Performance Plan

The goals, objectives and strategies presented in this section are consistent with the Ministry's vision of all British Columbians working together to make our province the safest place to live in Canada.

Brief descriptions are provided of key activities and initiatives the Ministry is undertaking to achieve its goals and objectives, and key performance measures are identified. For each performance measure, the most current available data are provided along with annual performance targets for the next three years.

There have been changes to some of the performance measures since publication of the Ministry of Public Safety and Solicitor General 2006/07 – 2008/09 Service Plan. Some measures have been discontinued either because they focused on internal operational matters with little public relevance, or because they were deemed inadequate for tracking progress toward goals and objectives. As well, new measures have been added as we continue our ongoing efforts to develop meaningful measures of the long-term client and societal outcomes and changes in conditions that indicate goal achievement. In some cases, these new measures are in early stages of development, requiring that data sources be finalized and baselines established.

It must be noted that measuring the performance of British Columbia's justice system is a complex enterprise. Long-term outcome measures, such as crime rates, victimization rates and recidivism rates for example, are generally affected by many different individual and socio-economic factors and are therefore not under the exclusive control of any one ministry. Rather, they are multifaceted outcomes involving all components of the justice system as well as many other aspects of government, such as health, education and social services, and factors that are external to government control.

Also, the performance measures identified here represent only a few critical aspects of performance. No single measure taken in isolation can reveal enough information to provide a reliable and accurate evaluation of the justice system. All measures should be considered together when assessing progress toward goals and objectives.

Performance Plan Summary Table

Goals, Objectives and Strategies

This section presents key objectives and strategies employed by the Ministry's core business areas to contribute to achievement of each of the goals identified.

Two high level performance measures are used to indicate progress toward achieving the goal of increased safety for individuals and communities throughout British Columbia: victimization rates and the percentage of offenders who do not re-offend for two years following Corrections supervision. These measures are presented at the goal level rather than as linked to individual objectives because they are high level outcomes subject to a wide variety of influences.

The Ministry will track victimization rates as an indicator of the safety of individuals in their homes and communities. Self-report measures of criminal victimization have become widely used social indicators. Data from victim surveys include criminal victimization events that were not reported to the police as well as those that were, and may therefore be more accurate indicators of the volume, and changes in the volume, of crime than are crime rates based on police records.³

To indicate the overall effectiveness of the justice system in deterring and rehabilitating offenders, the Ministry tracks the percentage of adult offenders who do not re-offend for two years following a finding of guilt and sentencing by the courts. However, criminal behaviour is a highly complex phenomenon involving many different individual and socio-economic factors, and changes in rates of re-offending are not directly attributable to the activities of any one component of the criminal justice system.

A key objective of the Ministry is to ensure that offenders are supervised and managed based on their risk to re-offend. To effectively and efficiently supervise offenders while they are under court orders, and to achieve reductions in re-offending behaviour over the long term, it is critical to understand the risk an offender poses to society and how that risk can best be addressed. More than 20 years of correctional research have resulted in the development of standardized, validated risk/needs assessment tools that can reliably provide this information.

A significant body of correctional research has confirmed that offender case management and rehabilitative programming can mitigate harm, interrupt offending cycles, and reduce re-offending behaviour. Corrections assesses sentenced offenders to determine their risk to re-offend and their rehabilitative needs. Case management plans are developed based on these assessments and serve to guide program interventions on an individual basis. Corrections develops and delivers correctional (core) programming in accordance with research.⁴ Core programs are designed to address risk factors known to contribute to criminality (e.g., substance abuse) and focus on the acquisition of cognitive skills necessary to bring about behavioural change. They are delivered by trained staff, and through contracted services, to offenders who pose higher risks for re-offending. Core programs are available in adult custody facilities and for offenders serving community sentences.

Adequate levels of police services across the province are required to protect citizens and communities from crime and to respond to the changing nature of crime. Key strategies to meet this objective are to restructure police financing, support the integration of existing police services, increase the number of officers in the Provincial Police Service, and review the Police Act and the Provincial Standards for Municipal Police Departments in British Columbia. These initiatives will ensure that police services are delivered in the most effective and efficient way possible, avoiding duplication and yielding economies of scale in protecting the public.

Another strategy is to implement new policing initiatives to increase the Ministry's capacity in such areas as supporting organized crime prosecutions, responding to high-tech crime and combating Internet-based child exploitation.

The Ministry also continues efforts to negotiate new Community Tripartite (policing) Agreements with First Nations and the federal government.⁵ Additional agreements are required to ensure that First Nations communities have police service levels equivalent to those of similar non-First Nations communities. Under these agreements, First Nations receive dedicated police members to work with their communities. Best efforts are made for these positions to be staffed by Aboriginal officers.

The Ministry tracks the number of Provincial Police Service members as an indicator of Provincial Force police strength.

The Ministry also tracks the number of First Nations Policing Program members to indicate First Nations police strength in the province.

The Ministry continues implementation of the Police Records Information Management Environment, an online data-sharing system that provides up-to-the-minute information about criminals and crimes, improving law enforcement across the province. The Police Records Information Management Environment is a major component of the provincial law enforcement strategy as it provides an integrated information management system with instant access to a database including criminal case records, images (photos, mug shots, documents and fingerprints), investigation notes, electronic messages, calendar events and dangerous goods data. A common records management system for all police agencies will significantly enhance the safety of B.C. citizens and police officers.

As of January 1, 2007, the Police Records Information Management Environment was being used by 58 per cent of all officers in the province. These officers provide services to 54 per cent of the provincial population. The system will be fully implemented for use by all officers throughout the province by December 2007.

Another key objective is the maintenance of protective programs to enhance public safety, such as the Protection Order Registry, a confidential database containing all civil and criminal protection orders issued in British Columbia.⁶ The intent of the registry is to contribute to the reduction of violence against vulnerable adults, youth and children through support of the enforcement of civil and criminal protection orders.

Conducting criminal record checks on individuals who work with children is another strategy to protect the vulnerable. Criminal record checks are conducted to help protect children from physical and sexual abuse. They are made mandatory under the Criminal Records Review Act for anyone who works with children or who has unsupervised access to children in the ordinary course of employment, or in the practice of an occupation, and who is employed by, licensed by or receives operating funds from the provincial government.

In preventing crime and victimization, the Ministry promotes the Crime Prevention through Social Development approach, going beyond traditional responses to crime that focus on sentencing and incarceration by focusing instead on eliminating the root causes of crime.

Research indicates that communities can become safer if they actively engage in programs designed to reduce the incidence of crime and repair the harm caused by criminal behaviour. The Ministry therefore continues to provide funding and support to community-based crime prevention and restorative justice programs, and to work with stakeholders to promote awareness of and collaborative approaches to community safety and crime prevention.

Victims of crime require a range of supports and services as they participate in the justice system. Key strategies designed to reduce the impact of crime include: offering information, referrals and practical support to victims of crime and their families through victim service programs; administering the Crime Victim Assistance Act and Program to ensure that victims have access to financial assistance and other benefits; notifying impacted victims of end-of-sentence release of identified offenders; providing training and support to victim service workers; and increasing public awareness of the services available to victims of crime.

This measure indicates efficiency in administration of the Crime Victim Assistance Act, providing victims with access to financial assistance and other benefits.

A significant objective of the Ministry is reduced harm caused by disasters and emergencies. Key strategies to achieve this objective include: providing leadership to the provincial emergency structure during emergencies and disasters; improving capacity to prepare for, respond to and recover from emergencies and disasters, including implementation of recommendations resulting from the Firestorm 2003 Provincial Review; and assisting local governments and First Nations communities in preparing for emergencies and disasters through technical support, training and education.

The Ministry tracks the readiness of the provincial emergency management structure by monitoring the number of days of emergency preparedness training undertaken by the approximately 120 members of the Temporary Emergency Assignment Management System.

An important objective of the Ministry is the promotion of fire prevention, life safety and property protection programs through the Office of the Fire Commissioner. Key to successfully achieving this objective is the development and maintenance of strong working relationships with local governments, fire service organizations and other jurisdictions. The Office continues to strengthen its partnership relations with key stakeholder groups and enhance the support it provides to fire departments, local governments and the public.

To indicate success in achieving this objective, the Ministry is undertaking monitoring stakeholder satisfaction with the services and support provided by the Office of the Fire Commissioner.⁷ An initial survey of stakeholder satisfaction will be conducted in the spring of 2007, and annually thereafter.

The B.C. Coroners Service investigates all sudden and unexpected, unexplained or unattended deaths, makes recommendations to improve public safety through preventative measures, and helps people deal with the trauma of death through provision of timely and accurate information. To most effectively improve public safety and assist the public, coroners' cases must be completed in a timely manner and be based on current and consistent information. Key strategies include: hiring new staff to address increasing caseload volumes, enhancing reporting structures, redesigning the Coroners Case Management System; providing ongoing training to all coroners; providing coroners with electronic access to field investigation protocols; and conducting a feasibility study on development of a Centre for Excellence for Forensic Sciences.

The Ministry tracks the percentage of Coroners' files completed within an average of 4.5 months to indicate the timeliness of investigations. The time frame of an average of 4.5 months for file completion takes into account the time required to receive autopsy reports and reports that may be required from other agencies, such as police, the Workers' Compensation Board and the Transportation Board of Canada. The average time to complete cases can also be affected when criminal charges are pending, when cases go to inquest, and when cases require interviews with witnesses or consultations with medical experts.

The Ministry is working in partnership with ICBC and with key stakeholders, including the Ministry of Transportation and the RCMP, to develop an action plan that focuses road safety resources most efficiently in order to reduce serious injuries and fatalities and thereby improve road safety in B.C.

The Ministry also continues to work with ICBC to implement an Enhanced Road Safety Enforcement Initiative across the province. This includes initiatives such as Integrated Road Safety Units, the Intersection Safety Camera Program and Automatic Licence Plate Recognition.

A key measure of road user safety is the rate of traffic fatalities and injuries in the province per 100,000 population. As well as resulting in loss of life, motor vehicle collisions have a significant impact on society in terms of quality of life, affecting income and productivity, incurring legal and court costs, and placing demands on medical services, insurance, police and municipal services.

Reduced incidence of illegal gambling is an important objective of the Ministry and a key strategy is to fully implement the Illegal Gambling Enforcement Strategy, including:

• reporting out on the extent of illegal gambling activity;
• operationalizing a decision-making framework and documenting the prioritization process for investigations;
• working with law enforcement agencies to develop and implement strategies to reduce money laundering and loan sharking in commercial gaming venues;
• enhancing working relationships and working collaboratively with:
• Liquor Control and Licensing and others to identify illegal gambling activity in liquor establishments;
• RCMP and other law enforcement agencies to better identify and prosecute gaming offenders;
• Ministry of Attorney General to increase the number of cases that proceed to trial; and,
• improving the quality, completeness and descriptive nature of gaming investigation statistics.

The Ministry is developing a methodology for tracking the incidence of illegal gambling to indicate the success of the Illegal Gambling Strategy. Data sources for this measure are currently being established and it is anticipated that the Ministry will implement a new monitoring and reporting system in fiscal year 2007/08.

It is in the public interest that gaming be conducted within a strong regulatory framework that balances economic activity with the responsible management and delivery of gaming. Key strategies include:

• developing and implementing a policy framework for Internet gaming;
• evaluating B.C. Lottery Corporation's quality assurance practices for in-house testing of gaming equipment to ensure compliance with standards;
• continuing to work within the existing audit and compliance framework to enhance compliance rates among community organizations;
• developing and implementing a backstretch improvement strategy for horse racing personnel, in cooperation with industry stakeholders; and,
• further developing public information policy to enhance transparency and accountability.

The Ministry tracks the number of audited gaming funds recipients who are found to be in compliance. Audits of organizations receiving gaming funds promote voluntary compliance, the proper use of gaming proceeds, and the financial accountability of these organizations.

The Responsible Gambling Strategy is designed to expand on current programs and services to reduce the harmful impacts of excessive gambling and encourage responsible gambling practices and healthy choices. Key strategies include:

• designing and implementing an audit program for problem gambling contracted service providers;
• continuing to coordinate and develop new initiatives with B.C. Lottery Corporation, local governments, service providers and major stakeholders, through the Partnership for Responsible Gambling;
• increasing public awareness of responsible gambling initiatives and treatment services available to those with a gambling problem, including developing and implementing the second phase of a school-based educational resource; and,
• working collaboratively with Aboriginal groups to increase awareness of problem gambling programs and services.

Liquor industry members have a legal responsibility to minimize harm to their customers and to any individual or community affected by the consumption of liquor in their establishments. Major strategies designed to achieve the objective of improved industry cooperation to reduce problems associated with liquor misuse include: creating tools to identify high-risk establishments in consultation with local governments and police; strengthening server training components related to over-service and avoidance of service to minors; and streamlining enforcement processes. The Ministry supports key public safety issues by targeting resources on high-risk establishments and focusing inspections and investigations on service to minors, over-service, overcrowding and illicit alcohol.

The Ministry tracks the percentage of inspected or investigated liquor licensees who are found to be in compliance. Increased voluntary compliance indicates the level at which licensees understand and are willing to cooperate with the liquor regulatory framework. An increase in voluntary compliance in such areas as over-service and avoidance of service to minors may also indicate that liquor misuse is decreasing, leading to increased public safety for British Columbians.

The third Ministry goal is supported by all of the objectives and strategies identified above. Each objective and strategy contributes to the effectiveness of British Columbia's justice and regulatory systems, and public confidence has been identified as a key indicator of that effectiveness.

Public confidence in the justice system is a key indicator of its effectiveness. The level of public confidence in the justice system is reported, by province, every five years by Statistics Canada as part of a general social survey on the activities and perceptions of Canadians.

The Ministry is interested in more current and frequent public confidence data and is exploring additional data sources in partnership with the Ministry of Attorney General.

The Ministry will also determine and track the percentage of British Columbians who have confidence in the regulation and management of gaming. Public confidence in the regulation and management of gaming indicates that the industry is operating in compliance with provincial legislation and policies, and that the Ministry's activities effectively meet citizens' expectations for the gaming industry.

The Ministry has developed a framework of key measures for assessing client satisfaction with gaming policies and programs. Data for these measures are being collected by the Ministry through a survey of British Columbians being conducted over a three-month period from December 2006 through February 2007. Results from the survey will be used to establish the baseline of overall public confidence in the regulation and management of gaming in British Columbia.