Business Model Review Recommendations
1. The Department continue to accord the highest priority to the addressal of the four key policy issues of:
(a) the balance between secure containment and the rehabilitation and progression of offenders to open custody and supervised release into the community (to be addressed in conjunction with the Department of Justice and Attorney-General);
(b) the consequences of the increasingly diverse and complex offender population, now characterised by significant proportions of offenders with mental, intellectual, psychological or psychiatric disabilities or disorders; with high dependencies on medication; and with the effects of ageing (to be addressed in conjunction with the Department of Health);
(c) the development, in consultation with Treasury, of a comprehensive resource model for the entire Department; and
(d) the provision, to community corrections, of additional capacity for program delivery, access to a wider range of programs, and greater flexibility in modes of program delivery.
2. A detailed examination of all delegations be undertaken, to ensure that decision making responsibilities are devolved to the maximum extent feasible and prudent, within an appropriate risk management framework which maintains community safety as a fundamental priority.
With respect to organisational structure, the review team recommends:
3. The organisational structure shown in Figure 6.4 and outlined in this chapter, be adopted as the new organisational structure for the Department of Corrective Services.
4. A new position of Deputy Director-General, Strategic and Corporate Services be established.
5. The existing position of Deputy Director-General be re-designated Deputy Director-General, Operations.
6. Four new directorates, of Strategic Policy and Services, Offender Assessment and Services, Offender Programs and Services, and Ministerial and Executive Services be established.
7. Each of the four new directorates be headed by Executive Directors.
With respect to corporate governance arrangements, the review team recommends:
8. The corporate governance committee structure, shown in Figure 7.1, and described in paragraphs 7.8 to 7.28 be adopted as the corporate governance arrangements for the Department of Corrective Services, with the memberships and functions as proposed by the review team.
9. Implementation of the new corporate governance arrangements proceed as quickly as possible.
10. Upon implementation of the new corporate governance arrangements, those meetings and conferences no longer required be discontinued
11. Proliferation of unnecessary meetings and conferences of senior managers across the state be prevented by the judicious use of video and/or teleconferencing.
With respect to performance management, the review team recommends:
12. Upon substantial completion of implementation of the changes emanating from this review, a strategic planning workshop of senior managers be conducted to set new directions for the Department and to reinforce and instil the cultural change currently taking place.
13. The PPB, in consultation with BoM, Directorates, centre and regional managers, develop, as appropriate, management reports which provide meaningful analysis of issues on the basis of trend where possible and report monthly.
14. The PPB undertake analysis of the performance measurement framework on an agency-wide basis to ensure consistency of measurement in line with changing executive management requirements and local resource capacity.
15. Subject to adoption of the proposed governance model, a review of the capacity requirements of the PPB be undertaken in consideration of the broader activities proposed for the Branch.
16. The Strategic Audit Plan include review of the Department's risk management framework together with, on a cyclical basis, agency-wide performance measurement and monitoring practices.
17. The PPB be redesignated the Strategic Planning and Performance Branch with continuing responsibility for planning, risk management and performance management and reporting, and that the Branch be relocated to the proposed Strategic Policy and Services Directorate.
With respect to the realignment and refocussing of the Custodial Corrections and Community Corrections Directorates, the review team recommends:
18. All custodial centres and facilities become the responsibility of the Custodial Corrections Directorate.
19. The supervision and rehabilitation of adult offenders on court and post-prison community based orders be the prime responsibility of the Community Corrections Directorate.
20. All custodial centres and facilities, both public and private, be managed, operated and monitored under a common set of performance standards and measures.
21. The operation of the WORC program be restructured with the WORC sites in western communities becoming permanent open custody centres, linked strategically to specific correctional centres.
22. The management of WORC sites be the responsibility of the correctional centre to which they were linked.
23. The oversight of State-wide policy and coordination for the WORC Program be the responsibility of the Custodial Corrections Directorate.
24. The phasing out and decommissioning of the WORC Program Headquarters at Wacol be accorded a high priority.
25. The greater use of parole and home detention, in lieu of release to work from custody, be encouraged, and facilitated, where necessary, by supported accommodation arrangements.
26. Subject to successful progress on the implementation of recommendation 25, the phasing out and decommissioning of the West Brisbane Community Corrections Centre be accorded a high priority.
27. The Helana Jones Community Corrections Centre for female offenders, and the women's camp at Warwick, be retained.
28. The placement of female offenders at the Numinbah Correctional Centre be discontinued, and a second Helana Jones type facility and/or a second women's camp, be established to provide replacement capacity.
29. The concept of a 'multi site/satellite' cluster configuration be introduced for selected custodial centres in the south-east corner of the state, with overall managerial responsibility for the cluster resting with the general manager of the host centre.
30. The Custodial Corrections and Community Corrections Directorates focus on 'core business', and have prime responsibility for the development of standards for:
- management and service, delivery and the monitoring of performance;
- the determination of specific operational policy and procedures;
- consistent with the strategic planning and the collaborative development of policies and models for resource allocation with other areas of the Department; and
- internal and external communication and representation on matters within the Directorates "core business" and service delivery responsibilities.
31. Those functions and responsibilities which are not integral to the "core business" of the Custodial Corrections and Community Corrections Directorates be reallocated to the appropriate areas elsewhere in the Department, together with the human and financial resources presently committed to them.
With respect to the consolidation of the intelligence and investigations functions, the review team recommends:
32. A new position of Director, Intelligence and Investigations, reporting to the Deputy Director-General, Operations, be established at the Detective Superintendent level, such position to be filled through an open merit selection process, involving a joint selection panel of QPS and DCS.
33. DCSIG and the CSIU report to the position of Director, Intelligence and Investigations.
34. The position of General Manager, DCSIG be redesignated as Assistant Director, DCSIG and be established at the Detective Inspector level, such position to be filled through an open merit selection process involving a joint selection panel of QPS and DCS.
With respect to the specialised workgroups comprising the OSSU, the review team recommends:
35. A modified OSSU become an organisational unit with the Custodial Corrections Directorate.
36. The position of officer-in-charge of the OSSU be redesignated from General Manger to Director, and report to the Executive Director, Custodial Corrections.
37. The modified OSSU be responsible for the following specialised workgroups: Courts' Services; State Coordinator, Dog Squads; Prisoner Escorts; Princess Alexandra Hospital Unit; and State Armoury.
38. In consultation with the appropriate court officers from the Department of Justice and Attorney General, the Director OSSU develop, for the approval of the Director-General, a new memorandum of understanding with the Department of Justice and Attorney-General for the utilisation of Corrective Services Courts' officers.
39. The Mobile Dog Squad be divided into separate units, with each of the separate units allocated to a State custodial centre in the Wacol precinct, reporting to the relevant General Manager.
40. A State Coordinator for the Dog Squads be appointed, reporting to the Director OSSU, and be responsible for:
- the development of consistent training and accreditation methodologies and assessments;
- the standardisation of equipment across the state;
- the establishment of a joint breeding and development program with the Queensland Police Service;
- the establishment of a formal arrangement with Australian Customs and/or QPS to access and use real drugs under controlled arrangements for use in training; and
- the establishment of strategic networks with other agencies including the Queensland Police Service (QPS), Australian Customs, and the Royal Australian Air Force (RAAF).
41. A State Training Officer for Dog Squads be appointed, to report to the State Coordinator and assist in the initial and ongoing training of both dogs and handlers.
42. The Prisoner Escort service remain a centralised support service for the south-east corner but that the Director, OSSU develop a plan for an improved management structure.
43. The Armourer develop a state-wide database of weapons and equipment and a full reconciliation of all listed items be undertaken as a matter of urgency.
44. The Director, OSSU, in conjunction with the Armourer, undertake:
(a) an audit of Custodial officers who are 'registered' as weapons users;
(b) a review, in conjunction with the Executive Director, Custodial Corrections, to determine those officers who should continue to be required users;
(c) the development of a proficiency regime of regular testing and training, in conjunction with the Queensland Police Service, for those custodial officers who are deemed necessary to be weapons proficient; and
(d) the development of an accurate register of these officers, which is maintained for currency.
45. The general transport services for the south-east corner of the State, including the refuse service to the Wacol precinct but excluding prisoner escorts, be put out to tender.
With respect to the creation of the new Strategic Policy and Services Directorate, the review team recommends:
46. The Strategic Policy and Services Directorate comprise the following organisational units:
- a Strategic Policy and Analysis Branch that has embedded within it appropriate staff from the former stand-alone Women's and Aboriginal and Torres Strait Islander policy units;
- a Research and Evaluation unit that has embedded within it appropriate staff from the former stand-alone Women's and Aboriginal and Torres Strait Islander policy units;
- a Strategic Planning and Performance Branch (that was relocated from the Corporate Services Directorate and redesignated);
- a Legislation Development Unit; and
- a Procedures Coordination Unit.
47. The new Directorate have a whole-of-Department research, development, analysis, evaluation, articulation and coordination responsibility for the Department's policy settings in response to Government priorities.
48. The Directorate have "lead agency" role in the Department for the development/amendment of legislation and for monitoring all justice portfolio related legislation that impacts upon the Department.
49. The Directorate have a "lead agency" role in the quality assurance process for the development of future procedures and operational standards.
With respect to new processes and delegations for sentence assessment and services, the review team recommends:
50. A new Offender Assessment and Services Directorate be established with the function of providing service and support to sentence management officers and General Managers in custodial centres.
51. The delegation for all offender management decision making be returned to the General Managers with the exception of:
- maximum Security Orders and Reviews;
- extension of section 38 Special Treatment Orders;
- Resettlement Leave of Absence Programs;
- the granting of remissions for prisoners serving more than 10 years; and
- the granting of open classification and/or the transfer to open custody of a prisoner serving more than 10 years.
52. The redesignated Offender Assessment Branch will be responsible for sentence calculation referrals, including those from the Serious Sexual Offenders Review Committee (SSORC) and the weekly Ministerial notification process.
53. The redesignated Offender Assessment Branch refocus its functions towards support, training and monitoring in all aspects of offender assessment activities.
54. The Serious Offenders' Committee be redesignated as the Offender Progression Review Committee with a membership as proposed in paragraph 9.64 and with the following functions:
- to provide recommendations to the Executive Director (Custodial Corrections) about the granting of remissions for prisoners serving more than 10 years; and
- to provide recommendations to the Executive Director (Custodial Corrections) about the granting of open classification and/or the transfer to open custody and resettlement leave of absence of a prisoner serving more than 10 years
55. The present IOMS project and the future IOMS functions be the responsibility of the Executive Director, Offender Assessment and Services.
56. The Secretariat for the Community Corrections Boards be reassigned to the Offender Assessment and Services Directorate.
57. The standard of information and the way material is provided to the Boards be improved in terms of consistency, easy accessibility and overall quality.
With respect to offender intervention programs, the review team recommends:
58. A new Offender Programs and Services Directorate be established with the function of providing a coordinated approach to offender program delivery, drug prevention and detection, health and medical, and chaplaincy services.
59. Program Services be redesignated as the Offender Programs Branch.
60. The Program Accreditation Panel become the responsibility of the Offender Programs Branch and develop a set of accreditation benchmarks for non-departmental programs including length of time for accreditation of non departmental programs.
61. The Offender Programs Branch should set up a working group with the Community Corrections Directorate to explore models that facilitate greater program flexibility at regional levels.
62. The Offender Programs Branch, in collaboration with the Research and Evaluation Branch, should investigate a comprehensive evaluation methodology for its core programs.
With respect to the Adult Education, Vocational Education and Training function, the review team recommends:
63. The establishment of an Adult Education, Vocational Education and Training Branch within the Offender Programs and Services Directorate.
With respect to prisoner art, the review team recommends:
64. Prisoner art be assigned to the proposed Adult Education, Vocational Education and Training Branch and that the position currently attached to Policy Services that deals with this matter be reassigned accordingly.
With respect to health and medical services, the review team recommends:
65. The Health and Medical Services Branch be placed in the Offender Programs and Services Directorate.
66. The Health and Medical Services Branch pursue the possible expansion of mental health services in custodial centres, in conjunction with the current review being conducted with Queensland Health.
With respect to the management of the performance of external service providers, the review team recommends:
67. The establishment of an External Service Provider Unit within the Offender Programs and Services Directorate.
68. In any future model for the awarding of contracts or grants to external service providers, the External Service Provider Unit develop a centre-specific induction program to include the obligations and responsibilities of service providers in assisting in the management of prisoners.
With respect to external providers and chaplaincy services, the review team recommends:
69. That the proposed review of the Corrective Services Act 2000 consider the provision of a legislative basis for the selection and approval of external providers (including the Chaplaincy Board).
With respect to the support required for the 'Concerned Persons Register', the review team recommends:
70. The current Concerned Persons Register be designated the Concerned Persons Support Unit within the Offender Programs and Services Directorate.
71. That, in view of the increasing demand for information by concerned persons, the matter be referred to the Legislation Review, currently being undertaken.
With respect to providing effective drug prevention initiatives, the review team recommends:
72. The responsibility for the monthly urinalysis survey and reporting be allocated to the Drug Strategy Unit within the new Offender Program Services Directorate.
73. The Drug Strategy Unit investigate the viability and feasibility of 'instant test' technology to replace random urinalysis testing over the longer term.
With respect to the role and purpose of Corporate Services, the review team recommends:
74. The Executive Director, Corporate Services, convene the Corporate Services leadership team with a view to refocussing the purpose of the Directorate to that of primarily a service orientation to its client groups and to facilitate enhanced client relations.
With respect to the performance management of staff, the review team recommends:
75. The Director, Human Resources, initiate an independent review of the Individual Planning and Development system as a matter of priority with a view to early completion of the roll out of a streamlined system across the Department.
With respect to custodial recruitment policies, the review team recommends:
76. The Director, Human Resources, urgently review Custodial Corrections recruitment policies and introduce selection processes based on appropriate selection tools (including medical assessments), mandatory checks and state-wide advertising.
77. The Director, Human Resources, undertake a review of extant remote area incentive schemes operating for State Government service delivery with a view to developing an appropriate incentive scheme for Corrective Services delivery
With respect to the funding of recruitment training, the review team recommends:
78. The Director, Human Resources, examine the benefits of recruitment of trainee staff in relevant operational positions.
With respect to recruitment training alternatives, the review team recommends:
79. The Director, Human Resources, examine the benefits of offering fee-based programs for induction level candidates at both the community and custodial corrections areas.
With respect to recruitment of Aboriginal and Torres Strait Islander People, the review team recommends:
80. The Human Resource Services Branch assume responsibility for implementation of the target set for recruitment of Aboriginal and Torres Strait Islander staff members as previously recommended in Corrections in the Balance.
81. An officer be transferred to the Human Resource Services Branch from the existing Aboriginal and Torres Strait Islander Unit to facilitate implementation of the Aboriginal and Torres Strait Islander employment target.
82. The Director, Human Resource Services, in establishing scholarships and a training and development program for prospective Aboriginal and Torres Strait Islander staff members, examine the value of bridging courses to enhance the opportunities for these officers.
With respect to ICT sourcing models, the review team recommends:
83. The Chair, Information Steering Committee, commission an independent external strategic review of the Department's ICT capability with a view to recommending an appropriate future ICT sourcing model.
With respect to the role of information management in the Department, the review team recommends:
84. Both the Information Steering Committee and the Information Management Branch acknowledge their respective information management roles through relevant purpose and/or planning documents.
With respect to financial reporting, the review team recommends:
85. The Director, Finance and Administrative Services Branch be tasked to:
(a) develop the scope of financial support functions to ensure a proactive budget process is implemented to best support the Department in its strategic goals and day-to-day activities; and
(b) develop financial information required for key strategic and operational decisions on the basis of a clear understanding of the financial information needs of users and presented in formats to support the proactive financial management model.
With respect to contract management, the review team recommends:
86. All administrative, procurement and financial activities for private prison contracts and service provider arrangements, be managed through the Financial and Administrative Services Branch.
87. The Financial and Administrative Services Branch take responsibility for central purchasing and purchasing policy, all administrative support for contract and grants management in regard to the Department's service provider resources.
With respect to facilities and asset management, the review team recommends:
88. The Facilities Services Unit be redesignated as the Facilities and Assets Management Branch.
89. The Facilities and Assets Management Branch assume responsibility for:
- coordination of the Department's office leases;
- management of the Department's insurance program; and
- development and coordination of the Department's energy management issues.
With respect to ministerial and executive services, the review team recommends:
90. A Ministerial and Executive Services Directorate be established.
91. A senior position of Executive Director, Ministerial and Executive Services be established with roles and responsibilities outlined in this section.
92. An Executive Services Branch be established within the Ministerial and Executive Services Division.
93. The two Deputy Director-General positions each be supported by an Executive Secretary and an Executive Officer.
94. The capacity of the Legal Services Branch be enhanced to meet its increased workload demands.
95. The role of the Media and Communications Branch be expanded as outlined above.
96. A strategy to facilitate change in public perception of the role and responsibilities of corrections from one of secure containment to one embracing more enlightened social responsibilities be developed by the Media and Communications Branch with broad consultation.
With respect to the role and organisational structure of the Office of the Chief Inspector, the review team recommends:
97. The position of Chief Inspector be created with independent reporting responsibility to the Director-General of Corrective Services and with responsibilities as set out in paragraph 10.7.
98. The current Corrective Services Act 2000 be examined to determine what, if any, amendments are required to accommodate this new position and functions.
99. That there be incorporated into Part 8 of the Corrective Services Act 2000:
(a) an extended function that authorises the inspection of a State custodial centre or a service/s offered by a custodial centre (that is not just limited to investigating an incident) by the Chief Inspector or a person approved by the Chief Inspector when directed to do so by the Director General; and
(b) reporting to the Director-General on the findings of the inspection.
100. Administrative support for the new position and the amended Official Visitors scheme be provided through the Ethical Standards Unit.
With respect to the coordination of a complaints management function, the review team recommends:
101. A revised complaints management process, based on the Ombudsman's "Development of Effective Complaints Management Policy" and linking with the work the Department has already done with the Ombudsman on prisoner complaints, be developed by the Director, Ethical Standards Unit.
102. The detailed development, ongoing management and monitoring of the complaints management system for the Department be the responsibility of the Ethical Standards Unit.
103. The resource requirements for additional areas of responsibility of the Ethical Standards Unit be assessed by the Director, Human Resources and that the Ethical Standards Unit subsequently be resourced according to that assessment.
With respect to the monitoring of performance in privately operated correctional centres, the review team recommends:
104. The monitoring of private prison contracts be reassigned to the Internal Audit Unit and that two (2) vacant positions, currently designated Contract Monitor, be reassigned to that Unit at a level to be determined.
With respect to the policy framework for prison industries, the review team recommends:
105. Given the imperative of industries to both the rehabilitative and funding outcomes for the Department, the policy framework for attracting and approving prison industries as well as the model to be applied for revenue retention be reassessed as a priority with a view to submission to Cabinet for endorsement.
With respect to the scope for prison industries, the review team recommends:
106. The scope of industries within centres be strategically assessed and broadened to encompass contemporary industry market demands and consider the inclusion of landscaping, catering and other activities currently performed across centres not traditionally considered the domain of industries.
With respect to the integration of vocational education and training (VET) within prison industries, the review team recommends:
107. The findings of the Program Review into the Integrated VET/Industry Pilot Program at Capricornia and Woodford Correctional Centres be revisited with a view to early implementation of recommendations subject to the findings of the current evaluation.
108. Greater emphasis be placed on matching accredited VET with both current and planned industry activity to ensure VET training provides a meaningful pathway to future employment opportunities.
With respect to prison industries development, the review team recommends:
109. An Industries Development Unit be established and located within the Corporate Services Directorate.
With respect to support for prison industries development, the review team recommends:
110. The Information Steering Committee give priority to a decision on the appropriateness of an information system to support the role of industries across the Department.
With respect to the enhancement of training and development opportunities for departmental staff, the review team recommends:
111. A Learning and Development Board, chaired by the Director-General, be established to provide leadership for a more comprehensive and targeted training and development function.
112. The Learning and Development Board oversee the development of a five year training and development strategic plan that links to the workforce planning strategy.
With respect to the infrastructure at the Training and Development Centre, the review team recommends:
113. The Department plan for an upgrade to the accommodation facilities at the Training and Development Centre so that each of the rooms includes an ensuite.
With respect to the human resource matters raised in paragraphs 12.5 to 12.9, the review team recommends:
114. The Director, Human Resources Branch be tasked, as a matter of urgency to:
(a) carry out a comprehensive reconciliation of the Department's approved and current staffing establishments, and recommend mechanisms by which accurate establishment controls are to be maintained;
(b) develop policies and procedures to ensure the equitable, efficient and cost effective appointment of relieving and temporary staff, and recommend measures by which compliance with those policies and procedures can be ensured and monitored; and
(c) conduct a review of the classifications of a representative sample of key positions in field based and Central Office units to verify or amend existing relativities.
With respect to financial matters, the review team recommends:
115. The Director, Finance and Administrative Services Branch be tasked to:
(a) develop policies and procedures to govern, and record the details of, the employment of contractors and their remuneration, in consultation with the Director, Human Resources Branch;
(b) develop policies and procedures to define the purposes for which funds from various sources can legitimately be used, and recommend mechanisms to ensure compliance with those policies and procedures, in consultation with the Director, Internal Audit; and
(c) develop protocols to ensure that managers with delegated financial authorities exercise those authorities using transparent and accountable financial management practices, and recommend measures to ensure compliance with those protocols, in conjunction with the Director, Internal Audit Unit.
With respect to any redirection of existing resources, and the allocation of any additional resources, the review team recommends:
116. The highest priority in any redirection of existing resources, and the allocation of any additional resources (both human and financial) be accorded to the needs of the service delivery units in the field.
With respect to industrial relations, the review team recommends:
117. The Department acknowledge the critical importance of developing and fostering positive and harmonious relationships with its workforce, the relevant industrial unions and external stakeholders, and the responsibility of all managers, supervisors and staff to work towards this goal.
With respect to implementation, the review team recommends:
118. A small implementation steering committee, representative of the major groupings within the Department and selected by the Director-General, be appointed to direct and overview the work of an implementation unit.
119. An implementation unit, with expertise covering the areas of human resource management and employee relations, financial management, communications, and operational and project management be appointed.
120. The first priority of the implementation steering committee and the implementation unit be the preparation of a detailed implementation action plan.