A new system managing inmate behaviour at the Bimberi Youth Justice Centre was announced to detainees just hours before a violent mass escape attempt at the facility.
However, the exact cause of the August 26 riot at the facility is still yet to be determined.
Documents obtained by The Canberra Times under freedom of information laws revealed inmates at the centre's school were told by the deputy principal that behaviours needed to be "tightened up".
In his final report into the riot, independent assessor Peter Muir said the new behavioural system had a negative reaction from inmates.
"Two interviewees confirm that this announcement was not well received well by the young people," Mr Muir said in the review.
"Essentially students were misbehaving for the morning when numeracy and literacy were being taught but coming in the afternoon for more desired activities.
"The framework was that students would receive two warnings and then be excluded for the day on the third."
Later that day, detainees attacked staff with an improvised knife and a computer, while one managed to steal a guard's keys during a riot.
The incident resulted in seven staff members being taken to Canberra Hospital and the hospital implementing an ambulance bypass and a code brown.
Documents show there were 11 staff rostered on that night and 15 detainees in the centre.
However, the exact cause of the riot is still yet to be determined.
Mr Muir said in his review the most likely reason for the incident was one inmate trying to avoid extradition to NSW.
"There is not a lot of information available post-incident, without interviewing the young people involved, that gives any clear indication as to the cause of the incident," the final report said.
"I cannot find any precursors to this incident to which the centre management or staff should have responded above systems and actions that were already in place."
In the final review, Mr Muir said he expressed concerns about emergency preparedness at Bimberi, however the basis of those concerns were redacted.
Mr Muir did say that emergency operating procedures were "largely consistent" with what has been seen in other jurisdictions.
Staff response to the riot was praised with Mr Muir singling out their teamwork and speed in dealing with the incident.
However, the final review said a further investigation was needed into the impact of staff shortages.
Among the 27 recommendations made from the review was to increase therapeutic services at Bimberi with Mr Muir saying the current levels were not sufficient to meet the Community Services Directorate's priorities.
"To read the histories of these young men [in Bimberi] is disturbing reading. Many of these young people have faced situations that no child should face," the review said.
"My opinion is that the centre resources to deal with this complex group of clients may not be sufficient to ensure that the level of therapeutic care needed is implemented on a day-to-day basis."
Minister for Children, Youth and Families Rachel Stephen-Smith said in late 2019 that three more full-time staff members were being hired to strengthen therapeutic treatment at the facility.