A Model Program

Determining what constitutes a "good" program is by no means an easy or simple task. There are many elements of a program that need to be considered in determining its adequacy -- e.g., content, materials, approach, instructors, effectiveness. These elements take on different importance for each of the various types of programs available. In general, however, the best programs are considered to be those that are (1) based on a consistent philosophy, orientation, or theory; (2) delivered by trained, competent, and dedicated professionals; (3) delivered consistently and uniformly to all participants; (4) sufficiently flexible to allow participants to explore issues of concern to them; (5) subjected to routine monitoring to ensure consistency and quality in delivery as well to identify problems and recommend solutions; (6) effective in achieving their stated objectives. Many of these qualities are found in the programs described in this section.

In developing programs it must be recognized that DWI offenders are a very heterogeneous group. One program, no matter how well developed and delivered, is unlikely to meet the needs of all types of offenders. In this respect, many programs continue to distinguish between offenders on the basis of the number of convictions. While in general first offenders tend to exhibit less severe problems than repeat offenders, there is tremendous overlap between the two offender populations. Although first offenders may have only been apprehended for impaired driving once they may have committed the offence on numerous occasions in the past and, indeed, may have a chronic problem with alcohol abuse. Assignment to rehabilitation programs, then, should more appropriately be based on the extent and nature of the problems experienced by the offender and not on the number of times the offender has been convicted.

Evaluation studies of DWI offender programs have repeatedly stated that the effectiveness of such programs is limited by the diversity of the participant population. Some types of offenders are simply unable to benefit from certain types of programs. For example, chronic alcoholics are unlikely to derive substantial benefit from an educational program. It is more appropriate to direct such individuals to an alcohol treatment program. This selective matching of offenders with specific programs based on identified needs is consistent with the treatment matching approach that is gaining prominence in the alcohol dependence field.

The success of the treatment matching approach applied to the rehabilitation of DWI offenders relies on the systematic assessment of all offenders. This assessment should be as comprehensive as possible, covering a broad spectrum of potential problem areas including -- but not necessarily limited to -- patterns of alcohol use, life circumstances and stresses, family relationships, propensity towards risk taking, aggressive and hostile tendencies, and depression. The results from the assessment are then used to make recommendations about rehabilitation options.

The second critical element in this approach is the availability of programs to meet the specific needs of subgroups of offenders. These programs may be developed especially for DWI offenders or they may be existing programs in the community to meet common needs of the general population. Some offenders may be directed to one or more programs; for others, the appropriate recommendation may be no referral. By dealing with the identified needs of offenders, rehabilitation programs can be made more efficient and effective.

The third element in a model program is a system of routine and periodic monitoring of offenders through the process of assessment, rehabilitation and licence reinstatement. This case monitoring approach serves not only to help guide offenders through the seemingly bewildering array of agencies and programs, but also to provide individual counselling, coaching and encouragement to offenders as they undertake what may be profound life changes during their period of recovery. Case monitors can also identify and deal with potential or emerging difficulties that may interfere with successful rehabilitation.

During the process of recovery, offenders may experience one or more periods of relapse. The stress and pressures associated with changing established patterns of behaviour may cause an offender to return to former drinking patterns. Others may simply be reluctant to change. Any of these situations may result in a subsequent impaired driving incident with the potential for arrest and/or crash involvement. Alcohol ignition interlock devices can serve as an effective adjunct to rehabilitation programs by preventing drinking episodes from becoming an impaired driving incident.

It is highly recommended that an alcohol ignition interlock program be incorporated as part of a comprehensive system for dealing with DWI offenders.

The final element in a model program involves the integration of assessment and rehabilitation with the driver licensing system. Assessment and rehabilitation should become mandatory requirements for licence reinstatement for all offenders. Driver licensing authorities can issue restricted or permanent licences to those whose use of alcohol no longer presents as great a risk on the road. Periodic follow-up reports can also be required to ensure that offenders continue to meet program goals and expectations.

At present, no jurisdiction in Canada has such a comprehensive system for dealing with DWI offenders. Various elements of such a system are in place throughout the country, with Manitoba having a system that most closely resembles this ideal system. The efficient and effective management of DWI offenders requires an integrated system. Programs developed and implemented independently or without consideration of the whole process involved in dealing with offenders can be of only limited utility. Jurisdictions contemplating changes to DWI programs need to consider the overall system and to ensure that there is cooperation and integration among the various stakeholders and systems.