CORRECTIONAL SYSTEMS AND CORRECTIONAL 

ALTERNATIVES ON TRIBAL LANDS

October 2011–March 2012

This report was prepared by Jimmy Steyee, CSR, Incorporated, under contract number GS-10F-0114L 

from the Bureau of Justice Assistance.

Program Performance Report
CSCATL Program Performance Report—October 2011–March 2012

• Page 2 of 10 •

Program Performance Report (April 2011–March 2012)

The following Program Performance Report (PPR) examines key findings of the Correctional Systems and 

Correctional Alternatives on Tribal Lands (CSCATL) program. As of March 2012, 54 Federal Awards were open in 

the Performance Measurement Tool (PMT), and of those, 12 were not operational. Of those that are open, 6 were 

awarded in 2009, 25 in 2010, and 23 in 2011. All data analyzed in this PPR are self-reported by individual grantee 

organizations.

The key objective of the CSCATL program is to assist in the planning, renovation, and construction of correctional 

facilities and facilities that serve as an alternative to incarceration for juvenile and adult offenders on tribal land. In 

addition, this funding allows tribes to explore community-based alternatives to help prevent and control jail 

overcrowding due to alcohol and other substance abuse–related crime. The Bureau of Justice Assistance (BJA) 

administers the CSCATL program in coordination with the Bureau of Indian Affairs (BIA) and the Office of Juvenile 

Justice and Delinquency Prevention (OJJDP).

Table 1. CSCATL Awards and PMT Completion Percentage

All 

Awards

Active Awards that 

Completed PMT Percent (%)

April–June 2011 41 32 78

Construction 2 2 100

Planning 27 22 81

Renovation 12 8 67

July–Sept. 2011 36 31 86

Construction 2 0 0

Planning 23 21 91

Renovation 11 10 91

Oct.–Dec. 2011 58 39 67

Construction 5 1 20

Planning 35 27 77

Renovation 18 11 61

Jan.–March 2012 54 37 69

Construction 4 0 0

Planning 33 27 82

Renovation 17 10 59

Table 1 shows the number of open awards ranged from 36 during the July–September 2011 quarter to 58 during the 

October–December 2011 quarter. The increase (from 36 to 58) is attributable to new BJA awards granted during the 

latter quarter. However, not all awards were operational, and not all grantees submitted quarterly reports into the 

Performance Measurement Tool (PMT). The percentage of operational and active awards, which were examined in 

this PPR, ranged from 67% (October–December 2011) to 86% (July–September 2011).

Correctional Systems and Correctional 

Alternatives on Tribal Lands
CSCATL Program Performance Report—October 2011–March 2012

• Page 3 of 10 •

Key Findings and/or Observations

• The percentage of grantees completing important planning and renovation milestones decreased after the July–

September 2011 quarter primarily because of new FY2011 grant awards that were added.

• The number of grantees completing middle- and late-stage renovation milestones varied only slightly during 

the time period examined.

• Of the four grantees that were awarded funds for construction projects, none reported data for the January–

March 2012 quarter. Of those four, one grantee (the Lac du Flambeau Band of Lake Superior Chippewa 

Indians) completed a new construction project.
CSCATL Program Performance Report—April 2011–March 2012

• Page 4 of 10 •

Key Performance Measures

Measure

Data Elements Used to 

Calculate Measure Definition Interpretation

1. Number of 

Rehabilitation-based 

Programs 

Implemented or 

Enhanced Based on 

Facility Renovation 

or Construction

A. Treatment programs (substance 

abuse, mental health)

B. Vocational assistance programs

C. Alternative education programs

D. Family reunification programs

E. Pretrial services

F. Probation services

G. Physical health services

H. Other types of rehabilitationbased programs

Treatment program—Program or 

strategy designed to provide individuals 

with the support and skills needed to 

abstain from using alcohol and drugs or 

address mental health needs to help 

manage offenders and facilitate 

reintegration into the community.

Vocational assistance program—

Program or strategy designed to provide 

individuals with job skills or training that 

will prepare and assist offenders with 

sustaining employment.

Alternative educational program—

Alternative education programming 

designed to provide inmates with 

opportunities to obtain or work toward a 

GED, a high school diploma, and/or 

higher education degree.

This measure examines the number 

of rehabilitation-based programs 

implemented. In using CSCATL 

funding, grantees may choose to 

implement and/or enhance various 

types of rehabilitation-based 

programs.

2. Types of Communitybased Options 

Created

A. Transitional housing for offenders 

returning to the community from 

correctional facilities

B. Halfway housing (residential) for 

offenders who are finishing 

sentences for violating terms of 

their release

C. Residential facilities for nonviolent 

juveniles adjudicated guilty by a 

court

D. Day reporting centers

E. Pretrial services/programs

F. Probation/parole programs

G. Treatment programs (substance 

abuse, mental health)

H. Other community-based options

Community-based options—Services 

or programs in the community designed 

to assist individuals with rehabilitation 

efforts that do not involve incarceration 

in a correctional facility.

Day reporting center—A place where 

select offenders must report while on 

probation or parole and where the 

offenders receive more intensive 

services. Day reporting centers may 

include educational services, vocational 

training, treatment, and other service 

deliveries.

Pretrial diversion program—A 

program in which defendants essentially 

are put on probation for a set period of 

time, and their cases do not go to trial 

during this time. If the defendants meet 

conditions set by the court, the charges 

will be dismissed.

This measure examines the number 

of community-based options created. 

In using CSCATL funding, grantees 

may choose to create various types 

of community-based options.

3. Planning Milestones 

(1–6 Months)*

A. Appoint Project Manager

B. Attend Planning Training 

Workshop

C. Hire Consultant

D. Complete Community Profile 

Review

Determines whether or not grantees

have met a milestone goal under the 

planning stage of their programs.

This measure examines the progress 

that grantees are making in meeting 

key milestones during the early 

planning stages of their respective 

programs.
CSCATL Program Performance Report—April 2011–March 2012

• Page 5 of 10 •

Measure

Data Elements Used to 

Calculate Measure Definition Interpretation

4. Planning Milestones 

(6–12 Months)*

A. Complete Case Processing 

Review

B. Complete Data Review

C. Identify Goals and Objectives

D. Complete Preliminary Project 

Budget

E. Submit Master Plan to BJA 

Project Manager

Determines whether or not grantees 

have met a milestone goal under the 

planning stage of their programs.

This measure examines the progress 

that grantees are making in meeting 

key milestones during the latter 

planning stages of their respective 

programs.

5. Renovation 

Milestones 

(1–2 Months)*

A. Establish Total Project Budget

B. Conduct National Environmental 

Policy Act (NEPA) Review

C. Select and Retain Architecture 

and Engineering Firm

D. Appoint Project Manager

Examines key milestones for grantees 

beginning the early renovation stages of 

their programs.

This measure examines milestones 

for grantees engaged in the early 

stages of renovation, focusing on 

three key milestones that allow them 

to progress and pave the way for 

middle-stage procedures.

6. Renovation 

Milestones

(2–8 Months)*

A. Submit Staffing and Operations 

Budget

B. Submit 99% Design Document to 

Bureau of Indian Affairs (BIA)

Office of Facilities Management 

and Construction (OFMC) and 

Division of Safety and Risk 

Management (DSRM) for Review

C. Complete Renovation Documents

Examines key milestones for grantees 

beginning the middle stages of 

renovation.

This measure examines milestones 

for grantees engaged in the middle 

stages of renovation, focusing on 

three key milestones that allow them 

to progress and pave the way for 

latter-stage procedures.

7. Renovation 

Milestones

(8–32 Months)*

A. Award Contract to Selected 

Construction/Renovation 

Company

B. Commence Renovation

C. Complete 50% of Renovation

D. Complete Building Construction

Examines key milestones for grantees 

nearing the completion of renovation 

activities.

This measure examines milestones 

for grantees engaged in the latter 

stages of construction, focusing on 

three key milestones that allow them 

to progress and pave the way for 

post-construction procedures and 

program completion.

8. Construction 

Milestones*

A. Confirm Site and Obtain 

Clearances

B. Establish Total Project Budget

C. Appoint Project Manager

D. Conduct NEPA Review

E. Submit Environmental 

Assessment to BJA and BIA

F. Form Transition Team

G. Develop and Distribute Request 

for Proposal for Architecture and 

Engineering Services

H. Select and Retain Architecture 

and Engineering (A&E) Firm

I. Commence Occupancy and Initial 

Operations

Determines whether or not grantees 

have met a milestone goal under the 

construction stage of their programs.

This measure examines the progress 

that grantees are making in meeting 

key milestones during the 

construction stages of their 

respective programs. 

The recommendation for meeting 

these milestones is 1–32 months.

* Milestone measures were selected based on a variety of criteria, including the amount of data available for each measure, as well as whether 

most grantees had data to report for a particular measure. Measures were chosen that accurately reflect the status of most grantees. For instance, 

since grantees are in various stages of renovation projects, just the measures that reflect each stage of renovation were selected. The same is true 

for planning milestones, as grantees are currently at various stages of implementing their planning programs.
CSCATL Program Performance Report—April 2011–March 2012

• Page 6 of 10 •

Graphs of Key Measures

 

1 This question is asked on a semiannual basis during the April–June and October–December 2011 reporting periods.

2 This question is asked on a semiannual basis during the April–June and October–December 2011 reporting periods.

Rehabilitation-Based Programs 

Implemented or Enhanced

(October–December 2011)1 (N=39)

This graph examines the percentage of 

grantees that implemented or enhanced a 

rehabilitation-based program resulting from 

new or enhanced facilities. 

Alternative education and physical health 

services were the most common types of 

rehabilitation programs implemented or 

enhanced by grantees (23%; 9 out of 39

grantees). Additionally, treatment programs 

and probations services were also 

commonly implemented or enhanced by 

grantees (21%; 8 out of 39 grantees).

Number of Community-Based

Program Options Created 

(October–December 2011)2

(N=39)

This graph examines the 

percentage of grantees that created 

new community-based program

options. 

Probation/parole programs (23%) 

and treatment programs (23%) 

were created by grantees resulting 

from new or enhanced facilities. In 

addition, 21% of grantees also 

created halfway-housing options.

21

18

23

18

13

21

23

13

0

5

10

15

20

25

Percentage

8

21

5

13 13

23 23

8

0

5

10

15

20

25

Percentage
CSCATL Program Performance Report—April 2011–March 2012

• Page 7 of 10 •

Planning Milestones

Table 1 on page 2 shows the number of active grantees that reported in the PMT by reporting period. The reporting 

completion percentage ranges by quarter. Grantees are asked to complete a series of milestones that are important 

indicators of how well grantees are progressing with their strategic planning for renovation and/or construction of new 

facilities. Generally, the milestones are completed in sequential order, and most grantees will complete most 

milestones throughout the life of their strategic planning process.

3

 3 A few milestones will be “not applicable” to some grantees; therefore, not all grantees will complete all milestones. 

Planning Milestones:

1–6 Months

This graph shows the percentage of 

operational grantees that have completed 

important milestones during the first 6 

months of the strategic planning process. 

The decrease after the July–September

2011 reporting period for the first two 

milestones (Appoint Project Manager and 

Attend Planning Training Workshop) is 

due to an increase in the number of 

operational grantees (i.e., new awards). 

Not quite half of the grantees have hired 

a consultant (15 of 31 [48%]) and 

completed a community profile review 

(14 of 31 [45%]) as of the January–March 

2012 quarter.

Planning Milestones:

6–12 Months 

This graph shows the percentage of 

operational grantees that have 

completed important milestones during 

the last 6 months of the strategic 

planning process. 

Generally, the percentage of 

operational grantees completing the 6–

12 month milestones has increased 

during the last three quarters. At the 

end of the January–March 2012 

quarter, 12% (4 of 33) submitted a 

Master Plan to BJA.

70

95

77

84

67 64

49

42

33

45

54

48

30

36 40 45

0

20

40

60

80

100

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Appoint Project

Manager

Attend PACIFIC

Training Workshop

Hire Consultant Complete Community

Profile Review

Percentage

Planning Milestones Completed (%)

33

18

23

29

26

36

23

29

22

18

29

35

15

18 20

26

15

9 11 13

5

10

15

20

25

30

35

40

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Conduct Case

Processing

Review

Conduct Data

Review

Identify Goals and

Objectives

Create Preliminary

Project Budget

Submit Master Plan

to BJA

Percentage

Planning Milestones Completed (%)
CSCATL Program Performance Report—April 2011–March 2012

• Page 8 of 10 •

Renovation Milestones

Grantees conducting renovation projects are asked to complete a series of milestones that are important indicators for 

how well grantees are progressing with their projects. Generally, the milestones are completed in sequential order, and 

most grantees will complete most milestones throughout the life of their renovation project.4 For the following charts, 

the decrease in completion percentages following the July–September 2011 quarter is due to an increase in the 

number of operational grantees from new grant awards (i.e., the denominator increased).

 4 A few milestones will be “not applicable” to some grantees; therefore, not all grantees will complete all milestones. 

Renovation Milestones: 1–2 Months

This graph shows the percentage of operational 

grantees that have completed important 

milestones during the first 2 months of 

renovation.

The percentage of grantees that have completed 

the initial renovation milestones has not changed 

dramatically during the last two reporting periods 

(October–December 2011 and January–March 

2012). In fact, the number of grantees that 

appointed a project manager increased by only 1

(from 7 [44%] to 8 [47%]) during the quarters 

examined. The number of grantees that 

established a total project budget decreased from 

8 (67%) during April–June 2011 to 7 (41%) in 

January–March 2012, because one grantee was 

not operational during the latter quarter. The 

percentages changed primarily because of new 

awards (i.e., the denominator changed). 

Similarly, the number of grantees completing a 

NEPA review decreased from 8 (39%) to 6 (35%)

during the same time period. 

Renovation Milestones: 2–8 Months

This graph shows the percentage of 

operational grantees that have completed 

important milestones in the first 8 months of 

renovation.

The number of grantees completing these 

milestones has increased slightly during the 

January–March 2012 quarter compared with 

the April–June 2011 quarter. Four (24%) 

grantees submitted staffing and operations 

budgets during the January–March 2012 

quarter, up from 2 (17%) during the April–

June 2011 quarter. Likewise, the number of

grantees that completed renovation 

documents increased from 3 ([25%] April–

June 2011) to 5 ([29%] January–March

2012).

67 64

39 41

67

82

39 35

50

64

33 35

58

73

44 47

0

10

20

30

40

50

60

70

80

90

Apr.–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Apr.–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Apr.–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Apr.–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Establish Total Project

Budget

Conduct NEPA

Review

Select and Retain

A&E Firm

Appoint Project

Manager

Percentage

Renovation Milestones Completed (%)

17

55

22 24

8

27

22

12

25

45

22

29

10

20

30

40

50

60

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Submit Staffing and

Operations Budget

Submit 99% Design

Documents to BIA OFMC &

DSRM for Review

Complete Renovation

Documents

Percentage

Renovation Milestones Completed (%)
CSCATL Program Performance Report—April 2011–March 2012

• Page 9 of 10 •

Construction Milestones

Three grantees were operational during the reporting periods examined. Two grantees last reported in the PMT during 

the April–June 2011 reporting period, and the other (the Oglala Sioux Tribe) during the October–December 2011 

reporting period. Table 2 presents information based on the most recent complete report for each grantee.

Table 1 on page 2 illustrates the various construction milestones the three grantees have accomplished. The Lac du 

Flambeau Band of Lake Superior Chippewa Indians has completed construction and commenced occupancy and initial 

operations. As of March 2012, the Northern Arapaho Tribe was awaiting approval of their environmental assessment. 

The Oglala Sioux Tribe is still awaiting approval for their site selection.

Table 2. Construction Key Measures

Grantee

Lac du Flambeau Band 

of Lake Superior 

Chippewa Indians

Northern Arapaho 

Tribe Oglala Sioux Tribe

8a. Confirm Site and Obtain 

Clearances

Complete   —

Not yet complete — — 

8b. Establish Total Project Budget Complete   —

Not yet complete — — 

8c. Appoint Project Manager Complete   ×

Not yet complete — — 

8d. Conduct NEPA Review Complete   —

Not yet complete — — 

8e. Submit Environmental 

Assessment to BJA and BIA 

Complete  — —

Not yet complete —  

Renovation Milestones: 8–32 Months

This graph shows the percentage of 

operational grantees that have completed 

important milestones during the last 24 

months of renovation.

Again, the actual number of grantees that 

have completed these milestones has 

changed only slightly over the four quarters 

examined. The number of grantees 

awarding a contract increased from 2 (17%)

in the April–June 2011 quarter to 4 (24%) in 

the January–March 2012 quarter. One 

grantee completed their renovation project 

in the July–September 2012 quarter.

17

45

22 24

17

45

17 18 17

27

17 18

0

9

6 6

0

5

10

15

20

25

30

35

40

45

50

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

April–June 2011

July–Sept. 2011

Oct.–Dec. 2011

Jan.–March 2012

Award Contract to

Selected Renovation

Company

Commence Renovation Complete 50% of

Renovation

Complete Final Building

Percentage

Renovation Milestones Completed (%)
CSCATL Program Performance Report—April 2011–March 2012

• Page 10 of 10 •

Grantee

Lac du Flambeau Band 

of Lake Superior 

Chippewa Indians

Northern Arapaho 

Tribe Oglala Sioux Tribe

8f. Form Transition Team Complete   —

Not yet complete — — 

8g. Develop and Distribute 

Request for Proposals (RFP) 

for Architecture and 

Engineering Services 

Complete   —

Not yet complete — — 

8h. Select and Retain Architecture 

and Engineering Firm 

Complete  — —

Not yet complete —  

8i. Commence Occupancy and 

Initial Operations 

Complete  — —

Not applicable — — 

Not yet complete —  —

Total Key Measure Completed5 9 (100%) 6 (67%) 0 (0%)

Trend Analysis and Interpretation

This section points out patterns and trends among performance measures across all grantees reporting.

• The PMT completion rate for this program peaked at 86% during the July–September 2011 quarter and 

decreased in subsequent quarters with the addition of new grantees.

• In the past 6 months, grantees implemented or enhanced new rehabilitation-based programs, including 

alternative education programs (23%), physical health services (23%), treatment programs (21%), and 

probation services (21%). 

• Overall, of the operational grantees examined in this PPR, 2 completed their projects (1 renovation and 1 

construction), and 4 planning grantees submitted Master Plans to BJA. This amounts to 6 grantees (16%) that 

completed the “end product.”

 5 The percentage of milestones completed is only based on those key milestones examined in this PPR.