108TH INTERNATIONAL SEMINARPARTICIPANTS’ PAPERS

TREATMENT PROGRAMMES FOR OFFENDERS RUN BY THE
HONG KONG CORRECTIONAL SERVICES
Chung, Wai Man*
I. INTRODUCTION
Correctional work today is different fromthat in the past in that it is directed
towards offender rehabilitation and social
re-integration, and no longer relies mainlyon physical incarceration. Hong Kong has
developed, in synchronized pace over theyears, a penal system which places
paramount importance on the
rehabilitation and social re-integration of
offenders. On the strength of legal
provisions, the Correctional Services
Department of Hong Kong, hereinafterreferred to as HKCS, has taken up theimportant task of implementing a series ofdiversified treatment programmes tailored
to meet the needs of different types ofoffenders. This paper outlines thesetreatment programmes exclusively run by
the HKCS, which are typicallyrehabilitative and socialy reintegrative.
II. THE HKCS
With an establishment of over 7,000
staff, the HKCS is responsible for theadministration of 23 correctional
institutions, which now accommodate morethan 12,000 offenders. These include
minimum, medium and maximum security
prisons; training, detention and drug
addiction treatment centres; and a
psychiatric centre. The HKCS also
operates four half-way houses providing
residential accommodation for about 200
supervisees.

* Chief Officer (Development Training), Staff
Training Institute, Correctional Services
Department, Hong Kong.

In carrying out its functions and roles,
the HKCS aims to achieve the objectivesof:(i) providing safe and humane custody ofoffenders as ordered by a court of law;(ii) providing purposeful employment foroffenders in the Correctional Services
Industries to enhance their ability toeventually resettle in the community;and(iii)facilitating the social re-integration of
offenders as law-abiding andconstructive members of the society.
The HKCS has its own vision, mission
and values. They are being inculcateddeeply in its staff members for their strict
observance. The vision is to serve thecommunity, by providing quality custodial
and rehabilitative services, in which the
public can be confident and its staff
members can take pride. The mission is todetain persons committed to its custody ina manner which is secure to the public, safefor offenders and compatible with humandignity, and to provide the best possible
opportunity for all inmates to make a newstart in life by offering timely, apt andcomprehensive rehabilitation programmes.
The values stress integrity, dedication,
humanity and discipline. In terms of‘integrity’, the HKCS staff members are tovalue personal honesty and frankness. Of‘dedication’ they are committed to theirwork and together strive for efficiency,
competence and quality of service. Of‘humanity’ they are to recognize that all
persons have the right to be treatedcorrectly, fairly and with due respect totheir dignity; whether they are membersof the public, members of staff or persons

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in their custody. Of ‘discipline’ they are tohave loyalty and duty to the principles oflaw and order, and a respect for orderlinessand harmony.
III. GENERAL TREATMENT INPENAL INSTITUTIONSAll offenders in the HKCS institutions
are required to work unless otherwise
directed by medical officers. They canpurchase canteen items from theirearnings which are credited to themthrough a progressive earning system.
Such earning systems aim at increasing
their employability and developing positive
incentives towards work.
Offenders will also be provided with awide range of treatment programmes
which include medical check-ups,
counselling sessions, academic studies,
vocational training, physical education,
recreation, welfare services, religious
services, family visits, etc. All of the above
aim at making the offenders better sociallyequipped for their adjustment to theoutside world.
IV. CLASSIFICATION OF
OFFENDERS IN HKCSINSTITUTIONS
For the sake of better management andfor meeting rehabilitation needs, offenders
are classified into different categories
according to their major characteristics,
e.g. sex, level of security risk, age etc. They
are also divided broadly into the following
groups for which special programmes havebeen developed to achieve both punishment
and rehabilitation :(i) Young offenders aged from 14 to 20.
(ii) Young adult offenders aged 21 to 24.
(iii)Young prisoners aged between 14 to
20.
(iv) Drug addicted inmates.
(v) Adult prisoners.

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V. TREATMENT PROGRAMMESFOR OFFENDERS RUN BY HKCS
Treatment programmes for various
types of offenders are comprehensive andunique. They are specially tailored to caterfor the needs of particular types ofoffenders. All in all, they are characterized
by being rehabilitative and reformative, as
well as reintegrative.
A. Detention Centre Programme for
Young Offenders and Young Adult
Offenders
The Detention Centre programme iscarried out under the Detention Centre
Ordinance (Chapter 239 of Laws of HongKong). A young male offender aged
between 14 and 20 years sentenced to a
Detention Centre can be detained for aminimum period of 1 month to a maximum
period of 6 months, whereas a young maleadult offender aged between 21 and 24
years sentenced to a Detention Centre canbe detained from a minimum period of 3
months up to a maximum period of 12months.
The programme places emphasis on
strict discipline, hard work and counsellingto teach offenders respect for the law, whileproviding positive training conducive totheir rehabilitation and social reintegration. The highly disciplinarianregime enables the offenders to gain insight
into their recalcitrance and to motivate
their determination for reformation.
A Board of Review assesses the progress,
attitude, efforts and response of each
offender at monthly intervals. An offender
may be released if the Board is satisfied
with his/her institutional performance andthat s/he has secured suitable employment
or a place in school. However, upon release,s/he is placed under a statutory period ofaftercare supervision for one year. An
aftercare officer of the HKCS will monitor

108TH INTERNATIONAL SEMINARPARTICIPANTS’ PAPERS
their progress in complying with theconditions of supervision. A breach to anyof the supervision conditions may result inbeing recalled for a further period of
institutional training :(i) in the case of young offenders, until the
expiry of 6 months from the date of firstadmission or 3 months from the dateof arrest under the Recall Order,
whichever is the later; and(ii) in the case of young adult offenders,
until the expiry of 12 months from thedate of first admission or 3 months fromthe date of arrest under the Recall
Order, whichever is the later.
A very successful result has been
attained, and maintained year after year,that over 94% of the offenders discharged
from the Detention Centre completed the
one-year aftercare supervision without
reconviction for any criminal offences.
B. Training Centre Programme for
Young Offenders
Under the Training Centre Ordinance(Chapter 280 of the Laws of Hong Kong),
the Training Centre Programme provides
for young offenders, aged between 14 and20 years convicted of a criminal offence, anindeterminate period of training ranging
from a minimum of 6 months to a
maximum of 3 years.
Prior to sentence, each case is assessedby a Selection Board which, having
considered the offender’s family, social andcriminal background, makes arecommendation to the court as to whether
the particular offender will benefit from theprogramme.
All offenders, after admission to theTraining Centre, have to undergo half-day
educational training and half-day
vocational training commensurate with

their previous educational attainment andwork experience. The educational training
provides an opportunity for young
offenders to continue their education whilein custody. They are encouraged toparticipate in public examinations.
Vocational training enables them tocultivate good working habits. It equips
them with a level of training in skills,
commensurate with their aptitude andcapacity, so that they can compete forrelated and satisfying employment upon
release; and so adjust more readily to theopen community after release and refrainfrom crime.
Scouting and guiding activities areincorporated in the programme to refine
the character of the offenders. Parentoffender meetings and home leave arearranged to strengthen family interactions.
Again, similar to the Detention Centre
programme, a Board of Review will assess
the progress of each offender on a regularbasis. Depending on their response totraining, and exhibiting a determination
to lead an honest and industrious life upon
release, an offender may be released after
receiving a minimum of 6 months training,
and thereafter placed on mandatory
aftercare supervision for 3 years. An
aftercare officer of the HKCS will monitor
their progress in complying with theconditions of supervision. A breach of anyof the supervision conditions may result inthem being recalled for a period further of
institutional training until the expiry of 3
years from the date of first admission, or 6months from the date of arrest under the
Recall Order, whichever is the later.
C. Drug Addiction Treatment Centre
Programme
The Drug Addiction Treatment Centre
Programme is operated on the strength of
the Drug Addiction Treatment Centre

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RESOURCE MATERIAL SERIES No. 54
Ordinance (Chapter 244 of the Laws ofHong Kong). The Ordinance empowers thecourts to sentence a drug addict foundguilty of an offence punishable byimprisonment, to detention in a drug
addiction treatment centre.
Before sentencing a person to an
addiction treatment centre, the court willconsider a report prepared by the HKCS
regarding the suitability of such person fortreatment, as well as the availability ofplaces in the addiction treatment centres.
The period of treatment ranges from aminimum of 2 months to a maximum of 12months.
The programme bears the objectives of:detoxifying and restoring the physicalhealth of the offenders; uprooting theoffenders’ psychological and emotional
dependence on drugs, and preparing for
offenders’ re-integration into society.
Offenders are assigned to work aimed
at improving their health, and establishingself-confidence and a sense of
responsibility. The work is commensuratewith their capabilities, skills and fitness.
Offenders who are medically unfit for work
will attend special occupational therapy
classes.

check if s/he has relapsed with drugs. A
breach of any of the supervision conditions,
including drug relapse, may result in the
ex-offender being recalled for a further
period of ex- treatment until the expiry of
12 months 10 the date of first admission,or 4 months from the date of arrest under
the Recall Order, whichever is the later.
D. Young Prisoners Programme
Offenders under the age of 21 years whoare sentenced to imprisonment (classified
by the HKCS as Young Prisoners) are
separated from the adult penal population.
They will participate in an institutional
programme based on half-day educationand half-day vocational training.
Education classes are provided for theseyoung prisoners so that they can continue
their education while in prison. They will
be provided with every possible assistanceto participate in public examinations run
by local educational authorities or overseas
professional bodies.

A Board of Review reviews the progressof each offender and make decisions on
their release during the second month after
admission. This is also done at least once
every 2 months during the 4 months
following the first interview, and thereafterat least once in each month.

Vocational training, covering a wide
spectrum of trades, is provided to young
prisoners with the objectives of cultivating
good working habits and equipping young
prisoners with a level of training in skillscommensurate with their aptitude andcapacity, so as to enable them to compete
for related and satisfying employment
upon release. This will enable them toadjust more readily to the open community
after release and refrain from crime bygaining confidence, satisfaction and selfrespect through the acquisition of
vocational training skills.

On release, each offender is placed under
one year mandatory aftercare supervision
aimed at assisting and guiding them insocial re-integration and a drug-free life.
The HKCS aftercare officers will conduct
visits to the ex-offender’s residence andworkplace. Urine samples are collected toUnder the Criminal Procedure
Ordinance (Chapter 221 of the Laws ofHong Kong), a young offender sentenced
to imprisonment, for 3 months or more
before the age of 21 years, and released
from prison before the age of 25 years for
an offence other than default of a sum of344

108TH INTERNATIONAL SEMINARPARTICIPANTS’ PAPERS
money, is subject to a statutory period ofsupervision for 1 year. A breach of any of
the supervision conditions may result inthem being recalled for a period equivalent
to the amount of remission earnt.
E. Release Under Supervision
SchemeThe Prisoners (Release Under
Supervision) Ordinance (Chapter 325 ofLaws of Hong Kong) allows offenders
sentenced to imprisonment (i.e. prisoners)
to participate in the Release Under
Supervision Scheme and the Pre-release
Employment Scheme.
Under the Release Under Supervision
Scheme, prisoners after serving 20 months,
or at least half of a three-year sentence ormore (other than life imprisonment), may
apply for early release. If approved, they
will be released and remain under
mandatory aftercare supervision for thebalance of the sentence. The aftercare
officers of the HKCS will conduct visits toensure that they comply with the specified
conditions including residence,
employment, refraining from visiting
notorious places and association withcriminal characters, etc.
Under the Pre-release Employment
Scheme, prisoners in the last 6 months ofany sentence longer than 2 years may apply
to engage in open employment outside of
the prisons. Upon approval they, will betransferred to a designated half-way house
where they will spend their last 6 months
engaging in open employment in thedaytime, while returning to the half-way
house at night. During their stay in thehalf-way house, they will participate incounselling sessions to enhance theirintergration into society and to sustain theefforts leading them to a productive andlaw-abiding life. During the weekends oron general holidays, when they are notrequired to work, they may apply for homeleave which is aimed at encouraging there-establishment of family relationships
and facilitating the process of social reintegration.
Both of the above schemes provide forthe re-imprisonment of any participant
who contravenes any of the supervisionconditions, for a period equivalent to theremaining portion of their sentence
reduced by the period for which thesupervision order was in effect. This may
be further reduced by remission inaccordance with the Prison Rules (Chapter
234 of Laws of Hong Kong).
F. The Post-Release Supervision of
Prisoners Scheme
The Post-Release Supervision of
Prisoners Ordinance (Chapter 475 of theLaws of Hong Kong) provides a statutory
supervision scheme for certain categories
of adult prisoners. The objectives of the
Scheme are to assist certain categories ofdischarged prisoners rehabilitate andreintegrate into society, and to protect the
public from serious harm in preventing
discharged prisoners from reoffending.
The Scheme applies to every adultprisoner who is sentenced to imprisonmentof 6 years or more, or imprisonment of 2
years or more but less than 6 years in
respect of a conviction for some specifictypes of offences. These offences mainly
include triad (organised crime) related
offences, sexual offences and crimes ofviolence. The Scheme also applies toprisoners serving any sentence ofimprisonment ordered to be servedconsecutively to the sentence mentioned
above. The Scheme does not apply to some
adult prisoners who are subject todeportation, supervision for early releaseor supervision after release under other
Ordinances.
A Post-Release Supervision Board,

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RESOURCE MATERIAL SERIES No. 54
consisting of not less than 8 members
appointed by the Chief Executive, considers
whether a prisoner should be placed under
supervision on release, and if so, makes asupervision order specifying the conditions
and length of supervision in accordancewith the objectives of the Scheme. The
objectives of the Scheme are as follows: toconsider applications from prisoners(supervisees) for the varying or discharging
of supervision orders; consider applications
from prisoners (supervisees) or supervising
officers for varying the terms or conditionsof supervision orders subsequent to amaterial change in the circumstances of theprisoners (supervisees); and to consider
applications from the HKCS for suspending
supervision orders.
The supervision period is decided by the
Board and shall not be longer than theremitted part of the sentence earned by theprisoner. Each prisoner to whom the Board
has made a supervision order is to be
assigned to the care and supervision of ateam of supervising officers comprising of
two Aftercare staff from the HKCS andone Assistant Social-Work Officer from theHong Kong Social Welfare Department.
During the supervision period, thesupervising officers either visit thesupervisees at their home/work places, or
require them to attend interview sessionsat any other place as appointed by thesupervising officers. These visits/
interviews are to be conducted on a regularbasis. The supervising officers endeavor
to help supervisees tackle any adjustment
difficulties after discharge, and to ensurethat the supervision conditions arecomplied with by the supervisees.
If the Commissioner of Correctional
Services considers it to be in the public
interest that a supervisee should be
detained in custody without delay, s/he may
recall the supervisee and detain them inprison, for a period not exceeding 72 hours,

346

pending a decision as to the issue of atemporary recall order from the Chairman
or Deputy Chairman of the Board. If the
Chairman or Deputy Chairman of theBoard considers that there are grounds for
the Board to suspend a supervision order,
the Chairman or Deputy Chairman mayorder the supervisee to be temporarily
recalled and detained in prison for a period
not exceeding 14 days pending thedeliberation of the Board. The Board mayorder that a supervision order besuspended for a specified period, notexceeding the unexpired term of the order,
if it is satisfied that: the supervisee has
failed to comply with any term or conditionof the order without lawful authority orreasonable excuse; or because of conduct
or a change in circumstances since release,
they are likely to commit an arrestableoffence; or in case s/he has been recalled tothe prison under the summary recall by theCommissioner of HKCS or temporary recall
by the Chairman / Deputy Chairman of theBoard, s/he was at the time of recall aperson likely to commit an arrestableoffence.
VI. ESTABLISHMENT OF A NEWREHABILITATION DIVISION
Testimony to its full commitment tofacilitating the rehabilitation and social reintegration of offenders, the HKCS set up
a new Rehabilitation Division in January
1998. It is headed by an AssistantCommissioner whose responsibility it is totake charge of the rehabilitation services,and oversee the policy and programme
development for rehabilitation.
The Division, consisting of 15 staff
members who are mainly professionals,
plans and utilizes the resources in the
programme area of reintegration andrehabilitation services provided foroffenders, scrutinizes and reviews existing
policies and programmes of reintegration
and rehabilitation; and develops new

108TH INTERNATIONAL SEMINARPARTICIPANTS’ PAPERS
initiatives in a coordinated manner.
Illustratively, the Division is now engaging
in the examination and implementation of
the proposals contained in the research
report on “The Effectiveness of
Rehabilitation Programmes for Young
Offenders” recently put forward by the City
University of Hong Kong.
VII. PROBLEMS AT PENALINSTITUTIONS AND
COUNTERMEASURESIn 1997, the penal population of Hong
Kong remained high and averaged 30%
over the certified accommodation.
Overcrowding has inevitably led toproblems. Accommodation and facilities
are less than adequate and the increased
wear and tear exacerbates this. There arealso chronic shortages of work-places for
prisoners. Such conditions create
exceptional strain on prisoners and staff.
Despite the difficulties, the HKCS has
managed to effectively discharge theresponsibilities entrusted to it, as reflectedby the low level of escapes and incidents of
disciplinary problems. However, theDepartment considers any disciplinary
incident as one incident too many. Aftereach and every incident, a prompt andthorough investigation is conducted andremedial measures are implemented as far
as practicable. To relieve the overcrowding
at penal institutions, the Department
continued to redevelop the existing
institutions and to build new ones in
conjunction with other government
departments.

balance tipped recently in favor of theformer. The rehabilitation-oriented
approach in penal systems would now seem
victorious.
Hong Kong has increasingly become
more rehabilitation oriented in the way it
deals with offenders. The rehabilitativeand social integrative approach has been
mcorporated into the Hong Kong penal
system. The HKCS has adopted adifferentiated approach to the treatmentof various types of offenders in recognitionof their rehabilitative needs. Different
treatment programs have been designed
and implemented to cater for the needs ofsuch offenders. The existing programmes
would not have been so successful without
the constant review of their feasibility andeffectiveness which was initiated by theHKCS. The recent setting up of theRehabilitation Division is among these
initiatives. Yet, the HKCS has not rested
on its laurels. By learning from theexperience of other successful penal
systems in the world, it keeps on striving
for the best in implementing programmes
for offenders that are universally accepted
and recognized.

VIII. CONCLUSION
Throughout the 20 th century, thephilosophical traditions of rehabilitationand punishment have fueled debates
surrounding the development of penal
systems in every part of the world. The
struggle between rehabilitation andpunishment has been on going, with the347