HONG KONG 2004 - Public Order

The Correctional Services Department (CSD) runs a comprehensive range of services for adults and young offenders, drug addicts and offenders with psychiatric problems. The services fall broadly under two programme areas: prison management and reintegration of offenders into society.

In 2004, the CSD managed 24 correctional institutions, four rehabilitation centres, three halfway houses and two custodial wards in public hospitals. It also runs an extensive community-based after-care service. In all, 6 648 staff were looking after a daily average of 13 005 inmates, 133 detainees and 2 927 persons under supervision after discharge from custody.

Offenders sentenced to imprisonment are assigned to institutions according to their gender, age and security rating. The last factor takes into account, among other things, the risk they pose to the community and whether they are first-time offenders. Basically, separate institutions are provided for males and females, and for adults and young offenders. Male and female young offenders aged between 14 and 20 may be admitted to a training centre or a rehabilitation centre. A detention centre programme is available for male offenders aged between 14 and 24. Drug addicts found guilty of an offence punishable by imprisonment may be sentenced to a drug addiction treatment centre. Separate sections are available for young addicts aged between 14 and 20. Offenders requiring psychiatric treatment will be accommodated in Siu Lam Psychiatric Centre.

Inmates are properly cared for in their daily living. The diet for inmates follows approved scales of nutritional values and has regard to health and religious requirements. All adult inmates, unless certified physically unfit by a medical officer, are required by law to work six days a week. They are assigned to different work posts according to factors such as their fitness and security ratings, personal background and balance of sentence. They receive earnings for the work done and may use their earnings to buy approved personal items twice a month. Television, newspapers and library books are available to inmates. They may send out and receive an unrestricted number of letters, receive regular visits and participate in the religious services available. Compulsory education and vocational programmes are provided for inmates aged under 21 whereas voluntary programmes are provided for adults. Voluntary organisations may visit inmates who are not visited by their families.

Prisoners released under the Pre-release Employment Scheme, offenders released under supervision from training centres, detention centre, rehabilitation centres and drug addiction treatment centres, and those having special needs may be accommodated in halfway houses for varying lengths of time. Thereafter, they are permitted to live at home or in other places while they continue to receive after-care supervision.

The CSD manages 12 prisons for adult males and three for adult females. Two drug addiction treatment centres are also provided, one each for male and female drug addicts. For young offenders, the department operates two prisons, two training centres, one detention centre and two rehabilitation centres for males; and one training centre and two rehabilitation centres for females. The Siu Lam Psychiatric Centre is a maximum security prison which separately houses male and female prisoners of all categories (sentenced or on remand) and detainees who require psychiatric observation, treatment or assessment. Of these institutions five cater to remand males and females of different age groups. Facilities in a penal institution normally include dormitories, kitchens, dining rooms, laundries, workshops, exercising and recreational areas, library and hospital.

The three halfway houses operated by the CSD provide accommodation, group counselling sessions and other activities for supervisees in need of a period of adjustment upon release to assist their reintegration into society.

Victoria Prison, the oldest prison and in use since 1841, is scheduled for closure by late 2005. Under a reprovisioning exercise, a new prison with 650 penal places to be known as Lai Chi Kok Correctional Institution is being constructed. The department has also been exploring suitable sites for developing new prisons to cope with the problems of overcrowding and outdated facilities in correctional institutions.

The department will manage and operate the new Castle Peak Bay Immigration Centre on behalf of the Immigration Department for a five-year term commencing mid-2005.

In 2004, the penal population remained high and averaged 14 per cent over the certified accommodation, with prisons for adults, particularly females, being the major pressure points. The rising trend of female penal population continued in 2004, and the female adults sentenced to imprisonment and remanded in custody increased by 13 per cent and 18 per cent, respectively, over 2003. A record high of 3 092 was registered in June, representing an occupancy rate of 177 per cent. Despite overcrowding that stretched resources, the CSD continued to implement its correctional programmes effectively.

During the year, 25 785 adult offenders (13 790 males and 11 995 females) were sentenced to imprisonment, and 9 523 adult remands (6 807 males and 2 716 females) were received for custody. The number of young offenders sentenced to imprisonment totalled 2 145 (648 males and 1 497 females), and 921 young remands (709 males and 212 females) were received for custody. In addition, 816 young offenders (731 males and 85 females) were sentenced to detention in training centres, rehabilitation centres or the detention centre, and 1 324 offenders (1 126 males and 198 females) to drug addiction treatment centres.

People aged between 14 and 20 who are convicted of an offence punishable by imprisonment may be remanded in custody for a period not exceeding three weeks for assessment of their suitability for admission to a training centre, rehabilitation centre, detention centre or drug addiction treatment centre. Male adults aged between 21 and 24 may be similarly remanded for admission to the detention centre.

The CSD runs the Pre-sentence Assessment Panel, which makes recommendations to the courts on the suitability of offenders for incarceration in a detention centre, training centre, rehabilitation centre or drug addiction treatment centre. The panel investigates all cases referred by the courts, and prepares suitability reports for them. In 2004, 5 506 offenders were remanded for suitability reports, and the panel found 1 423 males and 363 females suitable for admission to a rehabilitation centre, a training centre or detention centre, and 1 625 males and 267 females suitable for a drug addiction treatment centre.

The Young Offender Assessment Panel, comprising representatives from the CSD and the Social Welfare Department, makes recommendations to magistrates and judges on the most appropriate rehabilitation programmes for male offenders aged between 14 and 24 and females aged 14 to 20. In 2004, the panel received a total of 361 referrals from judges and magistrates and 81 per cent of its recommendations were accepted.

Training centres provide correctional training for young offenders for periods ranging from a minimum of six months to a maximum of three years. These offenders attend half-day educational classes and receive half-day vocational training. They also receive character development training in the form of scouting or guiding, Hong Kong Award for Young People activities and Outward Bound training. On Sundays and public holidays, visits are made to youth centres, factories, sports centres and country parks. Activities to provide social service for the elderly and the mentally and physically handicapped are arranged for inmates nearing discharge to better prepare them for reintegration into society. The parent-inmate centre at Tai Tam Gap Correctional Institution helps inmates to gain family support and develop a better family relationship. Upon release, inmates must have suitable employment, education or vocational training and are subject to a statutory period of supervision of three years.

The detention centre programme is carried out at Sha Tsui Detention Centre for young male offenders aged between 14 and 20, and young male adults aged between 21 and 24. It emphasises strict discipline, strenuous training, hard work and a vigorous routine. The detention periods for young male offenders and young male adults are one to six months and three to 12 months respectively. After release, detainees are subject to a statutory supervision period of one year.

In operation since July 2002, the rehabilitation centres provide an additional sentencing option for the courts to deal with offenders aged between 14 and 20, and in need of a short-term residential rehabilitation programme. The programme consists of two phases with a total period of detention ranging from three to nine months. The first phase provides two to five months' training in a correctional institution. It focuses on discipline training with the aim of helping young offenders learn to exercise better self-control and develop a regular living pattern through half-day basic work skills training and half-day educational/ counselling programmes. During the second phase of the programme, young offenders are accommodated in an institution with a halfway house setting for one to four months. They may go out for work, attend vocational training and educational courses, and participate in community service programmes. Discharged young offenders are subject to a statutory period of supervision of one year.

An Enhanced Reintegration Programme, providing full-time voluntary vocational training for male prisoners aged between 21 and 25, was introduced in November 2003. It aims at broadening knowledge and increasing work skills of those prisoners with at least junior secondary education. In 2004, eight inmates enrolled in the programme.

Inmates aged under 21 are required to attend educational classes conducted by qualified teachers. Text books approved by the Education and Manpower Bureau and supplementary materials compiled by the CSD are used. To match the development of inmates at different levels and ages, a wide spectrum of curricula is offered. Guidance is provided to adult inmates who participate in educational studies on a voluntary basis. Self-study packages and distance learning courses, including degree courses offered by local and overseas academic institutes, are also available.

All inmates are encouraged to take part in both local and overseas public examinations organised by the Hong Kong Examinations and Assessment Authority as well as other local and overseas authorities. Young inmates may attend formal classes up to certificate level and sit for the Hong Kong Certificate of Education Examination as school candidates. Adult inmates may sit for the examination as private candidates. Inmates may obtain accreditation by way of public examinations held by the City and Guilds of London Institute or the London Chamber of Commerce and Industry Examination Board.

A Prisoners' Education Trust Fund provides financial assistance to prisoners in educational pursuits, in the form of grants generated by charitable donations to cover course or examination fees, and expenses on reference books.

With funding from the Hong Kong Jockey Club Charities Trust, the Jockey Club Inmates' Education Subsidy Scheme was set up in October 2004. The scheme, which lasts for three years, aims to better meet the education needs of prisoners, particularly to increase the number of prisoners enrolling in tertiary educational courses run by the Open University of Hong Kong and other tertiary institutes.

To help young offenders reintegrate smoothly into society as law-abiding citizens, the department provides vocational training programmes for inmates aged under 21 to enable them to learn job skills, obtain accreditation and develop work habits.

The CSD offers various training courses that match the inmates' learning ability and needs. All vocational training courses are designed to meet the demands of the business and industrial sectors in Hong Kong, so that inmates can have a better opportunity for employment upon discharge. Some courses help inmates to obtain qualifications of the City and Guilds of London Institute. Other training courses are provided to prepare inmates for trade tests or examinations conducted by the Vocational Training Council, the Construction Industry Training Authority and the Clothing Industry Training Authority.

The Correctional Services Industries (CSI) provide work to adult prisoners as required by law. Employment keeps all convicted inmates, except those who are physically unfit for work, purposefully and gainfully occupied. Through work, prisoners develop good working habits and a sense of responsibility, build up self-confidence and learn how to work as a team. This will also help them acquire the basic skills for different trades and improve their reintegration into the community after release.

In 2004, a daily average of about 6 745 prisoners were engaged in industrial work. Workshops in penal institutions provide a wide range of goods and services mainly for government departments and public organisations. Examples are government furniture, staff uniforms and leather accoutrement, hospital linen, litter containers and traffic signs. They also make pre-cast concrete products such as paving blocks, slabs and kerbs for highways and infrastructure projects. Prisoners provide laundry services for hospitals, clinics and ambulance depots. They also bind books for public libraries, undertake printing work and make file jackets and envelopes for some government departments. Production and services provided by the CSI amounted to the equivalent of $462 million in commercial value in 2004.

Prisoners' Welfare Officers in the CSD look after the welfare of detainees and prisoners, and help them to deal with personal problems and difficulties arising from detention or imprisonment. Apart from conducting individual and group counselling sessions, Prisoners' Welfare Officers assist in the establishment and running of hobby groups. They also organise activities such as Pre-release Reintegration Orientation courses and meetings with family members of prisoners with the aim of helping inmates to reintegrate smoothly into society upon release and supplying them with information on community resources.

The CSD runs a compulsory treatment programme for convicted drug addicts that provides the courts with an alternative to imprisonment. Male inmates are accommodated at Hei Ling Chau Addiction Treatment Centre and Lai Sun Correctional Institution, and females at Hei Ling Chau Addiction Treatment Centre (Annex). Adult and young inmates are accommodated separately. An inmate undergoes in-centre treatment from two to 12 months, followed by one year's statutory after-care supervision. The programme is based on therapeutic treatment, discipline, work programmes, outdoor physical activities and comprehensive after-care service.

All institutions have their own hospitals providing basic medical treatment, health and dental care to inmates. Those requiring specialist treatment are either referred to visiting consultants or to specialist clinics in public hospitals. HIV and AIDS are not a problem in the institutions. However, the department has established guidelines for its staff on handling such cases, as well as a programme of education and prevention.

Ante-natal and post-natal care is provided in institutions for female inmates, but babies are normally delivered in public hospitals. Siu Lam Psychiatric Centre treats prisoners with mental health problems, and offers psychiatric consultations and assessments for inmates on referral from other institutions and the courts.

Psychological services are provided to inmates to enhance their psychological well-being and to change their offending behaviour. Clinical psychologists and trained officers provide special treatment programmes for inmates such as sex offenders, violent offenders, inmates with drug addiction problems and young offenders. They also provide assessment reports to the courts, review boards and institutional management to assist decision-making on the management and rehabilitation of offenders. In 2004, the CSD's Psychological Services Unit conducted 27 178 counselling sessions for inmates and prepared 441 assessments reports for the courts and related service boards.

After-care supervision is provided to persons discharged from training, rehabilitation, detention and drug addiction treatment centres, young prisoners and prisoners discharged under the Release Under Supervision, Pre-release Employment and Post-release Supervision schemes, as well as prisoners discharged under a conditional release order or post-release supervision order. The aim of after-care services is to facilitate supervisees' rehabilitation and reintegration into society. Rapport among the supervisees, their families and the after-care staff is cultivated to help the supervisees tackle obstacles in their path to rehabilitation. Throughout the statutory supervision period, regular contacts are maintained between the after-care staff and their respective supervisees to ensure that the supervisees settle well into the community and comply with the conditions of the supervision orders. Any breach of the supervision conditions may result in the supervisee being recalled for a further period of training, treatment or imprisonment.

Through the Release Under Supervision and Pre-release Employment schemes, successful applicants may be discharged directly from prison for after-care supervision or permitted to go out to work and live in a hostel with after-care services. Both schemes aim at enabling suitable, eligible and motivated prisoners to serve their sentences in an open environment with supervision.

The Post-release Supervision Scheme provides after-care supervision for certain categories of adult prisoners to facilitate their rehabilitation and reintegration into society. Prisoners breaching the supervision conditions may be recalled to serve the balance of their unexpired supervision period. Prisoners with indeterminate sentences may, before the Long-term Prison Sentences Review Board makes recommendations as to whether their indeterminate sentences should be converted to determinate ones, be conditionally released under supervision for a specific period to test their determination and ability to lead a law-abiding life. Prisoners whose indeterminate sentences have been converted to determinate ones may also be ordered by the board to be placed under post-release supervision.

In 2004, 2 692 offenders were discharged under supervision. Together with those who were discharged in previous years but had yet to complete their supervision period, a total of 2 866 persons (2 579 males and 287 females) were under the CSD's supervision at the end of 2004. During the year, 686 persons (602 males and 84 females) were recalled for breach of supervision conditions.

Success rates of the after-care programmes are measured by the percentage of supervisees completing supervision without reconviction and, as the case may be, remaining drug-free. In 2004, the success rates were 96 per cent for male rehabilitation centre inmates; 98 per cent for female rehabilitation centre inmates; 96 per cent for detention centre inmates; 67 per cent for male training centre inmates; 83 per cent for female training centre inmates; 84 per cent for young male prisoners; 100 per cent for young female prisoners; 62 per cent for male drug addiction treatment centre inmates; 73 per cent for female drug addiction treatment centre inmates; 100 per cent for the Release Under Supervision Scheme; 100 per cent for the Pre-release Employment Scheme; 89 per cent for the Post-release Supervision Scheme and 100 per cent for those prisoners discharged under a conditional release order or supervision after release order.

CSD collaborates with the Methodist Centre to implement a scheme under which the department refers supervisees of Sha Tsui Detention Centre to the Methodist Centre for follow-up if they, after completing the one-year statutory supervision, are still found to be in need of and are willing to receive counselling services. The outcome of the scheme is encouraging, as the recidivism rate of the participants is one third below that of their counterparts. The department has therefore extended its scope to cover supervisees of all supervision schemes and named it the 'Continuing Care Project'. With the support of seven non-governmental organisations, the project was launched in February 2004. During the year, 137 supervisees participated in the project.

Non-governmental organisations such as the Society of Rehabilitation and Crime Prevention, Hong Kong; Buddhas' Light International Association of Hong Kong; Caritas Lok Heep Club; Hong Kong Christian Kun Sun Association; Christian Prison Pastoral Fellowship; Save the Children Hong Kong; and Wu Oi Christian Centre provide services to help offenders and discharged inmates reintegrate into the community. They provide services such as case work, counselling, hostel accommodation, employment assistance, recreational activities and care of children whose parents are in custody.

Community acceptance and support is of paramount importance to the rehabilitation of offenders and their reintegration into society. Comprising representatives of non-governmental organisations, government departments and professionals from various sectors of society, the Committee on Community Support for Rehabilitated Offenders advises the Commissioner of Correctional Services on rehabilitation programmes and publicity strategies.

A series of publicity activities has been launched to appeal for public support for rehabilitated offenders. The major activities in 2004 included the third series of the TV documentary-drama The Road Back, produced in collaboration with RTHK; the third symposium on employment for rehabilitated offenders, jointly organised with the Centre for Criminology of the University of Hong Kong; a public performance named An Unparalleled Show highlighting the talents and potential of people under the department's custody; and joint community activities organised with the 18 District Fight Crime Committees. An increasing number of community groups share the view that the community as a whole will benefit from the successful transition of rehabilitated offenders, and express interest in rendering support to them after learning of their needs and the efforts they have made towards rehabilitation.

To broaden the scope of public involvement, the department formed the CSD Rehabilitation Volunteer Group in early 2004. The volunteers are mostly college students and serving teachers. They help to supplement the services of the department by conducting interest groups on languages, computer studies and other cultural pursuits for inmates in correctional institutions. They also assist in other areas of rehabilitation work, such as taking part in public education activities, which promote community acceptance of rehabilitated offenders.

Information technology is used extensively in the CSD to improve its efficiency in daily operation and record-keeping. Computer systems are used in the management of the movement of people in custody, their daily provisions, work flow of the Correctional Services Industries, and staff management and administration. Continuous efforts are being made to enhance the quality and efficiency of prison management and rehabilitation services through the introduction of new technologies.

The Quality Assurance Division of the department initiates quality management to improve operations by carrying out management studies, inspections and evaluation of services as well as updating departmental practices to bring them in line with the prevailing policy and the changing needs of the community.

Justices of the Peace visit each penal institution fortnightly or monthly, depending on the type of institution. The Justices of the Peace receive and investigate complaints from prisoners, inspect diets and examine living and working conditions.

The Complaints Investigation Unit is responsible for handling and investigating complaints in relation to the department's work. All investigation reports are subject to the scrutiny of the Correctional Services Department Complaints Committee chaired by the department's civil secretary. This unit acquired the ISO 9001:2000 Certificate in August 2002 for its complaints handling services.

Inmates may also lodge complaints with visiting senior officers or utilise other channels for redress of grievances, such as by making complaints to visiting Justices of the Peace, The Ombudsman and Legislative Councillors.