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flaunted its respect for public opinion. Not unintentionally, the government relaxed its grip and permitted the future of Hong Kong to be discussed by the District Boards which hence become the Hyde Park of Hong Kong where everything can be discussed. I am in no way criticizing that such development is improper, but in future reforms of the government, we should specify what is permitted and what is not so as to prevent free discourse.
The written regulation concerning the District Boards reminds us of the District Board standing order. It is probably for the encouragement of discussion that the order leaves a high degree of flexibility as to the meeting procedure and usually requires the chairman's judgement in its implementation. Deviation occurs easily in case the chairman is dominating or biased against certain members. This may give the chairman excessive power. On the other hand, with an unclear regulation, the chairman has no authority to contain individual members who deliberately embarrass the chairman or other members. This would bring a deadlock to matters, undermining the efficiency or even the image of the District Boards.
At present, the District Board secretariats are lacking both in staff and resources. Depending much on the respective District Offices, the work of the District Boards is always greatly influenced by the work style of District Officers who may even exercise control from behind the scenes sometimes. Therefore, it is necessary for the District Board secretariats to increase staff and resources and report more directly to the District Boards.
Apart from the general political and social factors, influence of the District Boards is mainly based on their representativeness. To increase their representativeness, District Boards must have higher ratio of elected seats to appointed ones.
The Far-reaching Influence of District Administration
In carrying out its stipulated functions, a District Board would produce or bring about indirect, hardly visible but important influences and phenomena:
(1) The core of district politics: In every administrative district, the District Board and its members become the focus and major promoters of district affairs, reviving the long inactive district bodies, mutual aid committees and other district organizations.
(2) Substitute the grass-roots opinion: Although some may still challenge the degree of representativeness of the District Boards, few dare say they are totally unrepresentative. Government departments cannot but recognize the District Boards. Even local leftwing, rightwing and pressure groups have to give their tacit approval and strive to win over District Boards and their members for favourable ‘grass-roots opinion'.
(3) A buffer system for the enlistment of political elite and control of public opinion: To a certain extent, district administration manages to engage the grass-roots elite in a role within formal communication channels so
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as to prevent them from exerting pressure from outside the government. At the same time, the radicals and other leaders who refuse to join the government would be deprived of powerful supporters. In this way, district affairs can be confined as far as possible to meeting or dining tables within a district.
The District Boards will also serve as a buffer system between the central government and local citizens. Should there be public opposition against district policies or facilities, the District Boards can shield the government or play a mediatory role if their consent or compromise as regards the issues has been obtained beforehand.
(4) Civic education and the fostering of political talents: In the triennial District Board elections, each candidate must systematically identify problems of the district and include in his platform a plan for improvement. Besides being feasible, the platform should also meet the needs of the residents whose support can be obtained only if the candidate shows his sincerity and ability to put his words into practice. The voting procedure during which all candidates are put into comparison is also a lesson of civic education. The candidates, members of the canvassing team, voters and even onlookers can learn something from the election activities and the operation of the District Boards. I believe that many of the future political talents have taken part in District Board election activities.
Tentative Ideas About the Future District Administration in Hong Kong
As mentioned above, the overall situation must be made the basis for consideration of the future district administration while taking into account its convergence with the central government and indeed with the entire future political system. It is the future central government rather than the district administration that will be the center of the entire system. Some problems of district administration, noticeably the operation of the District Boards, which have no great bearing on other systems may be improved on first. But structural changes and stipulation of important terms of reference are neither practical nor logical before a tentative outline of the central government has come up. At least, a review on the central government should be conducted concurrently.
As we do not yet have a definite system of the future central government, I can only put forth some principles for reflection and tentative suggestions which must be modified in accordance with the future central government. Concrete details are possible only when details of the system of central government have been worked out.
In designing the district administration system, the three principles mentioned above (1. to consider the situation as a whole and coordinate with the central government; 2. to maintain the merits and improve on shortcomings; 3. to be democratic and efficient) should be applied to solve the following problems or contradictions:
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flaunted its respect for public opinion. Not unintentionally, the government relaxed its grip and permitted the future of Hong Kong to be discussed by the District Boards which hence become the Hyde Park of Hong Kong where everything can be discussed. I am in no way criticizing that such development is improper, but in future reforms of the government, we should specify what is permitted and what is not so as to prevent free discourse.
The written regulation concerning the District Boards reminds us of the District Board standing order. It is probably for the encouragement of discussion that the order leaves a high degree of flexibility as to the meeting procedure and usually requires the chairman's judgement in its implementation. Deviation occurs easily in case the chairman is dominating or biased against certain members. This may give the chairman excessive power. On the other hand, with an unclear regulation, the chairman has no authority to contain individual members who deliberately embarrass the chairman or other members. This would bring a deadlock to matters, undermining the efficiency or even the image of the District Boards.
At present, the District Board secretariats are lacking both in staff and resources. Depending much on the respective District Offices, the work of the District Boards is always greatly influenced by the work style of District Officers who may even exercise control from behind the scenes sometimes. Therefore, it is necessary for the District Board secretariats to increase staff and resources and report more directly to the District Boards.
Apart from the general political and social factors, influence of the District Boards is mainly based on their representativeness. To increase their representativeness, District Boards must have higher ratio of elected seats to appointed ones.
The Far-reaching Influence of District Administration
In carrying out its stipulated functions, a District Board would produce or bring about indirect, hardly visible but important influences and phenomena:
(1) The core of district politics: In every administrative district, the District Board and its members become the focus and major promoters of district affairs, reviving the long inactive district bodies, mutual aid committees and other district organizations.
(2) Substitute the grass-roots opinion: Although some may still challenge the degree of representativeness of the District Boards, few dare say they are totally unrepresentative. Government departments cannot but re- cognize the District Boards. Even local leftwing, rightwing and pressure groups have to give their tacit approval and strive to win over District Boards and their members for favourable ‘grass-roots opinion'.
(3) A buffer system for the enlistment of political elite and control of public opinion: To a certain extent, district administration manages to engage the grass-roots elite in a role within formal communication channels so
HONG KONG URBAN COUNCIL
Page 146 of 201
251
as to prevent them from exerting pressure from outside the government. At the same time, the radicals and other leaders who refuse to join the government would be deprived of powerful supporters. In this way, district affairs can be confined as far as possible to meeting or dining tables within a district.
The District Boards will also serve as a buffer system between the central government and local citizens. Should there be public opposition against district policies or facilities, the District Boards can shield the government or play a mediatory role if their consent or compromise as regards the issues has been obtained beforehand.
(4) Civic education and the fostering of political talents: In the triennial District Board elections, each candidate must systematically identify problems of the district and include in his platform a plan for in- provement. Besides being feasible, the platform should also meet the needs of the residents whose support can be obtained only if the candidate shows his sincerity and ability to put his words into practice. The voting procedure during which all candidates are put into com- parison is also a lesson of civic education. The candidates, members of the canvassing team, voters and even onlookers can learn something from the election activities and the operation of the District Boards. I believe that many of the future political talents have taken part in District Board election activities.
Tentative Ideas About the Future District Administration in Hong Kong
As mentioned above, the overall situation must be made the basis for consideration of the future district administration while taking into account its convergence with the central government and indeed with the entire future political system. It is the future central government rather than the district administration that will be the center of the entire system. Some problems of district administration, noticeably the operation of the District Boards, which have no great bearing on other systems may be improved on first. But structural changes and stipulation of important terms of reference are neither practical nor logical before a tentative outline of the central government has come up. At least, a review on the central government should be conducted concurrently.
As we do not yet have a definite system of the future central government, I can only put forth some principles for reflection and tentative suggestions which must be modified in accordance with the future central government. Concrete details are possible only when details of the system of central government have been worked out.
In designing the district administration system, the three principles mentioned above (1. to consider the situation as a whole and coordinate with the central government; 2. to maintain the merits and improve on shortcomings; 3. to be democratic and efficient) should be applied to solve the following problems or contradictions:
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