSC AND CONTRACT STAFF

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RESPONSES FROM QUESTIONNAIRES

Basic Adult Education (To Grade V)

Upgrading Courses (Elementary or Secondary)

Academic (Secondary School)

Vocational (Secondary School) .

Other Vocational (For Certification)

Community College

University

57% Suggested 6-8 students per teacher

69% Suggested 8-12 students per teacher

63% Suggested 10-12 students per teacher

75% Suggested 8-10 students per teacher

52% Suggested 10 students per teacher

85% Suggested 10-15 students per teacher

78% Suggested 10-15 students per teacher

111.5

As the Director of Individual Training Branch of National Defence, Major Sapp

reported significant progress with the - self-paced method of learning. He

attributed this to the high motivation of soldiers to finish their courses.

(Upon completion, they are put in a higher pay category, and are able to return

home.)

The student-teacher ratio in this program at the Department of National Defence

is between 4 and 8 to I for hands-on training and between 20 and 30 to 1 for

more theoretical courses. The factors behind these ratios is again "what works , -

well" based on experience, consideration of the safety and risk factorki

associated with the equipment used, and the complexity of the material.

What is evident in the study of modularized, self-paced learning, is that there

must be an optimum use of the instructor's time. If student-teacher ratios are

increased, then there must be an increase in non-educational staff required to

perform support functions. According to Don Ellen at the Lakeside Correctional

Centre, self-paced learning within an institution must also be tutor-intensive

learning.

OPINION OF CSC AND CONTRACT STAFF

The management, supervisory and teaching (both contract and CSC-employed) staff

at the regional offices and the institutions were asked to comment on the

effects of current student-teacher ratios, and to suggest an appropriate ratio

based on their experience and knowledge of the system. Exhibit III-1, .

opposite, summarizés the optimum student-teacher ratios by program recommended

by CSC and contract staff in the mail-out questionnaires. Following is a

summary of interview comments, by region.

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111.6

Atlantic Region

Those interviewed in the Atlantic Region commented that an overall student-

teacher ratio, imposed on all.institutions, would be difficult, if not •

impossible to apply. Furthermore, such a ratio can be used only as a quantita-

tive measure of the program and does not really reflect the successful

accomplishment of the programs' goals and objectives. In establishing a

standard for the number of students assigned per teacher, consideration should

be given to such issues as physical facilities, total inmate population, the

learning capability c>f the inmates, and the security level of the institution.

It was pointed out that the New Brunswick CoMmunity College's vocational

programs typically have one shop teacher and one resources technician for every

sixteen students. This was considered to be an appropriate level within an

institution as well, assuming that there was shop space to accommodate each

s'tudent. For elementary and secondary level academic programs, the -.ratio could

be ten to twelve students per teacher in a maximum institution, and as many as

fifteen students per teacher in a minimum institution.

• Quebec Region

The staff in the Quebec Region recommended that there be some flexibility in

applying an overall ratio. It was suggested that the institutions should be

allowed to adapt the ratios according to their physical capacity and program

offerings. They recommended that an instructor teaching basic literacy should

have no more than six inmates assigned at any time. Other academic courses at

the elementary and secondary level could tolerate a higher student-teacher

ratio. It was suggested that the student-teacher ratio could be increased

through the use of team teaching. For example, one teacher can normally handle

up to ten inmates in a classroom. Two teachers, however, may be able to handle

up to twenty-five inmates as there would be more opportunity to have one

teacher lead a group session while the other handled individual requirements.

111.7

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Ontario Region

Those interviewed in the Ontario Region felt that a national resourcing

standard must be adjusted for each institution depending on the individual

characteristics and requirements. They agreed that CSC standards should be

based on standards established by provincial ministries of education or

community colleges, but such standards, must then be adapted to account for the

unique learning environment of an institution. There was concern that an

overall standard, imposed by NHQ, might result in assigning inmates to the

program for the sake of meeting the standard and not to enhance the individual

inmates' level of knowledge, skills or capabilities. Recommended standards for

the literacy program is six inmates to one teacher; for other programs, eight

to ten inmates to one teachers is considered appropriate.

Prairies Region

The Prarie Region identified two major factors which affect the student-teacher

ratio: the physical layout of the E&T facilities and the security level of the

institution. One institution in the Prarie Region has an absolute security

limit of eleven students to one teacher. Those interviewed expressed the

concern that an arbitrary student-teacher ratio may . jeopardize the

effectiveness of the overall rehabilitation program.

The Prairie Regions are starting to utilize computer assisted learning and

consider Out this mode of teaching may result in a marginal increase in the

student-teacher ratio. It was suggested that the use of volunteer teaching

assistant à may also be a method of increasing the ratio.

The fact that the inmates must pay a portion of the tuition fees for university

courses tends to reduce the number of individuals who enroll in the courses

and, hence, has an impact on the ratio.

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111.8

Pacific Region

The Pacific Region recommended that the security risks inherent in the

vocational courses (i.e., access to tbols and equipment) and the physical

limitations of the shops must be the prime consideration in establishing ratios

for the vocational programs. Again, the literacy courses should have a low

ratio due to the special requirements of the students. Inmate tutors for the

elementary and secondary academic programs may be used to increase the ratio.

11 11 111 IL

ANALYSIS

It is evident, based on our review of documents and reports, and our discus-

sions with professionals in the field of adult education and education in

corrections, that standards for student-teacher ratios vary significantly from

province to province, and even from board to board within a province.:

Standards in regular learning environments take into consideration the

facilities available, the demand for different types of educational programs,

the responsibilities of teachers to perform administrative duties, unique

fèatures of each school within the system, cost effectiveness, and maintenance

of the objectives of the educational program.

All of these factors must be taken into consideration in establishing student-

teacher ratios in institutions. In addition, security requirements, and the

low level of motivation typical to most inmate-students must be considered.

We recommend that the optimum student-teacher ratio be developed at the insti-

tutional level during the annual planning process by the Assistant

Warden - E&T, in consultation with the staff at RHQ and NHQ. The ratio should

be based on:

the physical facilities available to the E&T program

- the security level of the institution

- the E&T program offered

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111.9

the requirements of the inmates for specific courses and individualized attention

institutional operations

the administrative responsibilities of the teacher.

Facilities Available

Each institution which offers an education and training program has classroom

facilities designed to accommodate the teaching of academic and/or vocational

courses. The number of students enrolled in a class are limited by the

physical capacity of the facilities. This is particularly true of the

vocational programs, where special equipment, tools and work space must be

available for each student.

Security Requirements

Normally, correctional officers do not stay in the classroom. Hence, teachers

are responsible for maintaining discipline. In the vocational shops where

there are tools and equipment which may be stolen or used to make weapons, the

instructors have a particular responsibility not only to teach the inmates but

also to maintain appropriate control.

E&T Programs Offered

The type of E&T programs offered will also impact on the overall teacher-student ratio. Basic literacy courses and elementary level courses require

more individualized attention and hence, a lower teacher-student ratio.

Courses at the secondary school level can accommodate a somewhat higher number

of students to teachers, and for some university courses which are delivered

solely by lecture, there is no definitive limit.

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Inmate Requirements

Individuals who are sentenced to a correctional institution, for the most part,

have not benefited from educational programs. Indeed, there is a strong corre-

lation between an individual's level of education and their predisposition to

crime. Typically, inmates will'require more individualized teaching and

attention than students in'non-correctional environments. This requirement is

compounded by the fact that individuals at different academic levels are often

placed in the same class. Teachers are not able to use traditional teaching

techniques in such situations.

Institutional Operations

In "street schools" the educational program tarts, normally, in September and

ends in June. Teachers have the same students assigned to them for this entire

period. In an institution, there is a continuous entry and exit of students in

the classroom, as inmates are admitted to the institution and the program,

transferred, called-out for other duties, disciplined, and released. The

teachers must deal with fluctuating class sizes and with students who are at

varying levels within the same program.

Non-Teaching Responsibilities

CSC teachers are required to perform a variety of non-teaching duties such as

report preparation, counselling, inventory control and purchasing. These

duties reduce the amount of time available for teaching and also have an impact

on the number of students a teacher can effectively handle.

Once the institution's student-teacher ratio has been approved, the Assistant

Warden E&T should be accountable for ensuring the ratio is met. In establish-

ing ratios the Assistant Wardens-E&T may wish to consider providing non-

teaching support to assist with administration and security in the classroom,

or using teaching teams. Both these options may permit an increase in the

number of students assigned to each teacher. For reporting purposes, the

institution ratios can be amalgamated on a regional and national basis.

111.11

The NHQ staff can provide assistance to the institutions in developing the

ratio and in monitoring and evaluating the analysis done to establish the

ratio. For example, standards for specific courses should be established to

provide a guide to the Assistant Wardens E&T.

•The NHQ E&T staff should also aSsess alternative approaches to teaching such as

the use of computer assisted learning or modularized teaching programs such as

TRAC to determine if they affect the student-teacher ratio. Such approaches

should be tested and fully evaluated in pilot projects before they are inte-

- grated into CSC'S E&T program.

RECOMMENDATIONS

We recommend the following process be used to establish student-teacher ratios

for CSC E&T's programs:

• Student-teacher ratios should be established by the Assistant Warden - Education and Training at each institu-tion. The ratios should be established with consideration for the institution's security level, the physical facilities available to the E&T program, the inmate requirements for specific programs and individualized attention, and the administrative responsibilities of the teachers.

• The following standards should be used as guidelines by Assistant Wardens:

basic literacy courses - 1 teacher for 6 students

elementary level courses - 1 teacher for 8 students

secondary level academic courses - 1 teacher for 10 students •

vocational courses-1 teacher for 10 students

community college, CEGEP and university courses- determined by subject matter, teaching methodology, and number of students taking a specific course.

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111.12

• Methods for increasing.the ratio such as reducing the administrative workload of teachers or of using team-teaching should be encouraged.

• Highly structured, modulariied teaching approaches such as TRAC and computer assisted learning should be piloted and evaluated to assess their impact on learning affectiveness and potential for increasing student-teacher ratios.

•

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IV - STANDARDS FOR SUPERVISOR-TEACHER RATIOS

In this chapter, we identify the currènt supervisor-teacher ratios within

institutions; describe the practices of boards of educations; summarize the

opinions of experts in the fields of adult education and education in

correctional institutions, and of teachers and management within the CSC

Education and Training programs; and recommend an approach to determining the

appropriate number of supervisors required to ensure effective implementation

of the program.

BACKGROUND

In the Report to the Solicitor General of Canada Concerning the Educational

Program of the Canadian Corrections System, it was observed that there were:

more administrative personnel related to educational programs than seemed necessary in particular institutions. There appears to be an assumption in effect that no matter how small the program or the institution exactly the same number and disposition of administrative personnel are required. While in the small institutions a qualified Assistant Director of Education and Training is needed, it would appear that there is.little need for supervisors of academic and vocational education, positions which are of course needed in the larger institutions. 1

We have not been able to determine whether the 1979 Report observations served

as an impetus, but we do know that over the past three years, there has been a

reduction in the number of supervisors of E&T programs in the institutions.

Most of the reductions have been brought about by combining the responsibili-

ties of two positions (supervisor of academic programs and supervisor of

vocational programs) into one.

1 Ontario Institute for Studies in Education, Report to the Solicitor General of Canada Concerning the Canadian Corrections System, Phase 2, February 1978-1979, pg. 41.

IV.1

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IV.2

This resulting administrative workload of supervisory staff was exacerbated by

a shortage of support staff assistance and a shortage of professional

counsellors. In institutions where there is minimal support available, the

supervisor must maintain files,and reèords, and perform other duties which

could be performed more cost-effectively by a secretary or clerk. The amount

of time spent counselling inmatès also reduces.the amount of time which a

supervisor is able to commit to planning program activities, developing or

evaluating pedagogical techniques, and providing direct support or assistance

to teaching staff.

EXTERNAL PRACTICES

As with student-teacher ratios, there is no generally accepted standard

established for supervisor-teacher ratios. Individual institutions have

adapted ratios'which work well for them, functionally and financially.: The

boards of education have developed formulae for management ratios which •

consider either the number of students enrolled in the programs or the number

of teachers. For example, within the Frontenac County Board of Education,

which uses student enrollment as the basis for management ratios, every

secondary school has a principal and one vice-principal if the student enroll-

ment is less than 900; two vice-principals if it is greater than 900. In

elementary schools, in addition to a principal, there is a part-time vice-

principal if the student enrollment is between 175 and 300, and a full-time

vice-principal if there are more then 300 students. In every secondary school,

there is also a library assistant, an audio-visual assistant, and an

educational resource person.

In the vocational program at Kwantlen Community College in British Columbia,

there is one director, 42 teachers and instructors, one counsellor, two

administrative staff and one part-time planner.

At Maplehurst, a correctional institution operated by the province of Ontario,

there are one principal, one vice-principal, sixteen teachers and one guidance

counsellor (a supervisor-teacher ratio of 1:8).

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IV.3 II OPINION OF CSC AND CONTRACT STAFF

The management, supervisory . and teaching (both contract and CSC-employed) staff

at the regional offices and the institutions were asked to comment on the

affects of the recent reduction of supervisors, and to provide their opinion on

the institution's requirements for supervisors»

Atlantic Region

When the academic and vocational co-ordinators jobs were combined into one

position at Dorchester, there was an additional burden placed on the Assistant

Warden E&T and on the remaining co-ordinator. The co-ordinator's time is spent

primarily on personnel related activities, budgeting and administration for

both Dorchester and Westmorland. There is little time available to become

involved with the actual learning process. It is strongly recommended that

there be at least one supervisor in each prison.

•

Quebec

Some supervisors expressed the concern that their administrative responsibili-

ties required so much time that they were unable to become involved in the

educational components of their job, and that they were unable to provide

adequate support to the teachers. It was recommended that a separate stiper-

visor is required for the academic and vocational programs at institutions - II

where the inmate enrollment in the programs is large. It was suggested that

the ideal ratio is 1 supervisor to 100 students.

Ontario

The opinion of the Ontario staff is similar to that expressed by those in the

Quebec region. It was felt that supervisors should be more visible within the

E&T community, however, the supervisors are unable to take a more active role

with the teachers as they are too busy with administrative tasks. It was

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IV.4

strongly felt that the nuffiber of different programs offered, the number of

teachers and the number of students enrolled in the programs should be

considered in establishing the number of supervisors required in each institu-

tion. •

Prairies Region

Since the number of supervisors has decreased at some institutions, teachers

have assumed some of the supervisor's responsibilities on an acting basis. It

was felt that the number of supervisors at most institutions was appropriate,

however, the responsibilities for administraèion detracted from the more

important responsibilities such as program planning, teacher evaluations, and

pedagogical support. At Stony Mountain, .there is no supervisory staff except

for the Assistant Warden, and there are over 100 students.

Pacific Region

The E&T staff in the Pacific region felt that there should be at least one CSC

supervisor in each institution, and that the supervisors should be provided

with additional administrative support so that they could deal more effectively

with the educational components of their jobs.

ANALYSIS

We feel that there are several factors which affect the number of supervisors

required at each institution including:

the number of courses offered

the number of Students enrolled in the programs

- the number of CSC-employed teachers to be supervised

the number of contract teachers to be co-ordinated

the level of administrative support staff available to the supervisors

- the number of counsellors available to inmates.

IV.5

1

We began our analysis by comparing the existing ratio of supervisory personnel

(both Assistant Wardens and Supervisors/Coordinators) to teachers (both CSC and

contract) and comparing these on an institution by institution basis with the ratio at Maplehurst. The ratios of boards of education and community colleges

were ignored because of the inherent differences between "street" schools and

insitutions.

( Exhibit IV-1, overleaf, compares the current number of Assistant Wardens E&T, . 1 Supervisors E&T, CSC-employed teachers, contract teachers and the full-time

1 1 equivalent enrollment in each institution. The ratio of supervisors to

II 1 teachers is provided in the last column.

The ratios range from 1 supervisor to 0.75 teachers at Frontenac to 1

supervisor to 13 teachers at Archambault. In addition, there are a number of

institutions at which there are no supervisory staff.

The overall ratio of supervisors to teachers is 1:6.76. This ratio compares

favourably with the 1:8 ratio at Maplehurst.

Our next step was to consider the number of courses offered and the number of

students enrolled in courses at each insitution. We felt that the comments of

insitutional staff supported the need for one Supervisor/Coordinator for each

100 students in addition to an Assistant-Warden-E&T. This analysis suggests

that additional supervisors are required at Laval, Warkworth, and Stony

Mountain. The supervisory-teacher ratios at these insitutions (1:11, 1:17 and

1:12) support this analysis.

Although, in total, the number of supervisors appears to be adequate, our

analysis indicates that there is a need to re-examine the ratio at each insitu-

tion. A ratio in excess of 1:10 makes coordination, control, and supervision

extremely difficult.

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COMPARISON OF ASSISTANT WARDENS, SUPERVISORS, TEACHERS (CSC-employed and Contracts) AND STUDENT ENROLLMENT (FTE) BY INSTITUTION

SUPERVISOR • SUPV/ CSC1 CONTRACT1 FTE TEACHER

INSTITUTION AW COORD. TEACHER TEACHERS STUDENTS RATIOS

Atlantic

Springhill 1 2 8 11 183 1:6

Dorchester 1 1 1 13 91 1:7

Westmorland 1 0 0 5 60 1:5 _ — —

Total 3 3 9 29 . 334

»22È—'ec.

RPC Québec2 1 0 0 0 - 1:0

Laval 1 0 6 5 117 1:11

Fed. Training 1 3 26 6.5 372 1:8.25

LeClerc 1 1 7 9.5 172 1:8.25

Archambault 1 1 16 10 193 ' 1:13

Cowansville 1 1 13 6 191 1:9.5

La Macaza 1 1 4 1 69 1:2.5 — — —

Total 7 7 72 38 1,114

Ontario

Kingston 1 1 3 5 83 1:4

Millhaven 1 1 8 4.5 147 1:6.25

P. for Women 0 1 3 3 67 1:6

Collins Bay 1 2 13 8 225 1:7

Joyceville 1 1 7 4 110 1:5.5

Warkworth 1 0 9 8 157 1:17

Frontenac 1 1 1 .5 14 1:0.75 ---

Total 6 7 44 33 803

17 0:1

105 1:12

EXHIBIT IV-1 (Cont'd)

SUPERVISOR SUPV/ CSCI CONTRACTI FTE TEACHER

INSTITUTION

Prairies

RPC Prairies 0 0 0 1

Stony Mountain 1 .0 . 6 6

Rockwood3 • 0 0 0 0 29

Saskatchewan 1 ' 1 2.5 10 .

Saskatchewan SHU 0 .0 0 1

Drumheller 1 2 4 8

Altadore 0 0 0 .5

Portal House 0 0 0 .5

Grierson 0 0 0 2 '

Bowden 0 0 1 1

Edmonton 0 0 0 3

CSC Winnipeg . 0 0 0 3 - --- ----

Total 3 3 13.5 36 659

Pacific

William Head 1 1 4 5.4

Matsqui 1 2 9.8 3.5

RPC Pacific 0 0 2 0

Mountain 1 0 1 2.2

Kent 0 0 1 1.6

Elbow Lake 0 0 0

Ferndale 0 1 0

Mission 0 0 1

Total 3 4 18.8

1 Source for CSC Teachers, Contract Teachers,.and Full-Time Equivalent Enrollment - E&T Quarterly Statistics ending 1984 December.

2 June 1985 staff list indicates that there is one contract teacher at RPC Québec.

3 June 1985, staff list data indicate that there is one E&T supervisor and 1 contract teacher at Rockwood.

AW COORD. TEACHER TEACHERS STUDENTS RATIOS

131 1:6.25

4 0:1

129 1:4

15 0:0.5

14 0:0.5

15 0:2

51 0:2

69 0:3

80 . 0:3

122 1:4.7

134 1:4.43

18 0:2

59 1:3.2

11 0:2.6

1 12 0:1

1 6 1:1

3 47 0:4

17.7 409

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At the same time, we redommend that the supervisory role should be redefined to

emphasize daily contact with teaChers (both CSC-employed and contract), to

provide more pedagogical support to. the program and to be more effective in

long range planning and program design. These responsibilities can only be

performed if the supervisors are provided with appropriate administrative

support to take over such duties as record keeping, budget control, purchasing

and inventory control. Having professional counsellors on staff would also

permit the supervisors to increase the amount of time spent providing educa-

tional supervisory support.

RECOMMENDATIONS

Following is a summary of our recommendations as they pertain to determining

the number of supervisors required to support the E&T program in each institu-

tion: :

o The supervisory role within the institutions should be redefined to emphasize daily contact with the teachers, pedagogical support and long-range planning.

o Supervisors should be provided with appropriate administra-tive support (see Chapter V of this report) and counselling support (see Chapter VII of this report).

o The overall existing ratio of supervisors to teachers (1:6.65) 1 is appropriate provided that supervisors are given additional administrative and counselling support.

o The ratios at individual institutions should be re-examined. The maximum acceptable ratio at any given insitution should not exceed 1:10.

o There should be a minimum of one supervisor, in addition to the Assistant Warden E&T in an institution where there are one hundred or more inmates enrolled in the program.

o In general, the number of supervisors should be determined by the number of programs offered, the number of teachers and the number of inmates enrolled in the Education and Training Program in each institution.

1 Includes all 36 locations at which E&T programs are offered. The ratio at the 24 institutions with major program is 1:7.

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Atlantic Regional Office Springhill Dorchester Westmorland

1 1832 192 1 91 14 2 60 5

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EXHIBIT V.1

CLERICAL STAFF/FTE STUDENTS/TEACHERS BY INSTITUTION

Inmate Pay Secretaries E&T Clerks Clerks Students Teachers

Quebec Regional Office 1 Laval I

' Fed. Training Centre 2 Leclerc 0 ' Archambault 1 Cowansville 1 La Macau'. Reception Centre Drummond

Ontario Regional Office Kingston Millhaven Prison for Women Collins Bay Joyceville. Warkworth Frontenac

Prairies • RM. Prairies

Stony Mountain Rockwood Saskatchewan Drumheller Altadore Portal House Grierson Bowden Edmonton CSC Winnipeg Sask. Shu.

1 117 11 .. 1 . 1 372 32.5

1 172 16..5 1 1 193 26

1 191 19 1 1 69 5 3 0

2 1 1 • 1 83 8

. 0 147 12.5 • 1 0 67 6 1 2 225 : 21

1 110 11 0 157 17

14 1.5

17 1. 2 105 12

29 0 1 131 12.5 1 129 12

15 0.5

14 0.5

15 2

51 2

69 3

80 3

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Pacific Regional Office 1 (1) • 1 (0) Matsqui 1 (4) 2 (1) . 134 13.3 RPC Pacific 18 2 Mountain 0 (1) 59 3.2 Kent 0 (1) • 11 2.6 Elbow Lake 12 1 Ferndale 6 1 Mission 47 4 William Head 122 9.4

1 Data were obtained from the Personnel Management Information system list of April 11, 1985.

2 Source for PTE Inmate Enrollment Teachers — E&T Quarterly Statistics ending 1984, December.

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V. 1

V STANDARDS FOR CLERICAL SUPPORT

In this chapter, we describe the current situation as it pertains to clerical

and secretarial support for the Education and Training program; describe the

standards for support used in boards of eduCation; summarize the opinions of

CSC -and contract staff at institutions, regional offices and NHQ; and recommend

II ; a formula to determine an appropriate level of administrative support staff for

the program.

BACKGROUND

Exhibit V.1, opposite, contains a breakdown of the number of Education and Training secretarial/clerical support staff by institution. It also identifies

the institutions having Inmate Pay Clerks.

Until 1985 April, Inmate Pay Clerks spent approximately 80-90% of their time processing inmate pay documents and 10-20% of their time performing other administrative support duties for E&T staff. As of April, all clerks respon-sible for inmate pay have been assigned to the Inmate Resources Division,

effectively reducing the administrative support available to E&T staff.

In addition to the person-years identified in Exhibit V.1, some institutions

use inmate clerks as clerical assistants. However, there are limitations to

the use of inmate clerks. A memo from the Deputy Commissioner dated 1982, December specifies that inmates cannot have access to staff or inmate files or

work near such files unsupervised. In addition, inmates cannot answer the

telephone or move freely from one location to another. Most importantly, they

often have minimal training in office procedures.

Ilf

It should also be noted that soàe clerical support is provided to the E&T

program through contracts with school boards. That support is primarily

intended for E&T contract teachers and is not usually provided on-site.

EXTERNAL PRACTICES

There is no standard formula used by school boards or other institutions to

determine the level of clerical support required for educational programs.

However, most educational institutions do consider either the number of

teachers and/or the number of students when determining clerical support

requirements. For example, the Frontenac Board of Education uses two formulae

to determine the number of clerical staff. The elementary school model is

based on a minimum of two hours a week per teacher. The secondary school model

is based on one support staff for every two hundred students, plus one library

assistant, one audio-visual assistant, and one educational resource Staff

member for a population of 1,000. There is also a discretionary allowance for

extra help at peak times in the academic year.

OPINION OF CSC AND CONTRACT STAFF

The management and teaching staff at the regional offices and institutions were

asked to comment on the existing level of clerical support. Generally, they

expressed a need for additional support, particularly for the following

purposes:

to provide assistance to teaching staff by typing examinations, copying lesson materials, recording test results, filing and preparing class lists

to provide assistance to managerial and supervisory staff by typing correspondence, memoranda, requisitioning office supplies and supervising an inmate clerk

. to provide assistance to all staff by answering the telephone and relaying messages.

V.2

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One of the primary concerns idefitified was that clerical staff are often not

located in the school building. .Support services are shared with other

programs, and although the quality of service provided is generally acceptable,

UT needs are not considered to be a priority, it is inconvenient to send or

take material to another building, and there are often delays in getting work

done and returned.

Following is a summary of comments, by region.

Atlantic Region

At Dorchester Penitentiary, there is one contract clerk who works at the

institution as part of the educational contract with the New Brunswick Ministry

of Education. In addition to specified contract duties, the clerk often

handles other tasks. The clerk, however does not have time to suppOrt the

individual requirements of teachers.

The institutions use inmate clerks, however, their effectiveness is limited in

that they cannot have access to inmate files.

The Springhill Institution indicated the need for one additional clerk.

Quebec Region

Inmate clerks are typically used wherever possible to provide administrative

clerical support. Teachers however, do all of their own administrative work.

It was suggested that there should be at least one full—time clerk in addition

to the inmate pay clerk at each institution.

The major concern of staff at Leclerc, Laval and Cowansville is that there is

no support staff located in the schools. All institutions surveyed indicated

that clerical support for teachers would alloW them to spend more time

teaching. The Regional Reception Centre at St. Anne also felt that an

additional .5 person year was needed to record test results and type

correspondence.

V.4

Ontario

At Collins Bay, the secretary to the Assistant Warden - E&T is responsible for

processing inmate pay and performing à variety of other administrative duties.

There is one other clerk who meets the requirements of the two E&T supervisors,

21 teachers, and in addition provides support to the Industries program.

At the Prison for Women, as . there is no E&T clerk, inmate clerks are used

wherever possible. At Warkworth, a clerk in another building provides about

30-35% of the support required. At Joyceville, staff estimate that their clerk

meets 80% of their needs at best.

At all institutions, the teachers do their own administrative work because the

clerical staff are not able to cope with the workload.

Those interviewed in the Ontario region expressed a very strong need for

additional administrative clerical support.

Prairie Region

It was suggested that the Assistant Warden and Supervisors at each institution

should have a clerk to provide administrative support to the programs. In

addition, it would be beneficial to have another clerk available to support the

teachers in the larger institutions.

Pacific Region

In most institutions inmates handle clerical duties except confidential

matters, security matters and matters related to planning or personnel.

It ANALYSIS

There is no E&T clerk at all at - Kent, and the teachers and supervisors are

required to handle all administrative duties. A co-ordinator at William Head

estimated that 50% of her time and tbat of other teachers is spent on

non-academic duties such as typing and photocopying.

V.5

• It was suggested that one E&T Clerk would be • ufficient if there were a

separate inmate pay clerk. In the institutions with a smaller E&T program, a

clerk could be shared between two programs such as E&T and Industries.

In determining the amount of clerical support required at the institutional

level, we considered the support required by the program as a whole, (preparing

statistical reports, budget documentation, requistioning equipment and

material, typing correspondence, answering telephones, etc.) and the 'support

required by individual teachers (preparing class lists, typing examinations,

recording test results, etc.).

Although public school estimates suggest that in general 2 hours of clerical

support per week per teacher are required, we felt that these estimates were

inadequate in institutions for the following reasons:

the institutional teaching day is longer and therefore it is not unreasonable to suggest that more teaching material is required

inmate students require more individualized attention because of their lower level of motivation, and because they are often at different levels within the same program

there is more turnover of inmate students resulting in increased support requirements for class lists, reports, etc.

clerical staff are often required to supervise and instruct inmate clerks.

Our estimates of the level of clerical support required have therefore been

increased to 3 hours per week per . teacher.

In addition to the support required fC r individual teachers, we have provided a

rough estimate of the support required for the program as whole (answering

phones, requisitioning materialà). These estimates are based on the number of

FTE students at the institution:

up to 50 students - 4 hours/week 51 - 100 students - 7.5 hours/week 101 - 200 students - 10 hours/week 201 - 300 students - 15 hours/week 300 + students - 20 hours/week.

These estimates are at best very rough and should be revised following a

workload analysis at each institution.

RECOMMENDATIONS

Following is a summary of our recommendations as they pertain to administrative

clerical support for the Education and Training Program.

• The E&T clerk should provide support directly related to the Education and Training Program only except in institutions with a limited E&T Program.

• The E&T clerk should be responsible for at least the following: confidential matters, personnel issues, security issues and telephone.

• The Education and Training Program should utilize inmate clerks as much as possible, except in areas where it violates CSC policies.

• Teachers and supervisors should be relieved of the clerical duties wherever possible to allow them to concentrate on teaching duties.

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V.G

ESTIMATE OF E&T CLERICAL SUPPORT REQUIREMENTS BY INSTITUTION

Estimated Students1 Teachers1 Support Requirements

Atlantic Springhill - 183. 19 2 Dorchester 91. 14 1.5 Westmorland 60 . 5 .5

IM—.)ee- . Laval 117 11 1 Fed. Training Centre 372 32.5 3 Leclerc 172.. 16.5 1.5 Archambault 193 26 ' 2.5 Cowansville 191 19 2 La Macaza 69 5 .5

Ontario Kingston 83 8 1 Millhaven 177 12.5 1 Prison for Women 67 6 .5 Collins Bay 225 21 2 Joyceville 110 11 1 Warkworth

. 157 17 1.5

Frontenac 14 1.5 0

Prairies RPC Prairies 17 1 0 Stony Mountain 105 12 1 Rockwood 29 0 0 Saskatchewan 131 12.5 1 Drumheller 129 12 1 Aitadore 15 .5 0 Portal House 14 .5 0 Grierson 15 2 0 Bowden 51 2 .5 Edmonton 69 3 .5 CSC Winnipeg 80 3 .5 Sask. Shu. 4 1 0

Pacific Matsqui 134 13.3 RPC Pacific 18 2 Mountain 59 3.2 Kent 11 2.6 Elbow Lake 12 1 Ferndale 6 1 Mission 47 4 William Head 122 9.4

1 Source – E&T Quarterly Statistics ending December 1984.

1

V.7

• The person-years - allocated for the E&T Administrative Clerical Support should be available to both the academic and vocational areas acdording to need.

• The following formula should be used in determining the clerical support required for the Education and Training Program within an institution:

Program Support

up to 50 students - 4 hours/week 51 - 100 students - 7.5 hours/week 101 - 200 students - 10 hours/week 201 - 300 students - 15 hours/week 300 + students - 20 hours/week.

Teacher Support

3 hours per week per teacher.

An estimate of clerical support required by institution using this fo-rmula

appears in Exhibit V.2, opposite. Formula results have been rounded to Cie

nearest .5-person-year. It should be noted that this estimate does not include

Inmate Pay Clerks. Minor adjustments to this recommendation may be necessary

to accommodate any special requirements in the individual institutions. For

institutions with fewer than 5 teachers, the E&T clerical duties may be

combined with other programs (e.g., Inmate Pay, Industries, etc.) ».

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VI - STANDARDS FOR TEACHING COSTS PER INMATE

In this chapter, we examine current educational costs per inmate; discuss some

of the issues which should be considered in assessing teaching costs; provide a

summary of teaching costs for séntie external educational agencies; and provide

suggestions for standards for teaching cost by program element.

BACKGROUND

Currently, CSC is only able to estimate the total educational cost per inmate

by taking total budgeted costs (operational and salary costs) of the E&T

program and dividing by the total number of FTE students. Exhibit VI-1 below

illustrates the breakdown estimated in December 1984.

EXHIBIT VI-I - ESTIMATED EDUCATIONAL COSTS PER INMATE 1

Year to Date Forecast Region Total Enrollment Adjusted Budget Cost Per Inmate

Atlantic 315 $ 2,664,255 $8,457

Quebec 1,012 8,110,262 8,014

Ontario 778 5,661,776 7,276

Prairies 512 3,944,697 7,704

Pacific 384 3,734,177 9,724.

NHQ 0 1,660,669 N/A -----

Total 3,001 $25,775,336 $8,589

1 Source - E&T Quarterly Statistics ending 1984, December.

VI.].

1 VI.2

t.

These figures allow the E&T Program staff to estimate future year costs by

forecasting student population and multiplying by the average cost per inmate,

adjusted to reflect cost-of-living increases. It is felt that more accurate

estimates could be made if the cost per inmate by program element were known.

. EXTERNAL OPINION

The educational administrators interviewed included the costs of collective

agreements and individual contracts of teaching staff and overhead costs in

their cost per student estimates. At Kwantlen College, the teaching cost for a

welding class in the TRAC program with 16 students and one instructor worked

out to $40-50 per day per student.

This figure was arrived at by adding to a base teaching cost of $15.00 per day

per student, the sums of $9.00 per day per student for supplier, and $16-26 per

day for maintenance of equipment and overhead.

The statistics for annual cost per student used by the Ottawa Board of

.Education in their 1985 budget were $5,114 for an elementary student and $6,218

for a secondary student. 1

At Lakeside Correctional Centre, where the staff work 10 months per year, the

total teaching cost for a program which involves 12 FTE students and 2 staff is

$81,284 plus a 10% benefit package. This works out to $7,457 per year per

student.

According to information prepared by Henry Hoekema at Simon Fraser University,

the annual cost per student in a university is $3,000.

1 Annual cost per student data are available for numerous boards across Canada, but these figures do not separate teaching costs from total educational costs.

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VI.3

In the Province of Alberta, a special funding formula has been adopted for

institutional education. The province provides a special institutional grant

for young offenders, between the ages :of 12 and 16, placed in an institution or

group home by the courts. Local school boards provide the scholastic service

and the Ministry of Education subsidizes each teacher by a $20,000 grant based

on teaching ratios of 7-10:1. Provincial Correctional Services make up the

difference for each teaChing contract. The institutions or group homes apply

for grants based on the maximum occupancy of the school. In addition, there is

a school Foundation Program Fund which provides an $1,800 grant for general

educational support for every student in the province.

The Calgary Correctional Centre (Bull River Secondary School) is a recipient of

these Alberta granst and still cannot cover teaching costs if a 10:1 ratio is

used. A ratio of 18:1 is required if costs are to be covered in the academic

and vocational programs.

ANALYSIS

In our opinion, the information provided by public school boards is completely

inapplicable to the E&T program and cannot be used for comparative purposes,

because of:

differences in the total number of teaching days between CSC institutions and public school boards

differences in student-teacher ratios.

The information provided by other institutions is more acceptable for

Il i- L comparative purposes, but is not purely the teaching cost related to each i inmate. It is the total educational cost - i.e., teaching salaries plus

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overhead associated with each inmate. As such, the cost estimates of Lakeside

Correctional Centre are comparable to the average educational cost per inmate

i in Ontario - $7,451 to $7,276. 1 Only Ontario costs should be compared, because

It the salary costs of teachers in Ontario should be similar.

1 E&T Quarterly Statistics ending 1984, December.

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VI.4

1

The standard teaching costs by program element are extremely rough estimatesr

• Only a sample Of contracts with detailed breakdowns of salaries and benefits were:available at Headquarters for analysis. In particular, SERADEP and Pacific Region detailed contract information wai not available.

• A number of the contracts do not •pr .c5vide specific data on the number of days covered by the contract. Estimates of actual teaching days over 11 months were made.

• The contract information and the CSC teacher information does not cover the same time frame. The most complete contract information covers the period to December 31, 1984. CSC salary data was available only for March 31, 1985.

In arriving at a standard teaching cost student by program element, we began by ' 11 defining "teaching" costs as those costs relating specifically to teaching

salaries and associated benefits. E&T Program management has very little control over these costs which are negotiated by the teachers unions in each

province and their respective ministries or boards of education, or by the

'Public Service Alliance of Canada on behalf of CSC teachers and the Treasury

Board. The total cost of salaries and benefits therefore can be considered a 11 given.

,The average cost per teacher by province is presented in Exhibit VI-2,

opposite. We were able to obtain a representative sample of contracts (those

covering 134 of the 152 teachers under contract as of December 31, 1984).

However, the copy of the SERADEP contract provided did not contain a breakdown

which allowed us to separate salary and benefit costs from total contract

costs. The SERADEP contract was valued at $1,975,000 and covered 38 teachers.

as 11111_ 411e.. We III. all. ele

Pacific

Overall

AVERAGE COSTS PER TEACHER

Contract( 1 ) CSC Employed( 2 ) Total Ave Region

Atlantic NS Ministry 11 408,419 NB Ministry 14 518,520 NB Ministry 2 68,630

27 1,995,569 10 390,240. 37 $1,385,809 $37,454

1.2-e1.--)ec- SERADEP 38 1,382,500 — 1,777,500 72 2,859,552 110 $4,242,052-4,637,052 $46,560-68,151

Ontario Frontenac 25 1,028,465 Loyalist 8 350,156

33 1,378,621 44 1,806,420 77 $3,185,041 $41,364

Prairies Alta Ministry

of Education 8.5 348,303

Natonum 6 264,880 Frontier 1 45,675 Winnipeg 3 177,000

18.5 835,858 16 602,544 34.5 $1,438,402 $41,693

17 448,000 — 576,000 23 1,115,339 40 $1,563,339-1,691,339 $39,083-42,283

(1) Contracts do not include community college, CEGEP or university program costs. Original contracts (not revised) were used. Detailed breakdowns are provided in Appendix F.

(2) CSC detailed cost breakdowns are provided in Appendix F.

VI.5

We were also not able to obtain a copy of the Fraser Valley contract. the

value of that contract was $640,000, and an assumption has been made that the

contract covered all 17 contract teachers in the Pacific Region.

As teacing costs represent 70-90% of total contract costs in all other

contracts, a range of 70-90% of total contract - value is provided for the

SERADEP and Fraser Valley contracts. Average annual teaching cost calculations

suggest that 90% of the Fraser Valley contract is a more realistic figure

(average salary $33,882).

CSC employed teacher costs and the number of CSC teachers are based on March

31, 1985 data as December 31, 1984 detailed information was not available. The

figures provided are based on the actual salary of teachers plus 19% benefits.

We were also not able to obtain the costs of supply teachers hired to - cover CSC

teachers on leave. Therefore, the costs of , CSC teachers is slightly

understated.

The standard teaching cost per student by program element by region which we

developed, involves dividing approximate average costs (Exhibit VI-2) by our

recommended student-teacher ratio for each program element. This was done

because E&T management does not have control over costs, but does have control

over ratios. Changes to our recommended ratios will result in changes to the

standard teaching cost per inmate. The 1984 standard costs are reflected in

Exhibit VI-3, overleaf. Each year new standard costs will have to be developed

by adjusting costs to reflect contract negotiations.

The 1984 figures show that there are significant differences in teaching costs

by program element and by region. If projections can be made on the number of

students by program element and by region, more accurate overall projections of

costs can be made, as the example below illustrates.

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Example

Increase of 10 students in Basic ‘ Education in the Quebec Region

Cost Increase Estimaée 10 x $10,760 - 11,359 = $107,600 - $113,590

Increase of 10 students in Basic Education nation wide

Cost Increase Estimate 10 x $7,472 - 7,698 = $74,720 - $76,980

Increase of 10 students

Cost Increase Estimate 10 x $5,305 - 5,466 (average cost of a student)= $53,050 - 54,660

Average costs for students in college and university programs have not been

developed because:

there is no recommended student-teacher ratio for college and university classes

we were not able to determine the number of teachers who taught college and/or university courses at each institution

it is believed that the majority of inmate students taking college or university courses do so by corres- pondence, thereby reducing the cost per student significantly

inmates must pay a portion of the tuition fee for university courses, and we were not able to determine what the total contribution is.

RECOMMENDATIONS

• We recommend that the standard cost per inmate per year by region and program element be developed by dividing total teaching costs of each region by the recommended student-teacher ratio for each program element. These costs should be adjusted annually to reflect increases in collective agreements. (Exhibit VI-3 approximates the 1984-85 standard costs.)

VI.6

I.

tie We recommend that each - region determine the actual cost of university and college programs by student, and that the national average of these costs be used as a standard.

VI.7

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11 VII.].

VII — STANDARDS FOR ASSESSMENT AND COUNSELLING

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In this chapter, we describe the currènt policies and practices for providing

assessment and counselling for the inmates for education and training purposes;

summarize the opinions and experience of educators in provincial Ministries of

Education and provincial correctional institutions, and review the opinions of

CSC and contract staff at institutions, regional offices and NHQ; and recommend

an on—going standard for inmate assessment and counselling.

BACKGROUND

Providing a full range of education assessment and counselling to the inmate is

seen as a critical factor in optimizing the effectiveness of the E&T program.

Currently, the Case Management Policy Manual establishes standards for géneral

assessment and counselling and includes some standards in the area of

educational and vocational counselling. The following is a summary of the

Policy Manual as it applies to E&T:

• During the first two weeks of incarceration, inmates go through a reception process, at which time they are informed of the options available to them for education and • training. If an inmate chooses to participate in the E&T program, they must complete a School and College Aptitude Test (SCAT), which will determine their level of knowledge and assist the administrators in placing the inmate at an appropriate level in the program.

• Within the first sixty days of incarceration, an Individual Program Plan (1PP) should be developed for each offender. This Plan includes a Needs Analysis Profile which specifies the offender's needs and objectives in relation to seven areas of concern, one of which is in educational/vocational training.

• Thereafter, a Quarterly Progress Report is completed to reflect the current circumstances of the offender. The description of the offender's progress and performance in areas including education and training (if appropriate) must be documented and shared with the inmate.

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VII.2

In practice, the degree and quality of education and training assessment and

counselling varies from institution to institution. The assessment process is

standardized to the extent that the SCAT test is administered to all inmates

entering the E&T program. Inmates in Quebec institutions participate in a full

battery of assessment tests at the Centre de Reception which includes in-depth

tests to assess the individual's capability and attitude to learning. The type

and nature of counselling for the E&T program, however, is often dependent on

the individual who provides the initial orientation. The counsellor may be the 11 Case Management Officer, the Assistant Warden, an E&T Supervisor, the

institution's psychologist or in some cases, a professional counsellor. 11

Often, there is little education and training counselling available to the 1r inmate who has chosen not to participate in the program after the initial

reception and placement process has been completed. For those individuals who

11 do choose to participate in the program, varying assessment tools may be

administered depending on the inmate's needs and the availability of a trained

counsellor.

EXTERNAL OPINION

In The Report to the Solicitor General of Canada Concerning the Educational

Program of the Canadian Corrections System, it was observed that "institutions

are making more critical use of skilled counsellors than has been the case in

the past". 1 It has become apparent that effective counselling demands both - IF professional preparation and personal attributes which are not usually found in

unqualified personnel.

In the penitentiary system, the background of inmates, their psychological

orientation and the pressures of the institutional environment demand the

application of counselling skills which are critical if the education programs

are to be effective.

11 1 Ontario Institute for Studies in Education, The Report to the Solicitor General of Canada Concerning the Educational Program of The Canadian Corrections System, February 1978-1979, p. 127.

VII.3

An education counsellor in a pehitentiary has three major responsibilities -

assessing inmates' educational status, assisting inmates in selecting the most

appropriate education or training programs, and providing on-going support for

inmates enrolled in such programs. It is unrealistic to expect regular

teachers or administrators, living unit or classification officers or personnel

at reception centres to have the knowledge and counselling skills which will bè

effective in all three counsellor roles.

Each institution requires at least one highly skilled counsellor who will deal

with inmates' problems associated with education and training.

The Report makes three recommendations which pertain specifically to the

assessment and counselling of inmates on• education and training issues:

• Each institution which offers education and training programs should have the service of at least one counsellor specifically trained to deal with three elements of the education system:

education testing and assessment

- advising inmates in program selection

- on-going support for inmates involved in the education and training program.

• Counsellors selected for penitentiary service should have preparation specific for the role. An education back-ground, knowledge of penitentiary education and effective counselling skills are essential elements in such prepara-tion.

• The responsibilities of the educational counsellors in penitentiaries should be specifically related to the problems of education and training within the institution. 1

1 Ibid, p. 129.

VII.4

The Correctional Standards and Accreditation, developed by the Canadian

Association for the Prevention of Crime, has established standards for

education assessment and counselling:

• The prison should provide for the assesàment of every prisoner at the beginning of a sentence of imprisonment including academic potential, degree of literacy, and

• academic achievement.

• Prisoners' needs, abilities, and interests are important criteria which should be taken into account when assigning them to employment or other programs.

• The prison should facilitate access to educational counselling by qualified adult education personnel to any prisoner during the course of his/her sentence.

• Each prisoner should be assigned to counselling staff who develop and oversee the implementation of an individual program plan with the prisoner. Staff from other disciplines should provide input, as required.

• Educational staff employed in the prison should possess, at a minimum, the qualifications required by the provincial. departments responsible for education for comparable positions in the community and any special qualifications required by the prison milieu. 1

The Manual of Standards for Adult Correctional Insitutions, developed by the American Correctional Association, specifies that:

• Educational and vocational counselling should be provided so inmates are placed in that phase of an educational or vocational program most suited to their needs and abilities.

• ' Counselling is to be provided by qualified, training counsellors.2

1 Canadian Association for the Prevention of Crime, Correctional Standards and Accreditation. (5.13.10, 5.14.01, 5.16.05, 5.19.02, 5.16.06)

2 American Correctional Association, The Manual of Standards for Adult Correctional Institutions. (4396, 4440)

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VII.5

George Ambury, education specialist at Queen's University, observes that

educational assessment and counselling should be on-going in nature. The first

month is a very difficult adjustment period and might compromise the accuracy

and effectiveness of testing and inmate orientation. What is more important,

is good continuous case management incorporating follow-up in educational

guidance. It was also suggested'that the Service should make more use of

outside specialists in assessment and counselling, particularly if there are no

professionally trained counsellors available in-house.

At Lakeside and Maplehurst Correctional Centres, basic testing of inmate skills

is done within the first week, and subsequently educational counselling to

establish goals and approaches is carried out by the teachers.

OPINION OF CCS AND CONTRACT STAFF

The management, supervisory and teaching (both contract and CSC-employed) staff

at the regional offices and the insitutions were asked to comment on the

current level of educational assessment and counselling, and to provide their

dpinion on the institution's requirements for counsellors. Following, is a

synopsis of their opinions, by region.

Atlantic Region

It was observed that a representative from E&T is supposed to meet with all

first offenders when they enter the penitentiary to explain the available

programs; however, due to time constaints, this does not always happen.

Currently, teachers provide a limited amount of testing and counselling.

It has been suggested that one qualified counsellor should be hired (either

directly by CSC or through a contract) to handle the counselling and assessment

needs of all the institutions in the region. The counsellor should be avail-

able to all inmates on an on-going basis, not just when they first enter an

institution.

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VII.6

Quebec Region

• . . All inmates are sent to the Regional Reception Centre in Quebec for testing,

assessment, and counselling at,the outset of their sentence. The inmate 11 participates in a comprehensive series of tests to assess individual

capabilities and level of knowlédge. The results of these tests and the

inmates' preferences are taken into account when placing an inmate into a

particular program.

At the Centre Federal de Formation, a counsellor (on contract with the school

board) visits each insitution once a week to meet with inmates in the program

on an individual basis to discuss progress to date and additional requirements.

11 Ontario Region

A full-time professional counsellor for Collins Bay is provided in the CSC 11 contract with the Frontenac Board of Education. The Assistant Warden at

Collins Bay feels that this counsellor has had a major impact on the effective-

ness of the E&T program. It was noted that inmate interest in the program has

increased, enrollment has increased, and turnover has decreased. The

counsellor has contact with every inmate who enters the institution; there-

after, he meets with those inmates who have expressed an interest in the

program; follows-up with those already enrolled in the program, and provides

inmates who are about to be released with contacts who will provide assistance

in continuing education on the outside.

The SCAT tests are administered by the Inmate Employment Coordinator. It was

suggested that the requirements for additional assessments should be determined

by the counsellor based on the individual inmate's needs.

11 One additional contract counsellor is responsible for providing E&T counselling

• in the other institutions in the regions.

• 11

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VII.7

It was recommended that each institution required the services of a counsellor

for approximately 18 to 20 hours per week (i.e., one counsellor for every two

insitutions). The counsellor should be professionally trained, and have

appropriate personality characteristiCs to be able to relate effectively with

the inmates.

Prairies Region

Limited assessment and counselling is being done by the Assistant Wardens, E&T,

supervisors, and by the teachers in the Prairies. There is some concern that

these individuals may not have the qualifications required to do the counsel-

ling effectively.

Often, the E&T staff are not available to meet with inmates on their arrival at

the institution and the initial counselling is done by the prison psyCho-

logists. Inmates, once enrolled in the program, receive limited counselling,

as required, from the teachers and supervisors.

r It is recommended that the initial assessment and counselling should be done by

lies a qualified education counsellor, and thereafter, that a qualified counsellor

should be available to inmates on an on-going basis. :

Pacific Region

The Pacific Region has established a contract with &counselling firm which is

responsible for administering the SCAT test to all inmates enrolling in the E&T

program in the region.

At Kent Institution, a Case Worker in the socialization division discusses

education with the inmates upon entry into the institution. Teachers are

available to answer specific questions.

At Matsqui, the E&T supervisors provide inmates with information on the various

programs available.

VII.8 lf

ANALYSIS

There appears to be a consensus among the professionals in adult education and

education in institutions, and CSC staff, that education counselling and

assessment should be available to all inmates on an on-going basis and that

this counselling should be provided by a professional. Our recommendations are

based on these professional opinions and on the suggestions of CSC staff in the

institutions.

RECOMMENDATIONS

Following is a summary of our recommendations on the provision of educational

assessment and counselling at the institutions:

• Assessment and counselling for education and training should be provided by a professional counsellor.

• At a minimum, there should be a counsellor available at each insitution for eighteen to twenty hours per week and full-time at institutions where there are more than twenty inmates enrolled in the program.

• The counsellor should be responsible for:

- advising inmates on entry into the institution of the programs available

- conducting and interpreting special education assessments, as required

- providing on-going support during enrollment in the program

- counselling other inmates not in the program, on request

- providing pre-release advice and guidance on education facilities outside CSC.

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VII . 9

• The counsellor ihould - work closely with the E&T supervisor and the teachers in èstablishing programs and teaching methodologies to meet inmate requirements.

• The staff at NHQ should have available a battery of educational assessmént tests which can be used by the counsellors, as required.

• Counsellors can be either CSC employees or can be provided • through contracts with established boards of education,

CEGEPS, or universities.

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VIII.1

VIII - STANDARDS FOR EDUCATION AND TRAINING LIBRARIES

In this chapter, we describe the current policy and practices within CSC as

they apply to the provision of library resources for the education and training

program; review the recommendations of studies 6n library standards for

correctional institutions and the practices of boards of education and

community colleges; summarize the opinions of CSC and contract staff at the

regional offices and institutions; and recommend standards for library

resources for the Education and Training Program.

BACKGROUND

The Commissioner's Directive 500-3-01:1 stipulates that

all institutions with a security classification of S3 to S7 shall provide, on a professional basis, an institution-wide library service, as comparable as possible to that service available from a public library. Where feasible, it shall be located in proximity to the classroom area .... The role of the library is to facilitate the self-improvement of the inmate through the provision of materials .... to support the work of the various programs within the institution, for example, academic and vocational education.

The availability of library services is a critical requirement for complete

educational services.

Currently, the library services in most institutions focus on the recreational

needs of the inmates and give less consideration to the education and training

requirements. Hence, in some institutions, libraries are located in areas

which are more accessible to the inmates' living quarters. In some cases, this

location may not be convenient to the education and training facilities.

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VIII.2

We reviewed current library services from a number of perspectives, each of

which has an impact on the level'of services provided:

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accessibility of the library for E&T purposes in terms ' of location and hours of operation

- facilities available .

size and type of collections (both print and non-print)

- funding available

- staffing of libraries.

DOCUMENT REVIEW

We'reviewed a' number of documents to obtain information on current standards

and practices. Pertinent information is summarized below.

The Correctional Standards and Accreditation developed by the Canadian

Association for the Prevention of Crime recommends:

• The selection of library materials should consider programs provided in the prisons, such as Education and Training.

• Libraries should be developed and maintained in consulta-tion with a professional librarian.

• Libraries should be available during prisoner leisure time periods, evenings, weekends and holidays. 1

The Manual of Standards for Adult Correctional Institutions developed by the American Correctional Association, specifies:

• The institution library should contain a full array of reference, reading and audio-visual materials for educa-tional and recreational purposes. The institution's library should be comparable to a public library.

• Library materials should be selected to meet the educa- tional, informational and recreational needs of the

• inmates. They should be easily accessible and regulated by a system that prevents abuse. 11(

1 Correctional Standards and Accreditation, Canadian Association for the Prevention of Crime, pg. (5.17.02), (5.17.04), (5.17.08).

VIII.3

• The parent agenéy has'a full-time staff member, qualified in library science td go-ordinate and supervise the library services for all institutions in the system.

• Each institution should have a staff member to co-ordinate and supervise library services on a part-time or full-time basis. This person should receive training in library services.

• There should be no restrictions on access to library services and facilities. The availability of library services is particularly important under conditions of confinement. Library personnel should be available in proportion to resident needs, with most staff being assigned to the library at peak use periods.1

In a Review of Institutional Library Services, completed by Peat, Marwick and

Partners in 1984, we reéommended that:

• National Headquarters hire a librarian with an M.L.S. (Master of Library Science) degree with sufficient skills to co-ordinate the activities of the libraries on a national basis.

• Basic library standards be established for the institutional libraries.

• Basic procedures be developed for all institutional libraries and that a manual be written outlining them in detail.

• CSC re-examine staffing of institutional libraries so that consistent qualifications are found in all institutional

*libraries.

• Every region have a Regional Librarian with a BLS or MLS degree.

• More appropriate staffing levels be maintained in institutional libraries.

1 Manager of Standards for Adult Correctional Institutions, American Correctional Association, pg. 80, 81.

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VIII.4

• All CSC institutional libraries should have a minimum basic adult literacy collection.

• Separate budgets be developed for the libraries and that they be reviewed regionally and nationally before they are submitted to Wardens. 1

A Report on Institutional Library Service, prepared by C.M. Nason, in 1981,

recommends:

Library services within the Correctional Service of Canada should be based, as much as is possible, upon a public library mode1.2

Many of the recommendations made by Mr. Nason have been incorporated into the

- Commissioner's Directive 500-3-01.1.2

Frank White, Regional Librarian, Ontario developed Standards for Corr'ectional

Institution Libraries of the Canadian Corrections Service which included a

series of recommendations in areas such as:

- policy and procedures documentation •

- facilities and equipment

- reader services

- resources: acquisition, organization, control

staff

- performance measurement and evaluation.

Mr. White's recommendations were adopted as the minimum acceptable standards for federal correctional institution libraries.

1 A Review of Institutional Library Services, Peat, Marwick and Partners 1984, pg. 2.

2 A Report on Instititional Library Services, CM Neson, 1981, pg. 83.

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VIII.5

EXTERNAL OPINION

Most boards of education do not have.established policies for library

operations. Instead, the requirements to establish, operate, and staff

libraries are usually examined during the annual planning and budgeting process

and decisions are made to meet specific needs -.

There are practices which can provide benchmarks for CSC libraries. Janet

Murphy, President of the Subject Library Council, suggests that operating

libraries in elementary schools require funds of $10 per student per year for

reading materials. Additional grants are required for special programs such as

second language immersion, computer literacy and special education.

An alternative approach to funding libraries, is to assess the information

required on a course by course basis. For example, there may be twelty-five

students enrolled in a course that has a library research component.

Acquisitions for the year will ensure that the twenty-five students have

adequate sources of information for their course.

The Ottawa Board of Education has established funding levels for print-

collections. Currently, libraries in elementary schools receive $10 per

student per year and libraries in secondary schools receive $15 per student per

year. For schools which offer special programs, such as language immersion, an

additional $1.80 per student enrolled in the program per year is provided.

Funding for non-print collections (i.e., audio-visual) is determined at each

school and is dependent on the special projects and programs planned. It was

stressed that funds for print collections could not be used for acquisition of

computers or other equipment.

The Ottawa Board of Education advised that the ideal print collection for an

established school library is twenty volumes per student. This is also the

recommendation of the Canadian School Library Standards which were established

in 1967.

VIII.6

The Ottawa Board of Education attempts to provide a minimum of .5 square metres

(5 square feet) of library space.Per student.

The Members Guide of the British Columbia Teachers Federation recommends

school . libraries have .8 square metres (nine square feet) per student. It also

recommends a print collection for schools with 100 or more students of 3,000

volumes, plus 15 volumes for each student over 100. For schools with fewer

than 100 students, it recommends a delivery service from a district resource

centre to provide students with the same volume and variety of titles as

students in larger schools.

Algonquin College recently completed a study entitled A Comparative Look at

Ontario Community College Resource Centres. This study indicates that the

average annual expenditure of community colleges for materials (both print and

non-print) is $21.93 per full-time student. The average number of b6oks

available per full-time student is 11.6 and periodical subscriptions is .15.

OPINION OF CSC AND CONTRACT STAFF

The management, supervisory and teaching staff at the regional offices and the

institutions were asked to comment on the current level of resources provided

by the library in support of the eduation and training programs, and to provide

their opinion as to how library services could better support the E&T Program.

Following is a summary of their comments, by region.

Atlantic Region

At Westmorland all inmates are required to visit the library twice a week. It

is the staff's perception that there has been a general increase in library use

as a result. The library at Dorchester is relatively inaccessible for E&T

purposes. As a result, educational materials are also kept in the

classroom/shop areas for reference purposes.

VIII.7

Quebec Region

Libraries are almost entirely useà for recreational purposes. Educational

reading materials are kept in the claSsroom/shop. Staff suggested that there

is a need to extend library hoùrs; instruct inmates on library usage; and

provide person-years for librarians.

Ontario Region

Accessability is a problem for the E&T programs as the libraries are generally

located near the living quarters. As a result, staff suggested that the

educational facility should maintain a small resource centre. They also

suggested that library hours be extended as inmates need access during week

nights and weekends'.

Prairies

Staff in some institutions indicated that the libraries are not located near the E&T facilities and the hours of operation do not coincide with school

hours. They also suggested that the libraries should maintain more career

oriented material.

Interviews indicated that the current level of staffing is insufficient to meet

the inmates' needs for education and training purposes.

Pacific

Currently, the Educational facilities maintain resource centres in addition to

the central institution library because the Library itself does not adequately

support the Educational/Vocational programs.

It was generally felt that staffing and book collections need improvement.

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VIII.8

RECOMMENDATIONS

We recommend the current standards incorporated into CD 500-3-01.1 be supplemented with the following provisions:

• If the institutional library is not located near the school, a satellite library should be established within the educational facilities to serve as a resource centre for E&T needs.

• Each region should have a professional librarian to coordinate library services in the region and each institutional library should have a library technician or a librarian.

• The librarian should train inmates to handle basic library functions (i.e., loan books) during hours when a professional resource person is not available.

• Librarians should provide regular seminars for the staff and inmates on basic library usage and familiarization.

• Reading material at a basic literacy level should be maintained at all institutions.

• The funding for the print collection of the library should be based on the total inmate population of the institution. An appropriate guide would be the level of funding provided in a secondary school library. (Currently, this mnount is $15 per student per year.)

• The space available for libraries should be .5 square metres per inmate. (This standard would apply only to new or newly renovated libraries.

• Each lilirary should strive for a basic print collection of twenty volumes per inmate.

In this chapter, we describe the current policies and practices with regard to

professional development and orientation for teachers; summarize the practices

of boards of education; detail the opinions of professionals in adult education

and education in correctional institutions and CSC staff; and recommend

standards for professional development and orientation of CSC and contract

teachers.

BACKGROUND

Ongoing professional development is of particular importance in the field of

education. Teachers and administrators must remain current in teaching

practices and philosophies in order to be effective in the classroom. The

concern for ongoing professional development is a major issue during the

collective bargaining process between teachers and their respective ministries

or boards of education. Typically, teachers in the elementary and secondary

programs participate in seven to twelve paid non—instructional days per year.

These days are used either for professional development or administrative

duties.

11 IX.1

IX - - STANDARDS FOR PROFESSIONAL DEVELOPMENT AND ORIENTATION OF TEACHERS

I -

t

Similarly, orientation is a critical factor in ensuring that a new teacher is

able to be effective in the teaching environment as quickly as possible. New

teachers must become oriented to the general policies and procedures of the

organization and the specific practices of the actual environment in which they

work before they can become fully functional members of the team.

CSC normally provides an orientation program of up to five days for all new

employees in indeterminate positions. This orientation is normally given at

the Regional Staff Colleges and includes a review of pertinent policies and

procedures, and special security requirements in dealing with inmates. The

program is of a general nature, providing the same information to all employees

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IX.2

regardless of their function. (It should be noted that this orientation

program may be changed as a reault'of recent reductions in the Staff Training

and DLvelopment budget.)

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In addition, CSC employees may take special courses which are recommended by

their supervisors during the annual performance appraisal process. The nature

of such courses is determined through consultation between the supervisor and

the employee and is intended to improve on-the-job effectiveness. It is CSC

policy that all employees receive five days of training annually. (This policy

is also currently under review as a result of the recent reductions in the

Staff Training and Development budget.)

Orientation for contract teachers varies from institution to institution. In

most cases the contract teacher receives an orientation course ranging from

several hours to one day. The primary focus of these courses is to thform the

teachers of the special security requirements of the institution.

The amount of professional development time available to contract teachers is

determined by the contracting agencies' policies and the respective collective

agreement.

Regardless of the stated policies and contractual commitments, professional

development time for teachers is adversely affected by the institutions'

requirements to maintain a rigid class schedule. Inmates must attend classes

for a set number of hours every weekday; therefore, teachers absent on prof es-

sional development normally must be replaced in the classroom.

LITERATURE REVIEW

The Correctional Standards and Accreditation developed by the Canadian

Association for the Prevention of Crime have recommended the following

standards for professional development and orientation:

(

1

professional development should be in compliance with legislation and collective agreements

all new employees should complete an orientation and training program

the orientation'and training program should be relevant to their jobs

professional development needs should be formally identified in the performance appraisal. 1

The Manual of Standards for Adult Correctional Institutions developed by the

American Correctional Association specifies that:

all new employees should receive forty hours of orien-tation prior to commencement of duties

Employees who work in direct and continuing contact with inmates e.g., educational and vocational training: instructors, counselling personnel, recreation staff, and line correctional officers require additional training in interpersonal relationships, group dynamics and inmate life styles. Such employees should receive a total of 160 hours of training in their first year of employement and 80 hours of training in each subsequent year. 2

In A Review of Pentitentiar Education and Traininl: Phase I Re.ort to

Reviewers, it was observed that:

At present, there are no training programs in operation which prepare staff for the special task of working in correctional education. . . . Training for correctional education must be regarded as having important differences from training for non-correctional education. Recent research shows that prison inmates exhibit very different

1 Correctional Standards and Accreditation, Canadian Association for the Prevention of Crime. (5.01.00, 5.01.09, 5.01.09, 5.01.22)

2 Manual of Standards for Adult Correctional Institutions, American Correctional Association, pg. 17, 18.

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characteristics and personality patterns from ordinary students. The most successful correctional education programs to date have bàsed their approach on the premise that important differences exist between inmate students and non-inmate students. 1

It is implied from these statements that professional development programs for

teachers in CSC should focus on the special environmental factors experienced

in a correctional institution.

At the CSC National Meeting of Administrators (E&T) in March 1983 it was con-

cluded that there is a need for a comprehensive staff training program within

the Education and Training Division.

EXTERNAL OPINION

According to the Ontario Ministry of Education, each teacher is allocated nine

days per year for professional development. Each school board provides extra

time, if funds are available.

At Maplehurst Institution in the province of Ontario, teachers may take up to

nine days for professional development. At Lakeside Correctional Centre, also

an Ontario correctional institution, professional development is included in

the contract with the Community College and averages one month per year.

Teachers who are not associated with the Community College are not entitled to

any paid professional development time.

Professional development is considered essential in all teaching environments,

but is all the more necessary in the unique and challenging institutional

setting. It was firmly emphasized by Mr. Ray Silver, principal at the Calgary

1 A Review of Penitentiary Education and Training: Phase I Report to Reviewers, D.K. Griffin, CSC E&T Division Chief Elementary & Secondary program.

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IX.5 11,

Correctional Centre, that all teachers and administrators in correctional

education should strongly support participation and exchanges in professional

associations such as the Alberta Correctional Education Association. This type

of forum provides opportunities to exChange and discuss approaches and

philosophy of education in corrections.

OPINION OF CSC AND CONTRACT STAFF

The management, supervisory and teaching (both contract and CSC-employed) staff

at the regional offices and the institutions were asked to comment on the

current provisions for professional development and orientation for teachers

and to provide their opinion as to the appropriate level. Following is a

synopsis of their opinion, by region.

Atlantic Region

A regional conference for institutional educators is presently being organized

to provide the teachers with an opportunity to exchange views and to gain

insights on teaching in an institutional environment. It is felt that there

should be more cooperation with the contracting agencies in terms of providing

professional development.

It is also strongly recommended that CSC teachers and contract teachers receive

the same level of orientation and that this orientation period includes some

information on teaching adults in a correctional environment.

At Dorchester, a "buddy system" has been implemented to assist new teachers in

becoming familiar with the institution. This system pairs new teachers with an

experienced teacher for a two to three week period and has proven to be very

helpful to the new teachers.

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IX.6

Quebec Region

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Within some institutions, CSC staff have created regular opportunities for

professional development by arranging'in-house seminars and exchanges.

Orientation and professional development for contract staff is minimal largely

because there is such a high turnover of contract staff. Staff provided under

the contract with SERADEP are not paid for professional development.

I

There is a significant rift between contract and CSC- empoloyed teachers at

some institutions. This is attributed to the differing conditions of

employment and the limited opportunities to ekchange views and perspectives.

Ontario Region

As in the Atlantic Region, a regional annual conference'is held for all

educators in the CSC institutions. Some institutions also have staff meetings

to discuss issues and concerns relevant to their environment. These meetings,

often are not attended by contract staff who either have not been invited or do

not feel that it is appropriate to attend.

It is felt that the contract teachers who are going to be at the institution

for an extended period of time (i.e., one year or more) should have the same

orientation as CSC-employed teachers, and that supply teachers should be

provided with some orientation to the institutional environment.

Prairies Region

Contract staff receive a varied orientation, depending on the institution and

the time available to provide the orientation. On the other hand, contract

staff tend to have better professional development provisions than do CSC

staff. Professional development time is often difficult to arrange as there is

a lack of replacement staff and classes must continue.

I .

There is an annual conference for educational personnel in the provincial and

federal systems to discuss current issues and developments in education.

It was recommended that the E&T program should include some orientation for all new staff, whether CSC-employed or contract, on issues related to education

in the prison environment.

Pacific Region

It was strongly felt that there should be more interaction among educators in

institutions. It was suggested that workshops and half day seminars would be

an appropriate forum for discussing the problems inherent in teaching in

institutions and exchanging perspectives.

Professional development currently is restricted by funding and the resulting

lack of replacement staff.

ANALYSIS AND RECOMMENDATIONS

Based on the current CSC policies, the standards recommended by the Canadian

Association for the Prevention of Crime and the American Correctional

Association, and the opinions expressed by experts in the fields of adult

education and education in institutions, the following recommendations are made

for professional development and orientation of teachers:

IX.7

• . There should be a minimum of seven days per year allocated for professional development for CSC employed teachers. Two of these days should be committed to regional workshops or conferences. The other five days should be allocated to special courses, conferences and workshops relevant to teaching in the fields of adult education or education in correctional institutions.

• Any requirements for training which may be identified by the supervisor during the annual performance appraisal should be in addition to the seven professional development - days. Training to meet these performance related issues should not exceed five days.

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11 ( • _CSC and contract'educational staff should be given the same

orientation program pÈovided to all CSC staff. An additional day should. bè .added to the program to address specific issues related to teaching in an institutional environment.

• Conferences and/or workshops should be held regionally and nationally to allow educators from federal and provincial institutions to exchange ideas and discuss issues of common concern.

• The Education and Training Program should institute the buddy system for new employees, both CSC and contract, to allow for an initial familiarization period to the institu-tion. Approximately 2 weeks should be allowed for this initial familiarization.

• Contract staff should be required to attend all staff meetings at the institutions and should, wherever possible, be integrated into the system.

• Replacement teachers should be available for the days when - regular teachers are away on professional development.

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APPENDIX A

DOCUMENTS REVIEWED

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1. Cost of Maintaining Offenders. Willsher, R. CSC, 1982.

2. National Meeting of Administrators (Education and Training). Minutes.

CSC/ETE, March 1983 and March 1985.

4. Program Evaluation Plan: 1981-82 to 1985-86. CSC, n.d. t .

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APPENDIX A

CORREdTIONAL SERVICE CANADA

EDUCATiON AND TRAINING RESOURCE STANDARDS

DOCUMENTS REVIEWED

3. Review of Penitentiary Education and Training: Phase I.

•Report to Reviewers.

Griffin, D.K. CSC/ETE, August 1978.

5. Report on Vocational Education. Baksh, M.K. CSC, Nov. 1978.

6. Standards Program: Sample Policy and Procedures: Chapters 20 and 21. n.d.

7. Program Interface .Study: Occupational Development/Industries/Socialization.

Management Consulting Services, Feb. 1978 (Project 97).

8. Report on Institutional Library Service. Nason, C.M. Ottawa, March 1981 (80/81-259).

9. Report tO the Solicitor General of Canada concerning the Educational Program of the Canadian Correction System.

Ontario Institute for Studies in Education. Phase II, Feb. 1978 - Feb. 1979.

10. Manual of Standards for Adult Correctional Institutions. United States. American Correctional Association Commission on Accreditation for Corrections. 1977.

11. Academic and Vocational Education (Standards). n.d. United States. American Correctional Association.

•

APPENDIX A (Cont'd)

12. Comments and Recommendations'on the Draft Prison Standards Prepared by the Canadian Association 'for the Prevention of Crime.

Canadian Association for Adult Education. Toronto, March 1983. ,

13. Standards and Accreditation Project: Prison Standards. Draft. Canadian Association for the Prevention of Crime, "Ottawa, October 1982.

14. Evaluation Framework for the Education and Training Program. Peat, Marwick and Partners September 1983.

A.2

15. CSC File #6060-4 e- Inmate EmploYment Teacher.

16. CSC File #6060-7 - Inmate Employment Standards.

- Education .and Training - General -

- Education and Training - General -

17. CSC File #6068-1 - Inmate Employment - Education and Training - Institutional Library Services - General.

18. Standards for Correctional Institution Libraries of the Canadian Corrections Service.

Frank White, July 1976.

• 19. Review of Institutional Library Services. Peat, Marwick and Partners, March 1984.

20. Case Management Manual.

21. Briefing Notes for Director General, Education, Training and Employment - Provision of Educational Programs for Inmates Through Contracted Services vs. Permanent Staff.

March 1985.

22. Solicitor General Annual Report. 1983-84.

23. Correctional Service Canada 1985-86 Estimates, Part III, Expenditure Plan. •

24. Education and Training Division Statistics - Quarterly Report, December 1984.

25. Collective Agreement - Education Group.

26. Commissioner's Directives - Education, Training and Development.

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APPENDIX A (Cont'd)

27. Divisional Instructions - Education, Training and Employment.

28. Report of the Advisory Committee . to the Solicitor General of Canada on the Management of Correctional Institutions.

November 1984.

29. Report to the Project Advisory Group (Education and Training) from Sub-Committee on Methods of Delivery. July 1981.

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APPENDIX B

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TELEPHONE INTERVIEWS

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H. Mansfield Director Security CSC - NHQ

R. Hilton Director Staff Training Delivery CSC - NHQ

George Ambury Adult Education Queen's University Kingston, Ontario

Ray Walton Director Vocational Program . Kwantlen College Surrey, B.C.

Nick Rubidge Ministry of Education Vocational Program Branch Victoria, B.C.

Fred Baker School Principal Maplehurst Institution Milton, Ontario

Dr. Allen Thomas Chairman Department of Adult Education Ontario Institute for Studies in Education

Toronto, Ontario

Keith Fletcher Chief Officer Ontario Ministry of Education Grant Services Toronto, Ontario

Roger Brule Regional Superintendent Ontario Ministry of Education Ottawa, Ontario

CORRECTIONAL SERVICE CANADA

EDUCATION AND TRAINING RESOURCES STANDARDS

TELEPHONE INTERVIEWS

Henry Hoekema Professor English Department Simon Fraser University Burnaby, B.C.

Bill Bird Assistant Superintendent of Finance Ottawa Board of Education Ottawa, Ontario -

Don Ellen Project Coordinator Lakeside Correctional Centre Vancouver, B.C.

Major Sapp Director of Individual Traning Branch Department of National Defence Ottawa, Ontario

John Slatterly Kwantlen College Adult Basic Education Surrey, B.C.

Mr. J. Lockerbie Superintendent of Education Frontenac Board of Education Kingston, Ontario

Ms. Jane Sareda Associate Director, Grants Alberta Ministry of Education Calgary, Alberta

John Taylor Director Strathmore Youth Development Centre Strathmore, Alberta

Ray Silver Principal Bull River Secondary School Calgary Correctional Centre

- Calgary, Alberta

Richard Douglas Department Head, Mechanical Department Algonquin College Ottawa, Ontario

B.2

Janet Murphy President Subject Library Council Merivale High School Carleton Board of Education Ottawa, Ontario

Donna Lindo Library Consultant Ottawa Board of Education

Linda Stillborn Assistant Librarian Algonquin College Ottawa, Ontario

Geraldine Gilliss Director of Information Canada Teachers Federation Ottawa, Ontario

PERSONAL INTERVIEWS

1 ,

1 APPENDIX C

1

CORRECTIONAL SERVICE CANADA

EDUCATION AND TRAINING RESOURCES STANDARDS

PERSONAL INTERVIEWS

D. Griffin Chief Elementary and Secondary Education and Training CSC - NHQ

M. Heaney Project Officer Education and Training CSC - NHQ

Richard Harvey Senior Security Project Manager Operational Security CSC - NHQ

V.S. Sandhu Ontario Regional Manager Education and Training

J. Selkirk Ontario Assistant Regional Manager

Education and Training

J.K. Holder Assistant Warden Collins Bay Education and Training

W. Gladu Supervisor of Academic Education

Collins Bay

D.S. Hornbeek Supervisor of Vocational Education

Collins Bay

M. Beaubien CSC Instructor - Vocational Collins Bay

F. Paquin Instructor - Vocational Collins Bay

P. Smith Contract Teacher - Academic Collins Bay

L. Wilde Clerk Education and Training Collins Bay

K. Baksh Coordinator, Academic and Vocational Training

Prison for Women

G. Rasmussen Contract Teacher - Academic Prison for Women

R. Price Frontenac Board of Education Correctional Education Services Division

F. Glasgow Atlantic Regional Manager Education and Training

J.G. Bourque Coordinator of Education and Employment

Westmorland Institution

I. Hamilton Assistant Warden Education and Training

Dorchester Penitentiary

Rheal Beliveau Correctional Services Education and Training Clerk New Brunswick Community College

M. Landry Contract Teacher - Academic Dorchester Penitentiary

J. Rebek CSC Instructor - Vocational Prison for Women

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R. Cooke Contract Teacher - Vocational Westmorland Institution

A. Sloane/B. Millican Contract Teachers - Academic .

Westmorland Institution

B. Snowdon Coordinator Correctional Services Contract Program

New Brunswick Community College

G. Bellinger Contract Teacher - Vocational Dorchester Penitentiary

N. Wasyliw Assistant Warden Education and Training

Saskatchewan Penitentiary

K. Sampson Supervisor Education and Training Saskatchewan Penitentiary

R. Pilkington Contract Teacher - Academic Saskatchewan Penitentiary

R. Palmer Assistant Warden Education and Training Stony Mountain Penitentiary

L. Paul CSC Teacher - Vocational Stony Mountain Penitentiary

J. Fournier CSC Teacher - Vocational Saskatchewan Penitentiary

L. MacMillan Prairies Regional Manager Education and Training

K. Kulbaba Contract Teacher - Academic Stony Mountain Penitentiary

G. Westerhof Inmate Employment and Pay Administration Clerk Stony Mountain Penitentiary

Colin Crutch Assistant Warden Education and Training • Kent Maximum Security Institution

Robert Bennett CSC Teacher Kent Maximum Security Institution

Wayne Knights Contract Teacher Kent Maximum Security Institution'

Sue Weaver Clerk Kent Maximum Securit Institution

- Peter Merrett Assistant Warden Education and Training Matsqui Medium Security Institution

Bill Robertshaw Supervisor of Vocational Education

Matsqui Medium Security Institution

Pat Jefferies CSC Teacher Matsqui Medium Security Institution

Rob Melle Contract Teacher Matsqui Medium Security Institution

Lou Lambert Clerk Matsqui Medium Security Institution

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1 II Mr. Morice Kline

f Project Manager 11 f. Standards and Accreditation .

• Project Canadian Association for the , 1

II I Prevention of Crime .

• Mr. Larry Elman ,- • t Inmate Resources Il

. . 1 1 . CSC - NHQ -

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11 1 APPENDIX F

DETAILED BREAKDOWN OF TEACHING COSTS

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APPENDIX F --.---- ---

SALARIES AND BENEFITS

OF —

CSC TEACHERS

1984 — 85

A B C D E Total

Average Cost of Actual Salary & Daily Teachers

. No. of Average Benefits Cost CSC

Region Teachers ( 1 ) Salary ( 1 ) (B x 119%) ( 2 ) (C — 217) ( 3 ) (A x C)

Atlantic 10 $32,793 $39,024 $180 $ 390,240

Quebec 72 33,375 39,716 183 . 2,859,552

Ontario 44 34,500 41,055 189 ' 1 9 806 3 420 •

• . . Prairies 16 31,646 37,659 174 . 602,544

..

Pacific 23 40,750 48,493 223 . 1 » 115 , 339 —

165 $41,055( 4)$6,774,095

, (1) Source CSC E&T Employee Salary List — April 11, 1985. (2) Treasury Board Values the Benefits at 19% of the Employee's Salary. (3) 260 working days/yr. — 43 days = 217 days (less 20 days vacation, 11 statutory, 7 sick » 5 special). (4) Total of E Total of A.

IMO OM MI MU MO OM Me IMP MO 1111111 Oil OW III MI MD ill11

UN_ el Oa emEND. gee ten aue me eiii lie ale

CALCULATIONS FOR AVERAGE DAILY COST OF CONTRACT TEACHERS

Average • Value of Annual

No. of Contract Salaries and No. of Days Cost Per Average

Region Teachers Value ( 1). Benefits ( 1 ) Covered Teacher Daily Cost

Atlantic N.S. Dept. of Ed. 11 $ 587,111 $ 408,419 240 $37,129 $155

N.B. Min. of Ed. 14 580,356 518,250 2402 37,037 172

N.B. Min of Ed. 2 75,342 68,630 240 34,315 143 -

Average $36,160 $156

19221-)ec. SERADEP 38 1,975,000 1,382,500-177,500 -234 36,382-46,776 155-200

Ontario .

Frontenac Bd. 25 1,384,475 1,028;465 2503 41,139 165

Loyalist College 8 533,548 350,156 250 43,770 175 - . ,

Average V 42,455 - 170

Prairies . Prov. of Alta 8.5 453,721 335,720 207 39,496 • 191

Prov. of Lita 2.0 107,417 77,806 • (38,903)

Natonum 6.0 292,032 264,880 250 • 44,147 177

Frontier 1 67,200 45,675 - 240 , 45,675 190

- Winnipeg 3 203,550 177,000 240 59,000 246 -

Average 47,080 201

Pacific Fraser Valley 174 640,000 448-000-576,0005 • 2396 26,353-33,8827 142

1 Information obtained from original (not revised contracts). 2 12 month period covered was calculated to be 52 week - 2 weeks statutory holidays - 2 weeks when classrooms are

closed - 48 weeks. 3 52 week peribd was interpreted to mean 50 teaching weeks.

• 4 It has been assumed that this contract covers all 17 contritct teachers in the Pacific Region. 5 Teaching costs represent 70-90% of total contract value - this range has been provided. 6 No. of days were not provided in the contract so an overall average of. other contracts was used. 7 As the upper figure - 90% of total contract value is the more realistic figure, it has been used.

EXHIBIT VI-3 . —....-._

APPROXIMATED AVERAGE TEACHING COSTS PER INMATE PER YEAR BY REGION AND

BY PROGRAM ELEMENT

Program Elements

Basic Education (to Grade V)

Upgrading Courses (Elementary-Secondary)

Academic (Secondary School)

Vocational (Secondary School)

Other Vocational (for Certification)

Community College

University

Average Cost of a student

Recommended Ratios Atlantic Quebec Ontario Praries Pacific Average

6-1 $6,242 10,760-11,359 6,894 6,949 6,514-7,047 7,472-7,698

8-1 4,682 8,070- 8,519 5,171. 5,212 4,885-5,285 5,604-5,774

10-1 3,745 6,456- 6,815 4,136 4,169 3,908-4,228 4,483-4619

10-1 3,745 6,456- 6,815 4,136 4,169 3,908-4,228 . '4,483-4,619

10-1 3,745 6,456- 6,815 4,136 4,169 3,908:4,228 4,483-4,619

.•■•• 1■••

••••• .ffle 5,305-5,466

Average annual teaching costs of CSC teachers and contract teachers are depicted in detail in Appendix F.

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