TREATMENT OF ILLICIT DRUG USERS IN HONG KONG
Lam Yuen Tak＊

With the mission of protecting the public and reducing crime, Hong Kong Correctional Services
Department (CSD) safeguards the integrity of the criminal justice system by identifying itself as “Societyʼs
Guardian”, “Rehabilitation Facilitator” and “Community Educator”. CSD aims at helping persons in custody(PICs) reintegrate into society as law-abiding citizens after discharge. The success of their re-integration
depends on four critical success factors, namely 1) safe custody, 2) effective and timely rehabilitation
programmes, 3) determination of offenders, and 4) community support for offendersʼ rehabilitation.
CSD, as a statutory department, provides compulsory residential addiction treatment under the order of
Court. We, in accordance with illicit drug usersʼ weakness and shortcomings, implement integrated andappropriate rehabilitation programmes ranging from pre-sentence assessment and custodial rehabilitation
programmes to statutory supervision after discharge.
In order to promote messages of “leading a law-abiding and drug-free life as well as supporting offender
rehabilitation” to the society, CSD also endeavours to communicate with various stakeholders in thecommunity such as leaders and professionals from different walks of life for arranging different kinds ofcrime prevention activities. To optimize the long-term development of rehabilitation programmes for a safe
and inclusive Hong Kong, CSD will also conduct possible research project to assess effectiveness of its
programmes.

I. INTRODUCTION
Hong Kong Correctional Services Department (CSD) carried out the paradigm shift from a penal regime
to a correctional system as signified by renaming the Prisons Department to the Correctional Services
Department in 1982. We, as the gatekeepers of the last element of the criminal justice system, aim to be aninternationally acclaimed Correctional Service helping Hong Kong to be one of the safest cities in the world.
Our mission is to protect the public and reduce crime. To achieve it, we identify ourselves as “Societyʼs
Guardian”, “Rehabilitation Facilitator” and “Community Educator”. We are tasked with great responsibilities
of upholding our core values by providing a secure, safe, humane, decent and healthy environment for persons
in custody (PICs) as well as working in collaboration with the community and other organizations tocontinually improve the rehabilitation programmes and help PICs rehabilitate and reintegrate into thecommunity as law-abiding citizens after their discharge.
The success of PICsʼ re-integration into society depends on four critical success factors [i. e. 1) Safe
Custody, 2) Effective and Timely Rehabilitation Programmes, 3) Determination of Offenders, and 4)
Community Support for Offender Rehabilitation]. Safe custody and appropriate rehabilitation programmes
are the cornerstones of all internationally acclaimed correctional services. It is essential to provide a safe
custodial environment for delivery of various rehabilitation programmes to help PICs turn over a new leaf.
In response to the growing concern on the reform of offenders, CSD set up the Rehabilitation Division to
focus its work on offendersʼ rehabilitation in 1998. Since then, CSD has been striving to strengthen the coordination and connection with other concerned organizations on formulating strategies for long-term
development of rehabilitation. The Rehabilitation Division, headed by the Assistant Commissioner(Rehabilitation), provides appropriate rehabilitation programmes for all PICs including illicit drug users in
Drug Addiction Treatment Centres (DATC), ranging from pre-sentence assessment, welfare and counselling,＊

Principle Officer, Correction Services Department, Hong Kong.

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education, work and vocational training, religious, to statutory supervision after discharge. Meanwhile, it
mobilizes outside resources for continuous rehabilitation programme enhancement, community educationand promotion to the public for their acceptance of rehabilitated persons for an inclusive society, so as tofacilitate PICs in reintegrating into society. With the effort of the CSD, the recidivism rate1 of rehabilitatedpersons has been in a downward trend with a 7.2% drop from 2008 (34.3%) to 2015 (27.1%).
This paper mainly focuses on how the CSD provides assessment, appropriate rehabilitation programmes,
supervision and community education to help illicit drug users to reintegrate into the society and to prevent
crime.
A. Screening and Assessment of Drug Addiction Treatment Centres (DATC)
Under Hong Kong Law Chapter 244 Drug Addiction Treatment Centres Ordinance (the Ordinance), Drug
Addiction Treatment Centres (DATC) are provided for the cure and rehabilitation of persons found guilty ofa relevant offence who are addicted to any dangerous drug.
Cap.244 S4(1): “Where a person is found guilty of a relevant offence and the court is satisfied that in thecircumstances of the case and having regard to his character and previous conduct it is in his interestand the public interest that he should undergo a period of cure and rehabilitation in an addiction
treatment centre, the court may, in lieu of imposing any other sentence, order that such person bedetained in an addiction treatment centre.”
1. Pre-sentence Assessment
Cap.244 S4(3): “Before a detention order is made in respect of any person, the court shall consider areport of the Commissioner on the suitability of such person for cure and rehabilitation and on theavailability of places at addiction treatment centres……”
The successful re-integration of offenders through effective rehabilitation programmes depends verymuch on giving offenders appropriate sentence and placement that can best meet their rehabilitative needs.
To ensure offenders receive the most appropriate rehabilitation programmes during their incarceration, presentence assessment are provided to young offenders and offenders who are ordered to have the assessment
report by courts. After interviewing the offenders under remand and obtaining their background informationsuch as conviction record, offence details, drug addiction history, employment or education, family situation,etc., CSD will advise the courts on the suitability of offenders to be sentenced to being detained in Detention
Centre, Rehabilitation Centre, Training Centre, Drug Addiction Treatment Centre (for those illicit drug
users), or other sentencing options, including imprisonment.
Pre-sentence Assessment provides the court with profiles of the persons awaiting sentence and makes
recommendations on the rehabilitation scheme for them. There were 2,200 cases in 2017.
B. Treatment and Programmes for Illicit Drug Users
1. Drug Addiction Treatment Centres (DATC)
Cap.244 S4(2):“…… detained in an addiction treatment centre for such period, not less than 2 months and not morethan 12 months from the date of such order, as the Commissioner may determine, having regard to thehealth and progress made by such person and the likelihood of his remaining free from addiction to any
dangerous drug on his release, and shall then be released.”
An illicit drug user, who is convicted of criminal offences, might be ordered by court to detain in DATC toreceive treatment and rehabilitation for a minimum period of two months to a maximum of 12 months,
followed by one yearʼs statutory supervision. The length of detention is determined by a Board of Review
which examines the health and progress of each person in custody and his likelihood of remaining free fromdrug abuse after release.

Recidivism rate is the percentage of re-admission (due to commission of a new offence) of local convicts within two years after
discharge.
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There are 4 institutions under the CSD providing drug addiction treatment to those illicit drug users
ordered by court to be detained in DATC. Base on sexuality and age, they will be detained in Hei Ling Chau
Addiction Treatment Centre (Male adult drug addicts), Lai Sun Correctional Institution (Male young drug
addicts), Nei Kwu Correctional Institution (Female adult drug addicts) and Lai King Correctional Institution(Female young drug addicts).
The drug addiction treatment programme encompasses 3 phases ‒ (i) detoxification and restoration ofphysical health; (ii) Uprooting psychological and emotional dependence on drugs; and (iii) Facilitating thereintegration of persons in custody into the community after release. DATC inmates undergo the treatment
and appropriate rehabilitation programmes during the detention period while a Board of Review composedby officers from different units would monitor their progress and interview with them regularly.
2. Risks and Needs Assessment and Management Protocol
Risks and Needs Assessment and Management Protocol have been implemented since 2007. It is ascientific and evidence-based evaluation of PICʼs re-offending risks (which will affect the amount and theintensity of rehabilitation that a PIC will receive during incarceration) and rehabilitative needs. After illicit
drug abusers are sentenced by courts to DATC, they will be assessed by staff to identify their rehabilitativeneeds via Risks and Needs Assessment and Management Protocol.
In accordance with the rehabilitative profiles of inmates generated by the Risks and Needs Assessment,
the CSD is able to provide better rehabilitation programmes matching and supervision for them. The sevendomains of rehabilitative needs and respective rehabilitation programmes are shown in figure 1.

Figure 1) Seven Needs Domains and Respective Rehabilitation Programmes
DATC inmates, who normally have “high” risks in the “Drug Abuse” domain, will be provided with Drug
Abuse Rehabilitation Programme and Relapse Prevention Group. The participation of inmates in the
programmes is on a voluntary basis as the effectiveness of the programmes very much depends on the extent
of their motivation and commitment. For those with low motivation, the responsivity enhancement
programme will be provided to them with a view to enhancing their responsivity to counselling andstrengthening their motivation to change.
3. Welfare and Counselling Services
While undergoing incarceration, inmates might encounter personal problems and cope with difficulties
arising from detention. Rehabilitation Officers are responsible for providing timely assistance, guidance andcounselling to them. Cultural activities, such as pop bands, essay writing competitions and hobby classes arealso promoted among inmates to unveil their talents and potential which could help them develop positive
self-image.
The “Pre-release Re-integration Orientation Course” is also organized to help inmates reintegratesmoothly into society upon their release. Through the course, assistance is provided to the pre-discharged
inmates for their better understanding of the environment that they would face to after discharge. They areprovided with societyʼs information on different themes including social welfare services, education and social
facilities, legal assistance, latest labour market information, job-interview techniques, medical services,
community resources, and interpersonal skills. Most significantly, through the knowledge they acquired, theprobability of having a smoother re-integration and resocialization process is further enhanced. With such,101

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the chance of inmates relapsing to drug or crimes would be reduced.
Another specially designed programme is the “Relapse Prevention Course” which helps inmateʼs gain
correct understanding of drug use and relapse prevention, uplift determination to stay away from drugs andrebuild family relationships that might have been ruined due to drug abuse and committal of offences.
4. Psychological Services
In order to assist inmates in adapting to imprisonment and enhance their psychological well-being,counselling and specific psychological programmes are provided to help them gain an in-depth understandingof their psychological qualities and reflection on their past criminal behaviour, as well as facilitate them inmaking positive changes and minimizing re-offending risk. Psychological counselling to inmates includes
professional assessment, counselling and treatment provided by clinical psychologists and officers of thePsychologist Services Section.
The treatment of psychological dependence is effected through work therapy as well as individual andgroup counselling which aim at helping inmates gain better insight into their drug problems and preparing
them for a pro-social and drug-free life. Furthermore, psychological programmes, for example the“Responsivity Enhancement Programme”, is provided for enhancing inmatesʼ treatment responsivity
including their motivation to change, perceived usefulness of treatment, perceived possibility of success andself-efficacy. The “Abstinence Maintenance Programme” to improve inmatesʼ efficacy in dealing withproblems of drug abuse and identifying high risk situations relating to relapse as well as developing basic
skills to deal with high risk situations, and the “Intensive Treatment Programme” to facilitate cognitive andbehavioural changes of inmates crucial in maintaining drug abstinence are also provided.
5. Education Programme
Education helps inmates to improve their academic standards, interpersonal skills and restore their selfesteem and confidence, which help their future re-integration. The Education Unit, with Education Officers,
who are qualified teachers holding bachelorʼs degrees and teachersʼ training, provides both young and adultinmates with opportunities to upgrade themselves through education and to assist their participation in
public examinations.
To help restore a positive learning habit and encourage young inmates to acquire accredited academic
qualifications, half-day compulsory education focusing on general and practical subjects, such as computerrelated and commercial, is provided for young inmates under the age of 21. The acquisition of accreditedqualifications provides inmates with the opportunity to re-examine their own talents and promoting their selfimage.
Tutorial groups and hobby classes conducted by volunteer tutors are also run in adult institutions, where
adult inmates can enroll voluntarily. They are also encouraged to participate in continuing education anddistance learning for tertiary education by making use of the resources and expertise of external accredited
educational organizations. Both young and adult inmates are encouraged to attend local and international
public examinations, such as the Hong Kong Diploma of Secondary Education Examination (HKDSE), theLondon Chamber of Commerce and Industry Examinations and other public examinations required bydistance learning courses at degree, diploma or certificate levels. Appropriate rearrangement on the daily
routine programmes of inmates is made to facilitate their preparation for examination. Needy inmates may
apply for financial assistance from a statutory fund donated by the public specially set up for their education
pursuits should they encounter financial difficulties.
6. Industries and Vocational Training (I&VT)
The CSD keeps inmates purposely and gainfully occupied for maintaining the stability of penal
institutions. Many inmates might have sluggish working attitudes or might be reluctant to find a job before
they are imprisoned. To correct their attitudes, we arrange work for adult inmates according to law withemphasis on regular living style and good working habits. In the pursuit of rehabilitation, we help them
reintegrate into society through acquisition of skills in industrial work and vocational training to enhancetheir employability. For this reason, provision of vocational training to inmates is an important component of
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For young inmates, half-day compulsory vocational training including technical, commercial and service
industry are provided to facilitate their smooth re-integration into the community. Equal importance is placedon theoretical and practical aspects of the curriculums which prepare them for pursuing further training
after release. For adult inmates, they, engaged in industrial production, are trained to acquire necessary skills.
Where appropriate, CSD helps them obtain skill accreditation by enrolling them in relevant Intermediate
Trade Tests conducted by vocational training organizations, or applying through the Recognition of Prior
Learning Scheme under the Hong Kong Qualifications Framework. Besides, in order to enhance inmatesʼ
competitiveness in the labour market with promising employment opportunities after discharge, we, inrecent years, have been adopting a proactive approach to collaborate with professional training bodies
providing more than 40 diversified and market-oriented vocational training courses on a full-time and parttime voluntary basis, including dim sum making, pet grooming, bar bending, and beauty care, etc., which keep
pace with developments in the community. To tie in with the employment situation in the market, we willcontinue organizing more market-oriented vocational training to help inmates enhance their professional
skills with recognized qualifications and be considerably well paid.
7. Religious Services
Our programmes are also enriched with religious and spiritual dimensions with the assistance of religious
bodies. Through the Correctional Services Chaplain, Honorary Chaplains and volunteers from prominent
religious organizations, a wide range of religious services such as teaching classes, counselling groups,
religious worships, masses presided by Head of the Church, and so on can be offered to the interested
prisoners regardless of their religious affiliations. We believe the effort of our religious partners can boost theharmony of the custodial environment and thus lighten the prison atmosphere.
8. Recreation Activities
A wide range of recreational activities is organized to promote the physical and mental health of theinmates so that they will be able to meet the demands of outside environment upon discharge. The activities
include basketball, volleyball, table tennis, Chinese billiards, Chinese chess, library book reading and television
watching, etc.
9. Family Support
With family support, inmates could uphold their determination to be good people. In order to improve thecommunication between young inmates and their families, and to encourage their family membersʼ
participation in rehabilitation, the Inmate-Parent Programme2 is implemented for them. Furthermore, tobuild up close relationships between inmates and their families as well as their self-esteem, Certificate
Presentations on inmateʼs academic result with their family members taking part are held in various
institutions.
10. Community Engagement
The Personal Encounter with Prisoners Scheme (PEPS) has been in place since March 1993. Being
integrated as an initiative under the Rehabilitation Pioneer Project (RPP)3, the PEPS aims to generate
attitudinal and behavioural changes among youths through activities like visits to correctional institutions
and face-to-face discussions with rehabilitated persons, e.g. DATC inmatesʼ past experience sharing during
the program. Inmates are arranged to share the detriment of drug abuse and their rehabilitation experience
with visiting students in RPP and thereby enhance their determination to start anew. By sharing their pastexperience and assuming the role of “life coach”, inmates themselves could also uplift their self-confidence andpositive self-identities as models for the younger generation. It also develops their sense of contribution to thesociety.
C. After Discharge
Reintegration into society does not cease but begins at the completion of detention period in DATC.
Various measures are administered and implemented to facilitate reintegration and engage community
The parents of young inmates are invited to the institutions to have familiarization visit to the facilities and participate ininmate-parent groups organized by rehabilitation unit officers and clinical psychologists.
3
In May 2008, the CSD launched the RPP, an integrated series of enhanced public education initiatives. The objectives of the
RPP are to promote crime prevention by advocating the importance of leading a law-abiding and drug-free life among young
people as well as enlist their support for offender rehabilitation.
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support for accepting the return of rehabilitated illicit drug users.
1. Statutory Supervision
Cap.244 S4(5):“The Commissioner may order that a person released from an addiction treatment centre shall, for aperiod of 12 months from the date of his release, be subject to supervision by such organization or
person……”
To facilitate inmatesʼ re-integration into society upon discharge, one-year statutory supervision isprovided for DATC inmates. Rehabilitation Officers help inmates in the rehabilitation process and thereconciliation of any conflicts with their families. They are also responsible for monitoring the case during thesupervision period. To prepare for effective supervision, Supervising Officers strive to foster a relationship ofmutual trust with inmates and their families while the inmates are still in custody. They also offer inmates
appropriate support and guidance to help them adapt to the institutional regime. Through regular contacts,
home visits, work / school visit, job referral, community resources referral, supervisions, counselling as wellas crisis intervention during supervision periods, the supervisees are assisted in leading law-abiding anddecent lives. Moreover, to ensure that they have not relapsed to drug abuse, urine specimens will be tested
regularly and surprisingly. During the period of supervision, a breach of the conditions of the supervisionorder may result in the supervisees being recalled for a further period in a penal institution. Furthermore, we
also coordinate with community partners to help bring changes to dischargees and supervisees under the“Continuing Care Project”. Since 2004, we have made over 2,000 referrals for the needy dischargees who havecompleted statutory supervision to 7 recognized NGOs with specific target groups including women, persons
with drug abuse history, clients with family issues, etc.
An initiative worth mentioning is the Half-way House Programme, which is an extension of therehabilitative efforts sustained in DATC. Following release, supervisees in need of a period of transitional
adjustment are arranged to reside in a half-way house from which they go out to work or school during
daytime and return at night. It seeks to cultivate a sense of self-discipline and good working habits in a
structured and supportive environment.
D. Prevention
1. Community Education
Facilitating changes in offenders to rehabilitate certainly and directly helps reduce re-offending behaviour
and crimes. But to move one step forward, educating the youth and students not to commit crimes byutilizing our resources and the distinct nature of the corrections profession could help crime prevention fromthe source.
To achieve this, we have been running the Rehabilitation Pioneer Project since 2008 for secondary school
students and the youth. We seek to disseminate the messages of leading a law-abiding and drug-free life aswell as supporting offender rehabilitation through a series of activities4. Among them, “The Reflective Path”
programme is a new initiative launched. We use a discontinued prison as an education site to provide
simulation of real situations in prison for participants to experience custodial life such as mock court hearings,
simulated reception procedures, short stays in dormitories and single cells, foot-drill training, simulated workgroups and end up with a sharing session by a prisoner. Our aim is to let them experience the bitterness ofprison life and thus, make this the one and only chance in their lives of being sentenced to imprisonment. In
2017, attendance was over 39,000, including young people and other participants in various activities. The
programmes were well received with positive responses.
2. Publicity Campaign
It is one of our endeavours to engage more and more community support for offender rehabilitation.
Since 1999, structured publicity activities have been promulgated to bridge persons in custody and society.
Coupled with the support of over 80 Non-Government Organizations (NGOs) to provide counselling and a
The CSD has enriched and developed more RPP initiatives, which now include education talks, the Personal Encounter with
Prisoners Scheme (PEPS), the Green Haven Scheme (GHS), visits to the Hong Kong Correctional Services (HKCS) Museum,Student Forums, RPP Extended Training Camp, and the Drama and Musical Performance of “Creation and Rehabilitation” andReflective Path.
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series of cultural, religious and recreational projects, activities such as “District Fight Crime Committees
District-based Publicity Activities on Offender Rehabilitation”, “Thank-you NGO Month”, “NGO Forum andAward Presentation Ceremony for Volunteers of CSDRVG” highlights the importance of collaborative efforts
with members of the community and NGOs to accept and help offenders rehabilitate. A portion of NGOs andcharity organizations also provide special counselling services for rehabilitated persons who have had
associations with gangs and triad society.
3. Research and Development
The CSD will broaden and deepen research capacity by reshuffling the resources to expand the scope anddiversity of the research studies, strengthening the capacity in data collection and analysis and enlisting
research support from external parties to identify areas of improvement in correctional practices. Local
criminals are all products of a community. We hope to work with universities and other professional bodies, tomake use of this unique database to find out common social issues, juvenile behaviour and deviancedistinctive to Hong Kong, and in the long run help the development of Hong Kong in terms of crime
prevention. Prisons may serve as a research centre to feedback important messages to the community andinspire us to improve. In 2017, a “Consultancy Study on Social Costs of Crime” was conducted with a local
tertiary institution to explore the harms that crimes could bring to society, such as the economic or otherlosses associated with criminal activity to society as an entity and individual, including those victims,
offenders and their families. This is the first consultancy study in Hong Kong and in Asia. It adopts evidencebased methodology to evaluate the effectiveness of the CSDʼs work by quantifying in monetary terms thesocial cost arising from crime and the cost saved through rehabilitation and community education. The costsaved amounts to $74.3 billion in five years.
On the other hand, in recent years, there has been a rapid change of bio-psycho-socio factors related todrug abuse (e.g. types of drug substances abused, demography of drug abusers, and changes in economic
background). In order to combat drug problems, the CSD is conducting another research project, namely the“Review and Development of Rehabilitation Programmes provided for Drug Addiction Treatment Centre
Programme” to review the matching programmes under Risks and Needs protocol, vocational training
courses and counselling programmes, particularly on exploring effective ways to tackle recallee problems,such as risk factors related to their relapse to drug.

II. CONCLUSIONThe CSD, as “Societyʼs Guardian”, “Rehabilitation Facilitator” and “Community Educator”, plays a vitalrole in protecting public safety and helping Hong Kong to be one of the safest cities in the world bysafeguarding the integrity of the criminal justice system. For this, effective implementation of rehabilitation
programmes is required. Not only does it benefit offenders themselves and their families, but also ourcommunity in the long run.
On top of safe custody, the CSD implements integrated and appropriate rehabilitation programmes
ranging from pre-sentence assessment and custodial programmes to statutory supervision after discharge.
The effectiveness of facilitating offendersʼ re-integration into the community hinges not only on appropriate
rehabilitation but also on offendersʼ responsivity to counselling / treatment and their determination to startanew. Likewise, family and community support are crucial in the process of rehabilitation.
Furthermore, we proactively promote rehabilitation work by collaborating with over 80 NGOs to organize
diverse activities for inmates and disseminate the messages of “leading a law-abiding and drug-free life aswell as supporting offender rehabilitation” to society for community education in crime prevention.
The CSD will continue striving to strengthen the co-ordination and collaboration with all sectors of thecommunity, and to broaden and deepen research capacity for formulating long-term development of
rehabilitation programmes for a safe and inclusive Hong Kong.

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