rR, HEALTH PLANNING
and E koR RESEARCH UNIT Christchurch
A BRIEF HISTORY OF ALCOHOLISM TREATMENT SERVICES IN NEW ZEALAND, 1965-1983
Tor Wainwright
September 1985 Planning and Research Series No. 19
L
------A BRIEF HISTORY OF ALCOHOLISM TREATMENT SERVICES IN NEW ZEALAND, 1965-1983
Tor Wainwright
S
Health Planning and Research Unit P.O. Box 1876 Christchurch Planning and Research Series No. 19
September 1985
The Health Planning and Research Unit has staff funded by both the Canterbury Hospital Board and the Department of Health. ACKNOWLEDGEMENTS
This review could not have been undertaken without the co-operation of the people involved in alcoholism co-ordinating committees and treatment agencies throughout New Zealand who responded to the request for information - their help was very much appreciated. Particular thanks to Helen Orchard, Tom Joll, Roy Johnston, Clint Miller, Patsi Davies, Gary
Harrison. I
The advice and support of Dr Elisabeth Wells of the Christ- church. Clinical School and of colleagues in the Health Planning and Research Unit is gratefully acknowledged, as is the work of Julie Fussell and Maureen Parkyn in typing the drafts. and final copy, and Lesley Symington s work in getting the report printed. . The responsibility for any errors in the final report remains that of the author. CONTENTS
Page 1. INTRODUCTION AND METHODOLOGY 1
2. THE DEVELOPMENT OF THE DIFFERENT TYPES OF FACILITY 2
a) Introduction b) The psychiatric hospitals c) Other hospital board services d) The N.S.A.D. centres e) The Salvation Army Bridge Programme f) Other voluntary agencies
3. THE DEVELOPMENT OF SERVICES WITHIN EACH REGION, 1965 - 1983 6
- Auckland, Northland and Coromandel - Tauranga and Whakatane - Waikato - Gisborne and Hawkes Bay - Taranaki - Manawatu - Wairarapa - Wellington - Nelson and Blenheim - Canterbury - West Coast - Tirnaru and Oamaru - Otago - Central Otago - Southland
4. ADMISSIONS OVER TIME TO INPATIENT FACILITIES LINKED TO THE HEALTH DEPARTMENT S PSYCHIATRIC REGISTER 34
5. EVENTS SINCE 1983 38
REFERENCES 39
I LIST OF TABLES
Page TABLE 1 Summary of Alcoholism Treatment Services in New Zealand, 1953 - 1983 21
a) Psychiatric Hospitals
b) Other Hospital Board services
C) The NSAD Centres
d) The Salvation Army Bridge Programme Network
e) Other Voluntary Agencies (by Region)
TABLE 2 Admissions to Psychiatric Hospitals and 35 Psychiatric Units Within General Hospitals for Alcoholism and Alcoholic Psychosis, 1964 - 1982 (First Admissions and Readmissions Combined)
TABLE 3 First Admissions as a Percentage of all 37 Admissions for Alcoholism and Alcoholic Psychosis, Selected Hospitals, 1964 - 1982 1.
1. INTRODUCTION AND METHODOLOGY
Treatment facilities for alcoholism have sprung up rapidly in New Zealand over the past ten to fifteen years. This paper, which is part of a larger study, attempts to sketch the outline of this growth; a full account of the personalities and events of this period is still to be written. The aim of the larger study is to investigate the trends over time in the utilization of alcoholism treatment services in New Zealand, using data obtained from the New Zealand Health Department s psychiatric register (see Wells and Wainwright, 1985). This register, which was set up in 1967, can provide information on the admission histories of cohorts of individuals through time. Since changes in hospital admission figures are very much dependent on changes in the services available at each hospital, information was sought on the opening and closing dates of alcoholism treatment services around New Zealand, to aid in the interpre- tation of the data used in the main study. This historical data forms the basis of the present paper.
The ALAC Directories of Treatment Services and national newspaper clipp- ings from 1978 to 1983 (using the Health Department s clipping service) were used to compile an initial list of facilities. In late 1983 letters were sent to individual treatment agencies and co-ordinating bodies asking for information on their local area. Admission figures for inpatient services administered by the hospital boards and several other organisa- tions was obtained from the Health Department s yearly Mental Health Data series, and information on hospital board outpatient admissions for 1983 was obtained from a compilation of figures made by Helen Orchard, research officer of ALAC. Admission figures for agencies not linked either to the Health Department s psychiatric register or to ALAC s data collection system for outpatient centres were not sought.
Part 2 briefly outlines the development of the different types of facility: psychiatric hospital units, other hospital board services, the NSAD centres, the Salvation Army Bridge network, and other voluntary agencies. A brief description is given in Part 3 of the services that were set up within each region between 1965 and 1983. This information is summarised in Table 1. In Part 4 published inpatient data from the Mental Health series are summarised to show changes over time in admission patterns for individual hospitals and units. 2.
2. 1 THE DEVELOPMENT OF THE DIFFERENT TYPES OF FACILITY
a) Introduction
The evolution of New Zealand s alcoholism treatmentfacilities mirrors the changes that have occurred over time in our society s attitudes to- wards the alcoholic. The view, common in the late nineteenth and early twentieth centuries, that the only hope for the drunkard lay in hard work and prayer, was embodied in the early Salvation Army institutions on Rotoroa and Pakatoa Islands, which the Army ran in conjunction with the Justice Department. Apart from the care given to psychotic or demented alcoholics by the psychiatric hospitals as part of their general psychiatric treat- ment, Salvation Army homes provided the only help available specifically for the alcoholic until after the second world war. In 1946 Alcoholics Anonymous came to New Zealand, bringing a new view of alcoholism as a disease which needed treatment, rather than a problem solely for the courts or churches. With other interested individuals, AA formed the National Society on Alcoholism (NSA, later NSAD), a national body that worked actively towards the general social acceptance of alcoholism asa major health problem. The gradual success of this campaign, boosted by the setting up in 1976 of the Alcoholic Liquor Advisory Council, had by the early 1980s resulted in the establishment of hospital board treatment facilities in most areas of the country, as well as the upgrading and expansion of Salvation Army services and an upsurge of activity by other voluntary organisations. The spread of new services is still continuing, albeit with somewhat less emphasis on the medical aspects of treatment and more interest in the contribution of other disciplines, such as behavioural psychology, family-orientated social work and community-based preventive work.
b) The Psychiatric Hospitals Since their inception in the late nineteenth century, all the major psychiatric hospitals have provided a basic service for people suffering from acute alcoholic psychosis or long-term alcohol-related dementia. However their willingness to accept people for detoxication or for the treatment of alcohol dependence has fluctuated over time, dependent largely on the personal interest of a few individual staff members. Growing public pressure in the 1950s from the National Society on Alcoholism and other bodies led the Minister of Health to request hospital boards to provide better services for alcoholism treatment. Little came of this, however, probably partly because psychiatric hospitals at that time (and until 1972) were administered not by local hospital boards but by the Health Department, and perhaps partly because the psychiatric setting was not always seen by those lobbying for better treatment for alcoholism as the most appropriate place for such treatment. In the vacuum created by a lack of inpatient treatment facilities and in response to growing public demand, Queen Mary Hospital at Hanmer Springs began to specialise in the treatment of alcoholism, taking referrals from around New Zealand. This hospital, established later than the main psychiatric hospitals, had previously admitted people on a voluntary basis only for psychoneurotic conditions. Many of the alcoholism referrals came from NSAD centres and general practitioners, and by 1972 the hospital s programme was aimed solely at people with alcohol problems. 3.
The passing of the Alcoholism and Drug Addiction Act in 1966 made formal provision for the voluntary or involuntary committal of people to a registered institution for the treatment of alcoholism. This Act, which came into force on January 1st 1969, acted as an incentive for the estab- lishment of programmes in several psychiatric hospitals, notably Sunny .- side and Kingseat. The development of programmes in the other psychiatric hospitals registered under this Act appears to have been more variable over time and place.
Admission and discharge information on patients has been collected from all New Zealand psychiatric hospitals (both public and private) by the National Health Statistics Centre since 1953, and reported in a yearly series Mental Health Data. From 1967 this information was compiled in the form of a psychiatric register at NHSC (see Table la, p.21). c) Other Hospital Board Services
General hospital psychiatric units: during the 1960s and early 1970s many hospital boards opened psychiatric units within their major general hospitals. From 1967 onwards information from these units was in- cluded in the national psychiatric register and reported in the yearly Mental Health Data series. While these records show that all of these units admitted people with a diagnosis of alcoholism or alcoholic psychosis, few, if any of them, provided a separate treatment pro- gramme for alcoholism. As with the psychiatric hospitals, the treatment received by alcoholics in these units probably varied considerably over time and place.
General wards within general hospitals: the 1960s and 1970s saw some initiatives taken by staff within the general medical wards of several hospitals to provide an alcoholism treatment service. Interested medical and other staff at Auckland, Palmerston North, Nelson and Southland hospitals, for instance, offered detoxication, counselling and referral to their alcoholic patients. Records of the number of people receiving care in this way are not easily obtainable, however, being incorporated into the records of the general medical wards, and these services moreover tended to lapse after the individuals concerned left the hospital.
Outpatient assessment centres: the setting up of the Alcoholic Liquor Advisory Council in 1976 represented a definite government commit- ment to provide better treatment services for alcoholism. With encourage- ment from the Council, hospital boards around the country began to set up specialist outpatient centres offering assessment, counselling and referral both to people referred from general practitioners, probation and other agencies, and to people "off the street". Some of the bigger centres were sited in the community, away from the general hospital (e.g. Christchurch, Wellington, Dunedin, Palmerston North), while others were situated within a general hospital with access to beds for detox- ication (e.g. Invercargill, Stratford). In some cases the setting up of the centre was achieved initially with the help of staff from NSAD and other voluntary organisations until the hospital board took on respons- ibility for funding (e.g. Stratford, Napier). In the case of some smaller hospital boards (e.g. Tauranga, Blenheim) the establishment of an
I 4.
alcoholism service had by 1983 gone only as far as the appointment of a co-ordinator who worked with existing hospital staff to provide a detox- ication and assessment service. The development of services in these smaller boards in particular was still actively continuing in 1983. (See Table lb).
As these outpatient centres opened from 1977 onwards, ALAC encouraged them to adopt a standardised recordkeeping system to enable the collec- tion of national data on outpatient admissions. An initial comppilation of these data was made by ALAC s research officer for the 1981-82 years (see Valentine, 1983), and a more comprehensive report was produced for the 1983 year (see Orchard, 1984). In 1984 a report undertaken for ALAC on the feasibility of incorporating outpatient data with existing inpatient data in a register system concluded that the setting up of such a register would not be worthwhile, but that extending the out-patient data collection to include "voluntary" (i.e. non hospital board) agencies would be worthwhile. (See Wagemaker, 1984). d) NSAD Centres
Apart from the network of Alcoholics Anonymous and Alanon groups, the in- formation centres of the National Society on Alcoholism and Drug Dependency were the first treatment service to be set up in many parts of New Zealand. The offices of this voluntary organisation, which opened in many cities and towns from the late 1950s onwards, provided information, education, assessment, counselling and referral to alcoholics and their families, and worked in closely with AA and Alanon. The Society, in the past through its local branches and more recently through its national centre, has played a major part in lobbying the Health Department and Hospital Boards to take responsibility for alcoholism as a major health problem and to set up adequate treatment facilities, and in urging Government to adopt an official policy on the treatment and prevention of alcoholism. As hospital boards began to provide outpatient services in the late 1970s and early 1980sNSAD closed some of its offices. As well as encouraging the development of hospital board and other facilities, the Society had also set up and managed its own residential facilities in some areas. These are: Matt Talbot House in Invercargill, Viard House and Aspell House in Wellington and a treatment centre in Featherston. (See Tables lc and le). e) The Salvation Army Bridge Programme Rotoroa Island, opened by the Salvation Army near Aucklandin 1909, was al- most the first alcoholism treatment facility to be set up in New Zealand . The Army s emergency night shelters in the main centres offered accommo- dation to men suffering from alcoholism as part of their service to the general population. In 1959 the Army set up residential treatment