HONG KONG 2004 - Public Order

The Government is committed to reducing both the supply of and the demand for illicit drugs through a wide range of action and programmes. It is also committed to reducing the prevalence and incidence of drug abuse by adopting a multi-modal approach in the provision of treatment and rehabilitation services for drug abusers and dissuading people, in particular the young, from taking or experimenting with drugs.

In combating drug trafficking and abuse, the Government adopts a five-pronged approach which covers legislation and law enforcement, preventive education and publicity, treatment and rehabilitation, research and international cooperation.

Effective law enforcement curtails illicit drug supply and ensures compulsory treatment for many who are convicted of an offence and have a drug dependency. A wide range of treatment and rehabilitation services is provided to meet the changing drug abuse trends and varying needs of drug abusers from different backgrounds.

Preventive education and publicity programmes are organised on a territory-wide basis and at district level to increase public awareness of the harm caused by drug abuse and to encourage people to adopt a healthy lifestyle. Research studies are conducted on various aspects of the drug abuse problem and the evidence-based findings facilitate the planning and launching of suitable anti-drug strategies and programmes. Cooperation at the international level, through exchanges of information and experience as well as joint action against illicit trafficking, enhances the effectiveness of efforts in all these areas.

Composed of experts in various fields of social, community and other areas of anti-drug work, the Action Committee Against Narcotics (ACAN) is a non-statutory body which advises the Government on anti-drug policies and activities. Headed by a chairman, it has 17 unofficial members, two government officials including the Commissioner for Narcotics, and a representative from the Department of Health. Under an arrangement of reciprocal appointment to advisory committees between the Singapore and Hong Kong Governments, the Director of Singapore's Central Narcotics Bureau is also invited to sit on the committee to exchange experience with ACAN members.

To fulfil its international obligations under the 1988 United Nations Convention against Illicit Traffic in Narcotic Drugs and Psychotropic Substances, Hong Kong enacted the Drug Trafficking (Recovery of Proceeds) Ordinance and the Organised and Serious Crimes Ordinance which provide for the tracing, freezing, confiscation and recovery of the proceeds of drug trafficking and other serious crimes.

Since the enactment of these ordinances, assets valued at $387 million have been confiscated and paid to the Government. As at December 31, 2004, assets amounting to $112 million had been ordered to be confiscated and were pending recovery. A further $1,336 million was restrained pending confiscation proceedings under these two ordinances.

The Places of Public Entertainment Ordinance (Amendment of Schedule 1) Regulation 2002, which came into operation in January 2003, brings dance parties at unlicensed premises under licensing control. To dovetail with the implementation of the new licensing arrangement, the Narcotics Division issued a revised Code of Practice for Dance Party Organisers to promote self-regulation by party organisers or venue providers.

The law enforcement agencies, i.e. the Police Force and the Customs and Excise Department, continued to take strong and sustained enforcement action to suppress drug trafficking and related crimes. Both agencies enhanced cooperation and communication with external authorities and achieved fruitful results in the disruption and halting of trans-national trafficking activities and arrest of criminals. Cooperation with Guangdong Province and Macao was also strengthened through the mounting of parallel law enforcement actions, sharing of intelligence, and exchange activities.

Hong Kong adopts a multi-modal approach in providing treatment and rehabilitation services to cater to the different needs of drug abusers from varying backgrounds.

The major drug treatment and rehabilitation services include a compulsory drug treatment programme operated by the Correctional Services Department, a voluntary methadone out-patient treatment programme provided by the Department of Health, and voluntary residential programmes run by non-governmental organisations including Christian therapeutic drug treatment agencies. Medical and psychiatric treatment for psychotropic substance abusers is provided by six substance abuse clinics under the Hospital Authority. In addition, five Counselling Centres for Psychotropic Substance Abusers operated by non-government organisations are subvented by the Social Welfare Department to provide community-based treatment services to psychotropic substances abusers and support services to their families.

The Drug Dependent Persons Treatment and Rehabilitation Centres (Licensing) Ordinance provides for the control of treatment centres catering to voluntary residential treatment of four or more persons, through a licensing scheme administered by the Social Welfare Department. As at year-end, 38 out of 44 Certificates of Exemptions issued to treatment centres operating before commencement of the ordinance and a licence were renewed, and five licences were issued to existing treatment centres.

The Third Three-year Plan on Drug Treatment and Rehabilitation Services (2003-05) was released in December 2003. The plan examined the adequacy of existing drug treatment and rehabilitation services in Hong Kong with a view to formulating strategies and future directions. Pursuant to recommendations made in the 2003-05 Plan, a Task Force was formed in May with representatives from government departments and non-governmental organisations to consider setting up a Service Information System that would provide data for drawing up future service standards for local drug treatment services. A database containing comprehensive information on the drug treatment and rehabilitation services in Hong Kong was set up in October to enable drug dependent people seeking treatment to make better informed choices.

During the year, various measures were adopted to improve the services of methadone clinics pursuant to the recommendations of the Report on the Review of the Methadone Treatment Programme. Individual and group counselling services for methadone patients and their families were enhanced. The Department of Health implemented universal HIV urine testing at all methadone clinics with effect from January. Actions were taken to identify suitable premises to set up a dedicated social service centre to provide enhanced and one-stop support services for methadone patients.

The Narcotics Division adopted a multi-faceted approach in publicising the anti-drug message during the year. To sustain drug education for students, the division continued to provide school programmes to students at Primary 5 and 6 and those from schools of the English Schools Foundation and international schools. During the year, 1 204 education programmes for 127 279 students were delivered. Apart from programmes targeting students, drug talks and seminars were also conducted for 3 013 teachers, social workers and members of youth groups. The Narcotics Division also ensures that anti-drug educational activities offered by various government departments and NGOs to secondary school students carry the right message and the most current findings and trends.

To intensify education and publicity on the anti-drug front, the Hong Kong Jockey Club Drug InfoCentre (DIC), the first ever exhibition centre dedicated to drug education in Hong Kong, was commissioned for public use in June 2004. The centre is a two-storey exhibition hall of 900 square metres comprising exhibition areas, an interactive theatre, a library, an info cafe and a classroom. Through multi-media exhibits and interactive games, visitors learn more about drugs, the harm caused by drug abuse and methods of prevention. In the interactive theatre, a movie about young people and drugs is shown. Viewers have an opportunity to take part in discussions and vote on a character's drug-taking decision. The division provides guided tours and drug education programmes for students visiting the centre. Since its commissioning, 18 689 visitors have made use of this new facility, and 119 education programmes for 6 344 students were delivered there. Another 112 programmes were conducted for 4 781 members of uniform groups, youth centres, rehabilitation centres and community organisations. Anti-drug officials from the Mainland, Singapore, Macao, Japan, Israel, Australia and Vietnam have also visited the Centre.

Youngsters continued to be the main target of anti-drug publicity and education. In conjunction with RTHK, the division in March launched a project, Beating Drugs, Power Touch, making use of a multi-media platform on the Internet to disseminate anti-drug messages to youngsters. In addition, a series of six thematic gatherings with teenagers featuring performance and sharing sessions with rehabilitated drug abusers, parents, a doctor, a social worker and young artistes were organised. Footage of the gatherings were uploaded and broadcast on RTHK's new web channel, Teen Power.

A publicity campaign, Real Friends Don't Offer Drugs, was launched in June. New TV and radio Announcements in the Public Interest (APIs) and posters were produced to call upon young people to make the right decisions and use peer influence to sway friends from taking drugs.

Publicity was enhanced during festive seasons and summer holidays. In addition to advertisements on electronic media, public transport and giant wall banners, posters carrying this year's theme were sent to the major karaoke operators for display during Christmas and New Year. The poster was also adopted as a screen saver for their computer selection system.

With the help of a mobile phone network provider, Short Messaging System (SMS) messages were sent to young mobile phone users aged 15 to 25 to remind them not to take drugs at Christmas.

Statistics on drug abuse are supplied by the Central Registry of Drug Abuse (CRDA). Information on drug abusers is collated by the Registry through a wide network of reporting agencies, including law enforcement departments, treatment and welfare agencies, hospitals and clinics. The CRDA computer system is being redeveloped. Upon completion, the Registry will be able to capture more drug abuse data, cater to electronic data submission and provide more in-depth analyses. More graphical presentation of drug abuse trends supplemented with on-line data enquiry functions will also be available on the Narcotics Division web page (www.nd.gov.hk).

In 2004, some 14 714 drug abusers were reported to the Registry. Of these, 25 per cent were newly reported cases, 14 per cent were aged under 21, and 82 per cent were males. Heroin remained the drug most commonly abused in Hong Kong, with 70 per cent of drug abusers reported to the CRDA being heroin abusers. The prevalence of psychotropic substances among drug abusers has increased noticeably over the years, with the proportion of psychotropic substance abusers rising from 34 per cent in 2000 to 42 per cent in 2004. In 2004, psychotropic substances commonly abused included ketamine (18 per cent), triazolam/midazolam (12 per cent), cannabis (8 per cent) and ecstasy (8 per cent). About 24 per cent of drug abusers were reported to have abused more than one drug.

Drug-related research studies are monitored by the ACAN Sub-committee on Research. Findings of these studies provide useful references to facilitate the Government's formulation of anti-drug strategies and programmes. During the year, a new project on the drug abuse situation among ethnic minorities was identified for implementation. The objectives of this study include identifying profiles, trends and behaviours of ethnic minority drug abusers in Hong Kong, the social consequences associated with their drug abuse and barriers for them to receive services and assessing the service needs of these drug abusers.

Moreover, five other studies carried forward from previous years. Two of them, a study on initiation, continuation and impact of drug use among females and a study of substance abuse in underground rave culture and other related settings, were completed during the year. The former focused on identifying the factors relating to initiation and continuation of drug use among females, and the social and physical consequences associated with drug use. The latter study aimed at analysing the various features of underground rave parties and related settings, their attractions to youth and the drug abuse situation in these settings. The studies provided useful and in-depth evidence-based information to help the Government to understand the situations and formulate appropriate policies.

The Government continued to participate actively in international forums against drug abuse, drug trafficking and money laundering. Apart from fulfilling its obligations under the three major UN conventions concerning narcotic drugs and psychotropic substances, it also maintains close links with the UN, the World Health Organisation, the International Criminal Police Organisation (Interpol), the World Customs Organisation and other governments, to ensure that Hong Kong's anti-drug and anti-money laundering work remains in step with current international standards and requirements.

In March, representatives from the Narcotics Division attended the 47th session of the UN Commission on Narcotic Drugs, held in Vienna, as members of the Chinese delegation. The meeting helped keep Hong Kong abreast of international drug abuse, trafficking and supply trends.

In response to the big increase in traffic and passenger flows between the Mainland and Hong Kong in recent years, the Narcotics Division has developed close ties with the Guangdong Narcotics Control Commission to align the anti-drug policies and strategies of the two places. The Police Force and Customs and Excise Department have also established cooperative mechanisms with their Mainland counterparts. The scope of cooperation includes exchange of information and intelligence, assistance in investigation, mounting of joint operations, and experience sharing seminars.

The Social Welfare Institute of the Macao SARG hosted the third Guangdong, Hong Kong and Macao Tripartite Conference on Policy to Tackle Drug Abuse and Trafficking in Macao in September. More than 120 anti-drug officials from the three places attended the conference for fruitful exchanges on the latest drug abuse and trafficking trends and strategies to tackle the problem.

As an international financial centre, it is important for Hong Kong to maintain an effective anti-money laundering (AML) and countering terrorist financing (CFT) regime. Hong Kong is committed to cooperating closely with international organisations and individual governments, both on a multilateral and bilateral basis, to maintain the effectiveness of the global campaign. Hong Kong is a member of the Financial Action Task Force on Money Laundering (FATF) as well as a founding member of the Asia/Pacific Group on Money Laundering (APG). In 2004, Hong Kong continued to step up its efforts and participate proactively in international action against money laundering and terrorist financing.

On regional cooperation, besides taking part in its plenary meetings, Hong Kong has played an active role in the APG's typologies exercise, including serving as the speakers and participating in its annual typologies workshop in Brunei in October. Hong Kong took part in the APG mutual evaluation of Niue in November and continued to serve as a member of its Steering Group, an advisory body which sets the direction and priority of the work of the APG. Hong Kong also participated in the International Monetary Fund/World Bank-led assessments of the Cook Islands in February.

At the international level, Hong Kong has joined the newly formed FATF Typologies Project Team on Alternative Remittance Systems (ARS) and participated in the FATF's annual typologies workshop held in Moscow in December. The project team will work with relevant bodies and organisations to develop an overview of the current state of knowledge on ARS and their potential misuse for money laundering and terrorist financing. It will also identify updated typologies on misuse of ARS for criminal purposes and identify areas for possible refinement of FATF standards for dealing with ARS.

With a view to reinforcing the AML and CFT regime of Hong Kong, work has started to put in place, through administrative and other means, the revised FATF Forty Recommendations issued in June 2003. It is anticipated that the implementation, which will take about two years, will be completed in 2006. To tie in with the implementation exercise, Hong Kong will host an international conference in February 2005 to promote international and regional exchange and cooperation on AML issues. The forum will be a good opportunity for government representatives and sectors involved in AML from various jurisdictions to review progress and to share experience in the tackling of money laundering.

On the anti-terrorism front, Hong Kong has put in place legislation to give effect to the United Nations Security Council Resolutions (UNSCRs) on terrorism and terrorist financing. In July, the United Nations (Anti-Terrorism Measures) (Amendment) Ordinance was passed by the Legislative Council. It amended the United Nations (Anti-Terrorism Measures) Ordinance passed in 2002, to give full effect to the UNSCR 1373 and the FATF Special Recommendations (SRs) on Terrorist Financing. Hong Kong also took part in and contributed actively towards the work of FATF's Working Group on Terrorist Financing, which is responsible for drawing up guidance and interpretative notes for implementing eight SRs on Terrorist Financing. Hong Kong participated actively in the formulation of SR IX on detection and monitoring of illicit cross-border movement of cash, which was published by the FATF in October.

In the context of the Non-Cooperative Countries and Territories (NCCT) exercises, Hong Kong has acted as the principal contact in the review exercise of Indonesia since 2000. Hong Kong joined the Asia/Pacific Review Group face-to-face meetings in Seoul and Brunei in June and October respectively. As the primary reviewer of Indonesia, Hong Kong also took the lead in coordinating the Group's on-site visit to Indonesia in early 2005.

To combat trans-national crimes effectively, Hong Kong continued to support mutual assistance between jurisdictions. By year-end, it had entered into 16 agreements and signed 13 bilateral agreements with other jurisdictions on surrender of fugitive offenders.

To promote community efforts to beat drugs, the Government established a Beat Drugs Fund in 1996 with a capital outlay of $350 million. During the year, a total of $6.85 million was allocated to 15 projects. Apart from education and publicity projects, treatment and rehabilitation and research works were also sponsored. For example, a drug treatment centre was funded to provide outpatient counselling service to female rehabilitated drug abusers. Another community organisation received funding to launch an anti-drug advertisement design competition. A research study on the association between severe folate deficiency and psychotropic substance abuse, in particular cough mixture abuse, was also allotted funds.

The Anti-drug Volunteer Group had 320 individual and 90 corporate volunteers. Individual volunteers participated in 25 anti-drug community and publicity activities, including district carnivals, visits to treatment and rehabilitation centres, exhibitions and seminars. Apart from participating in outreach anti-drug activities, volunteers served as gallery enablers at the Hong Kong Jockey Club Drug InfoCentre (DIC). To publicise the DIC, volunteers helped put up publicity booths at major shopping malls.