One of the reasons advocated for the emergence of "PACT" is that the CSA does not adequately look after the interests of particular groups of civil servants. The "inadequacy", assuming that it be true, is only one of the uses of fragmentation; it does not explain the underlying forces that make these "dissident groups" so interested in seeking representation in the central council. As Quinlan in his report said:
"Civil service staff associations are pre-occupied with maintaining or improving salaries, promotion prospects, fringe benefits and occupational/professional status. Of less immediate importance to members is job security, shorter hours and physical working conditions."
As a matter of fact, nine out of ten unions were formed in the last few years to pursue interests and benefits pertaining specifically to their own grade. Very few would be interested in matters such as age of retirement, Widows and Children's Pension Scheme, Pensionability of Married Women Officers, etc. which are discussed in the central council.
REAL CAUSES
There is a limited number of issues discussed in the existing central council which may be of particular concern of every civil servant. Of the more significant ones are housing assistance for all civil servants and general pay adjustments. At the moment, there is considerable discontent among civil · servants, especially those belonging to the middle and lower income brackets, over these two issues. This might to a certain extent lead to a claim of the General Union for representation in the central council, where, as they tell their members, they may exert greater pressure to the Government.
Most of the former "PACT" members are frustrated unions who have problems with the Government mainly arising from pay disputes. They believe that they may extract greater concessions from the Government by being scen as a collection of 'problem' or 'militant' unions. Others, realizing the smallness of their own unions, see the advantages of coming together.
There is a personal element without which "PACT", and thus the General Union, might not have emerged. A former leader of the HKCCSA decided to become an elected Urban Councillor after his retirement from the civil service. He realized that one of the best ways to secure votes was to make himself known by as many unions as possible. Therefore, to pave his way for election, he started to organise a federation of civil service unions a few years prior to his retirement. Unfortunately, the HKCCSA, after his retirement, dis- associated from the idea, realizing that the creation of a federation would not only duplicate but also submerge the role of HKCCSA as the leading civil service union. The "Leader" was displeased and persuaded his followers to form another organisation later known as "PACT". The status of "PACT" would reflect the status of the "Leader" and for this reason it is essential that this organisation be recognised by the Government and represented on the central council.
CONCLUSIONS
The emergence of "PACT" or the General Union is but one form of union fragmentation exacerbated by personal factors. It is not a natural "move of merger" arising from a sense of solidarity. In a way it may be termed as a struggle for power, status, and, to a certain extent, personal interests.
There is much to be desired in the present structure of staff relations. But the admission of a fourth general union which exists only in form, but not in substance, is certainly not, the key to the problem. It will only. weaken the position of the Staff Side and encourage the formation of many more "general unions".
HONG KONG CHINESE CIVIL SERVANTS' ASSOCIATION
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