RASHKB Journal 皇家亞洲學會香港分會學刊 | RAS-1971
https://digitalrepository.lib.hku.hk/catalog/z029vt43g
68

ALINE K. WONG

with their leaders. Among the Kaifongs themselves, a Joint Kaifong Research Council and, since 1968 a second federation, the Council of Hong Kong and Kowloon Kaifong Associations serve as co-ordinating bodies. Today, there are 54 Kaifongs, claiming a total membership of over 850,000 people.

The Kaifong associations of Hong Kong are traditional Chinese organizations, whose roles are very similar to the overseas Chinese institutions. The welfare functions of the Kaifongs are comparable to the welfare functions of the district and dialect associations. They form some sort of social security system in places where the government does not always provide such a service for the Hong Kong residents. Thus they give out relief, render medical services, open Chinese language schools and offer death and burial benefits. They encourage mutual-aid and friendliness. Like the district and dialect associations in the overseas Chinese communities, the Kaifongs are community-wide associations. However, the membership of the Kaifongs is neither based on ethnic grouping, nor on dialect grouping. Rather, Kaifong membership is based on the place of residence.

Though the Chinese population is not a numerical minority in Hong Kong, the Chinese here are a minority in the social and political sense. They do not have direct representation in the Legislative and Executive Councils. Elected representatives only sit on the Urban Council, the municipal body which takes charge of civic amenities, public health and environmental sanitation. Socially and economically most Chinese stand at a number of disadvantages when compared to the European élite. Although there is no system of indirect rule in urban Hong Kong, the Kaifongs act as one of the principal intermediaries between the authorities and the people. The Kaifong leaders, being community "notables", are very appropriate intermediaries between the Government and the general public. They also act as arbiters of disputes. By tradition, the Chinese are adverse to approaching Government officials directly or going to law for the settlement of disputes. They prefer mediation by a third party. The Kaifongs thus resemble the district and dialect associations in overseas Chinese communities as far as their political functions are concerned.

Big benefactors and leaders of community organizations are
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RASHKB Journal 皇家亞洲學會香港分會學刊 | RAS-1971
https://digitalrepository.lib.hku.hk/catalog/z029vt43g
THE DISTRICT WATCH COMMITTEE: 'THE CHINESE EXECUTIVE COUNCIL OF HONG KONG

H. J. LETHBRIDGE*

An American political scientist, Lennox Mills, concluded after a period of research in Hong Kong that the District Watch Committee was 'in reality the Chinese Executive Council of Hong Kong'. Yet ‘legally', he continued, it is merely a committee of fifteen Chinese who meet under the chairmanship of the Secretary for Chinese Affairs to manage the District Watch Force" — in 1941 a body of some 120 Chinese constables and detectives recruited and paid for by the Committee for the purpose of patrolling predominantly Chinese districts of urban Hong Kong Island and Urban Kowloon. The 1941 Committee contained the five names of the Chinese unofficial members of the Legislative and Executive Councils as well as a number of extremely rich and influential Chinese, all of whom sat on various interlocking committees and boards. The Committee, needless to say, because of its prestigious membership, exercised political power within the Chinese community: it was, therefore, a group listened to and cosseted by the government.

The purpose of this paper is to trace the development of the District Watchmen Force, a constabulary body, from its inception in 1866 and to show how its Committee of Management acquired over time prestige, status and power so that it became, as Lennox Mills wrote, 'the Chinese Executive Council of Hong Kong'.

When the Island of Hong Kong was ceded to Britain in 1842, some Englishmen assumed its Chinese inhabitants were a chance collocation of poor peasants, piratical fishermen and unkempt

* Mr. Lethbridge is Senior Lecturer in the Department of Sociology, University of Hong Kong. He is the author of several articles on Hong Kong subjects. His "Hong Kong under Japanese Occupation: Changes in Social Structure" appeared in I. C. Jarvie and Joseph Agassi, Hong Kong, A Society in Transition — contributions to the study of Hong Kong Society (London, Routledge and Kegan Paul, 1969) pp. 77-127. Another article, on the Tung Wah Hospitals 1870-1970, will appear in Contributions to Asian Studies, Vol. I, 1971. His "Hong Kong Cadets, 1862-1941" appeared in the 1970 Journal, Ed.
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RASHKB Journal 皇家亞洲學會香港分會學刊 | RAS-1971
https://digitalrepository.lib.hku.hk/catalog/z029vt43g
The District Watch Committee

123

District Watch Committee. In 1920 the post of Advisor (Ku Man) was created and the first occupant — and it would seem the only one — was the distinguished Sir Boshan Wei Yuk, the founding father of the Committee.

By the end of the nineteenth century, relations with the Police had improved. In 1897 the district watchmen on duty in Victoria were placed on police beats and subjected to the supervision of police inspectors and sergeants on patrol duty. This was done on the recommendation of the Captain Superintendent of Police, F. H. May (a Cadet Officer like Lockhart), who remarked in his annual report for that year that 'the object was to improve the efficiency of this very useful auxiliary Police Force, and to bring them into closer touch with the Police'. The reputation of the regular police had improved by that date and the Committee concurred with the innovation. The efficiency of the District Watch was further raised by the secondment in 1918 of a European police officer27 to take charge of and train the detective staff, a practice that continued until 1949. As a result of this change, the number of convictions obtained by the district watch detective force tended to rise from year to year. The force became steadily more professionalised, especially its detective branch. The Secretary for Chinese Affairs claimed in 1922 that 'the connection with the Regular Police has been effectively used to the advantage of both sides, and without interference with the essential character of the District Watch'; and in 1924 he wrote 'the Captain Superintendent of Police was on occasion present by invitation at the Councils of the Committee, and it is satisfactory to note the close co-operation between the two forces'. However, the force did not increase markedly in size over time — there were only 48 watchmen in 1891 and 120 in 194128 — although the area patrolled and the urban population both increased over this period. In 1910 it was found necessary to extend patrols further as the Chinese population spread up to the higher levels of the town; in 1913 the Committee was obliged to raise money for District Watchmen's Quarters in Kowloon; and by 1925 the districts of Yaumati and Mongkok were being patrolled; and by 1930, Shamshuipo. The rate of voluntary subscription was also raised slightly29.

The District Watch was a Chinese and not a European police force and its duties were more diverse than those normally
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RASHKB Journal 皇家亞洲學會香港分會學刊 | RAS-1971
https://digitalrepository.lib.hku.hk/catalog/z029vt43g
126

H. J. LETHBRIDGE

of the District Watch Committee stemmed not only from this subjective ranking of committees and from the great 'face' given by government to the Committee: the Committee acquired its influence principally because its members were appointed in the first instance to serve for five years and in nearly every case this period was renewed. Some members served for over twenty years37. Thus the committeemen of the District Watch were able to build up particular relationships for a very long period of time with important government officials and members of the community, Chinese and European. As a consequence, they began to be seen as elder statesmen as ‘elders' if you like above the fray, beyond criticism. They exemplified civic virtue, public spirit and successful climbing. They stood out sharply from the mass; they were listened to with respect; they became known to many people by name; they were seen at public functions and on public occasions. In sociological language, they were both instrumental and ritualistic leaders. The colonial government honoured them in numerous ways, by, for example, printing their names in the Hong Kong Civil Service List; and their standing was emphasised by the tradition that developed of the full Committee meeting twice a year, though often more than that38, at Government House, with the Governor himself presiding in the chair. Nomination to the Committee meant, it is clear to see, a complete validation of a person's status and public respectability.

From 1880, when the first Chinese was nominated to the Legislative Council, to 1941, sixteen substantive appointments were made to the two Councils: nearly every such person had been active on the Committee. As T. C. Cheng confirms: for many years it was more or less a tradition for prominent Chinese who wished to render public service to the Colony, to begin their public career with the Committee, and then, in the case of those who had a knowledge of English, to proceed to the Sanitary Board (which was replaced by the Urban Council in 1935) and thence to the Legislative Council. Nomination to the Committee thus made possible translation to even more prestigious positions and, in a few cases, to the acquisition of a Knighthood.

The Committee was able to develop into the chief consultative body because, among other factors, the population of Hong Kong
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RASHKB Journal 皇家亞洲學會香港分會學刊 | RAS-1997
https://digitalrepository.lib.hku.hk/catalog/wp98g7579
In the developed areas the working party had its own preferences, but diplomatically decided to let higher authority decide on detail. The general intention was to set up what would be known in the conurbations as Municipal Councils or (minor) Urban District Councils (UDC), and elsewhere as District (or Local) Councils. This might, as the Governor-in-Council chose to decide, produce a Municipal Council for Hong Kong Island and a District Council for the non-urban area, with Aberdeen joining either or becoming a separate UDC; one or two Municipal Councils for Kowloon and New Kowloon; a UDC for Tsuen Wan; and no other change for the NT (but possibly three District Councils one day, where currently the DOS Tai Po, Yuen Long and South held sway.) All would be elected from geographical wards, and not from area-wide rating or electoral rolls; and by preference from single-member wards, with one-third retiring by annual rotation. All these Councils could form Joint Committees with each other, and perhaps have a Joint Consultative Council to co-ordinate their relations with Central Government. It was all deliberately tentative: junior officers must not seem to be handing up tablets of stone.

The possibility of public apathy (already much noticed in relation to the existing Urban Council), and the dangers of encouraging the involvement of external party politics, led to cautious suggestions that in the first instance whatever overseeing body the Government would assign to this field (doubtless a new branch of the secretariat, if not an amalgamation of the SCA and the NTA) might nominate members to leaven the elected majority; a proportion of 1:3, or in the last resort 2:3, was proposed. For the franchise, while considering adult suffrage as a distinct possibility, the prudent recommendation was for all men and women and their spouses over 21 to enjoy the vote who owned, occupied or tenanted property on which rates were paid or of which the rent might be deemed to include a rating element; provided that they had three years' residence, and therefore a stake in the colony, British citizenship would not be required. Councillors should not be paid, to avoid the growth of a profession of politicians, but should be entitled to attendance allowances within a statutory limit to compensate for any loss of earnings; and they should appoint their own chairmen from any quarter.

The new Councils' potential powers and functions received close examination. From the start it was accepted that Hong Kong's central

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12

Health were listed provision & operation of maternity homes, ante- & post-natal clinics and health visiting. Under Education came provision & operation of primary & secondary schools, adult education & evening institutes. Under Welfare were recreational facilities, youth clubs, community centres, sports facilities, public swimming pools, homes for the aged, infants' crêches, refuges for street sleepers, distribution of relief, entertainment (band concerts, Chinese drama & opera), pleasure grounds, playgrounds and bathing beaches. The Miscellaneous category added declaration of one-way streets, parking zones, closing of streets as playgrounds (after consultation with Police), traffic warden services, provision & management of car parks, amenity provision (eg public fountains & tree planting), museums & art galleries, and undertaking of functions (such as collection of water rates & various fees) as agents of the central government.

This list went much farther in involvement of representative bodies in the affairs which closely and legitimately concerned the ordinary man and woman in the street, as well as extending what was already delegated to the Urban Council into most of the colony's growth areas. Apart from suggesting that the list might be added to in the light of experience, the bold proposition was made that in future no central department should be permitted to establish new local machinery without proving that the activity could not be carried out by a Local Authority. The report stated that it was not envisaged that the new councils should be independent Education Authorities; but it was clearly hoped that in the fullness of time the Education Department would regard local authority schools as a main component of the grant-aided system, and indeed relinquish its own primary schools to the councils. Finally, as a carrot for those in the NT who might be willing to contemplate change, it was pointed out that rural district councils should take over agricultural extension schemes, forestry lots, fish-ponds, local public works (footpaths, bridges, piers etc), local ferries, village layouts & housing schemes, and local water supplies & irrigation.

This would all have to be paid for. Local authorities should have financial responsibility, including revenue-raising powers. Local accountability to tax-payers and freedom from stifling dependency on central grants (with their inevitable consequential frictions) were essential to success. New structures would increase the administrative costs of the colony overall, and it might well be that some areas would
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RASHKB Journal 皇家亞洲學會香港分會學刊 | RAS-1997
https://digitalrepository.lib.hku.hk/catalog/wp98g7579
the Social Welfare Department), co-ordinated by regional generalist officers comparable with NT DOs, leading to advisory Regional Councils which might eventually become the main report's Local Authorities. They pointed up more outspokenly than the emollient main report the shortcomings of an out-of-touch government administering a non-English-speaking population that was only too open to misunderstandings and misconceptions (such as that taxes levied were drained off to the UK Treasury.) Interim steps should concentrate strongly on building up public confidence in the unaccustomed principles and practice of popular elected representation (the ‘political education' mentioned above.) The provisional system of regional advisory councils, coupled with departmental decentralisation and administrative co-ordination, should then lead to full local authorities in about six years. Meanwhile Tsuen Wan was indeed a unique opportunity for immediate action (the new towns to come of Tuen Mun, Sha Tin, Tai Po et al had yet to be envisaged.) These three semi-dissenters did not co-ordinate their Note with the other.

Dickinson has been described by one of his working party as “the least understood and worst treated member of the Cadet Service" (the original title of Hong Kong's Administrative Branch of the HMOCS, which survived in common parlance long after the absorption into the Colonial Service of the pre-war Eastern Cadetships.) He chose to retire early for personal reasons. It is ironic that in the aftermath of the Cultural Revolution overspill, when special duties officers in the defence branch of the secretariat, the SCA and the Information Services Department became so active in devising new ways to win hearts and minds, to keep in touch with the people and to encourage the use of Chinese language, so much of what had been adumbrated in the Working Party Report re-appeared; but because the new ideas now came from well-established senior sources, they became respectable and it was to be long before they offered electoral participation in executive decisions. The SCA became the Secretariat for Home Affairs; City District Officers were created in ten urban districts, and found much to do that had not been done before; City District Committees were established in 1972; a Tsuen Wan District Advisory Board was at last set up in 1977, followed by others; in 1980 a new pattern for district administration was at last suggested, with direct elections to District Boards. But in all these and still later developments that affect present history, there was no official backward recognition that the ground
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