It can be both. Certainly, some people charged with very serious crimes are not granted bail, even without a prior record. We can think of people accused of murder and other very serious crimes, who may be denied bail even without a prior record.
However, the reality is that people accused of crimes and who have a record or outstanding bail orders.... The Criminal Code provides that bail will be granted, unless there's a substantial likelihood of reoffending. Some people undoubtedly constitute a substantial likelihood of reoffending. They are mostly, and certainly should be, kept in custody without bail. I don't think any criminal lawyer suggests that everybody should be released on bail.
The standards are already in the Criminal Code. They don't require revision. It's a case-by-case application. When a person's liberty is at stake, we should trust our jurists to apply the law fairly.