Legislative Council
LC Paper No. CB(2)2576/98-99
(These minutes have been
seen by the Administration)
Ref : CB2/BC/11/98
Bills Committee on District Councils Bill
Minutes of Meeting
held on Monday, 4 January 1999 at 2:30 pm
in the Chamber of the Legislative Council Building
Members Present :
Hon Ambrose LAU Hon-chuen, JP (Chairman)
Hon James TIEN Pei-chun, JP
Hon David CHU Yu-lin
Hon Cyd HO Sau-lan
Dr Hon Raymond HO Chung-tai, JP
Hon LEE Wing-tat
Hon Lee Kai-ming, JP
Hon Fred LI Wah-ming
Hon Mrs Selina CHOW LIANG Shuk-yee, JP
Hon Ambrose CHEUNG Wing-sum, JP
Hon Christine LOH
Hon CHAN Wing-chan
Hon SIN Chung-kai
Hon Andrew WONG Wang-fat, JP
Hon WONG Yung-kan
Hon Jasper TSANG Yok-sing, JP
Hon Howard YOUNG, JP
Hon YEUNG Yiu-chung
Hon LAU Wong-fat, GBS, JP
Dr Hon TANG Siu-tong, JP
Hon SZETO Wah
Hon TAM Yiu-chung, JP
Members Absent :
Hon Ronald ARCULLI, JP
Hon MA Fung-kwok
Hon CHEUNG Man-kwong
Hon CHAN Kam-lam
Dr Hon LEONG Che-hung, JP
Hon Andrew CHENG Kar-foo
Member Attending :
Hon Eric LI Ka-cheung, JP
Public Officers Secretary :
Mr Michael SUEN
for Constitutional Affairs
Mr Robin IP
Deputy Secretary for Constitutional Affairs 2
Mrs Maureen CHAN
Deputy Secretary for Constitutional Affairs 3
Mr Augustine CHENG
Deputy Director of Home Affairs
Mr Paul WONG
Principal Assistant Secretary for Constitutional Affairs
Mrs N Dissanayake
Senior Assistant Law Draftsman
Mr Vidy CHEUNG
Senior Assistant Law Draftsman
Ms Monica LAW
Senior Assistant Law Draftsman
Clerk in Attendance :
Mrs Constance LI
Chief Assistant Secretary (2) 2
Staff in Attendance :
Mr Jimmy MA
Legal Adviser
Mrs Justina LAM
Assistant Secretary General 2
Miss Flora TAI
Senior Assistant Secretary (2) 2
I. Election of Chairman
Mr Ambrose CHEUNG was elected as the presiding Member for the
election of Chairman of the Bills Committee.
2 The presiding Member called for nominations for the chairmanship of
the Bills Committee.
3. Mr Andrew WONG was nominated by Mr LEE Wing-tat and seconded by Miss
Christine LOH. Mr Ambrose LAU was nominated by Mr YEUNG Yiu-chung
and seconded by Mr CHAN Wing-chan. Both Messrs Andrew WONG and Ambrose
LAU accepted the nomination.
4. As there were two nominations, a vote was cast by secret ballot.
Mr Ambrose LAU had 13 votes and Mr Andrew WONG had eight votes. The
presiding Member therefore declared Mr Ambrose LAU who received the highest
number of votes elected as Chairman of the Bills Committee. Mr Ambrose
LAU then took the chair.
5. The Bills Committee decided that a Deputy Chairman would not be necessary.
II. Meeting with the Administration
[the Legislative Council Brief issued by the Constitutional Affairs
Bureau on 10 December 1998 (File Ref : CAB C4/17/7 IV)]
6. At the invitation of the Chairman, Secretary for Constitutional Affairs
(SCA) briefed members on the Bill as set out in the Legislative Council
(LegCo) Brief. SCA urged members to expedite the processing of the
Bill which was targeted for resumption of Second Reading debate before
the Chinese New Year. He explained that a lot of preparatory work
would need to be completed before the District Council (DC) ordinary election
could be held. The DC ordinary election was tentatively scheduled
for the last week of November 1999 in order to elect DC members in time
to replace the Provisional District Board (PDB) members whose term of office
would lapse by the end of December 1999.
7. The Chairman suggested, and the Bills Committee agreed, to discuss
the general principles of the Bill before proceeding to detailed examination
of the provisions in the Bill. The gist of the discussion is
summarised in the following paragraphs.
Composition of District Councils
8. Referring to the fact that small businessmen and professionals represented
20% to 30% of the successful candidates in the 1994 District Board (DB)
elections, Mr LEE Wing-tat queried the argument put forward by the Administration
that appointed membership was necessary because these people might not
wish to stand as candidates for direct election of the DC. SCA said
that as the Administration had explained on previous occasions, balancing
the elected membership was only one of the reasons for having appointed
membership. The justifications for appointed membership had been
given in his speech on moving the Second Reading of the Bill. He
said that there were some individuals who were enthusiastic and interested
in district affairs and were capable and experienced but had no intention
of participating in direct elections. Appointed membership would
help reflect the different interests in the district and enhance the quality
of DCs in deliberating district business. He added that the proposed
number of elected members for DCs would increase from 346 to 390 in view
of the overall population increase. The Administration considered
that the proposed ratio of 4:1 for directly elected/ex-officio members
and appointed members was appropriate and reasonable.
9. Mr LI Wah-ming pointed out that the proposed DC functions were largely
the same as those of DBs. Since DBs had operated smoothly in the
years of 1995-97 when all DB members were returned by direct election with
the exception of ex-officio members in New Territories DBs, Mr LI queried
why it was necessary to add appointed members to the DCs. SCA reiterated
that appointed membership would be beneficial to DC operation because it
would enable people of different sectors in the district to participate
in district affairs. As mentioned in his speech on moving the Second
Reading of the Bill, the DCs would perform additional functions and have
greater participation in territory wide activities and enhancement of building
management and fire prevention work in the districts.
10. Mr LEE Wing-tat asked about the selection criteria for appointed
members to the DCs as they would be electors for returning a member to
the LegCo. He was concerned that the Administration would only appoint
pro-government people to the DCs as in the case of PDBs. A pro-government
camp could then easily dominate the decisions of the DCs. SCA disagreed
that appointed members could dominate DC meetings because appointed members
would only represent one-fifth of the total membership of a DC. He
said that it must not be assumed that appointed members would always hold
a different view from elected members. In this connection, Mr SZETO
Wah remarked that appointed and ex-officio seats together could easily
dominate the business of DCs. Mr LEE also pointed out that the Administration
had not appointed any members of the pro-democracy parties to the PDBs
other than those previously returned by direct direction. As a result,
the pro-democratic members had lost the chairmenship in the DBs in Kwun
Tong and the Central and Western Districts.
11. SCA denied that the Administration had any political preference
in the selection of appointed members, or the existence of a pro-government
camp in PDBs. He pointed out that DCs were only consultative bodies
and their resolutions would not have any legislative impact or binding
effect on Government policies. The Administration would appoint members
from among a wide range of people in the community. In this connection,
Mr LEE Wing-tat sought confirmation from the Administration whether any
of the appointed members of the PDBs were members of the Democratic Party,
the Frontier or the Citizens Party. SCA responded that the Administration
did not have ready and complete information on the political affiliation
of all appointed members because some of them had not disclosed such information.
Moreover, it was necessary to obtain these members' consent before the
information could be disclosed.
12. Mr LEE Wing-tat asked whether the Administration considered that
the public should be made aware of the appointment criteria, and whether
there would be any evaluation mechanism of the performance of appointed
members to facilitate consideration of re-appointment. SCA responded
that he had already explained the purpose of appointed membership when
moving the Second Reading of the Bill. As regards re-appointment
of members, the District Officers concerned who were familiar with the
performance of the members would give their comments to the Administration.
Mr LEE Wing-tat remarked that the District Officers' opinions could be
subjective and different District Officers might have different criteria.
13. Mr Andrew WONG asked whether the Administration would consider
stipulating in the Bill that only those persons who were not members of
any political parties and those who had not stood as candidates in an election
would be appointed to DCs. SCA responded that the Administration
did not consider it appropriate to set down rigid rules in the law because
some flexibility would be necessary in the selection of appointed members.
However, the Administration would consider explaining the appointment criteria
in greater detail during the Third Reading of the Bill if necessary.
In this connection, Mr WONG suggested that the Administration could consider
listing out the appointment criteria in a Schedule which could be amended.
SCA responded that Mr WONG's suggestion still could not provide the necessary
flexibility in appointments. | Adm |
---|
14. In response to Mr Andrew WONG, SCA informed members that it was
normal practice for the Administration to make appointments after an ordinary
election was held. Mr LEE Wing-tat asked whether the Administration
would appoint those unsuccessful candidates in the election. SCA
responded that to exclude this group of candidates would unduly limit
the choice of the Administration. However, the Administration would
take account of members' concern before making a decision.
15. Mr Ambrose CHEUNG said that there were pros and cons to retain
appointed membership in the DCs but he was concerned whether there would
be an independent mechanism to select the appointed members based on a
set of objective appointment criteria or guidelines. Miss Christine
LOH added that there should be greater transparency in the appointment
process and that the public should have the right to know the appointment
criteria and to monitor the appointments. In response, SCA said that
the Administration had no intention to set up an independent mechanism
for selecting candidates as there was already an establishd system which
had operated well. He added that the performance of appointed members
would also be subject to public and media monitoring during their terms
of office. Miss Christine LOH disagreed with SCA and pointed out
that only elected members would be affected in their re-election by their
performance. Mr LEE Wing-tat and Mr LI Wah-ming also expressed doubts
on the effectiveness for the public and the media to monitor the performance
of DB appointed members. SCA maintained the view that the public
would have the same expectations on all DC members, irrespective of whether
they were elected or appointed, and that it would not be appropriate for
the Administration to specify the appointment criteria. Nevertheless,
he noted the concerns of Members in this respect. | Adm |
---|
16. Referring to the Administration's argument that appointed membership
could enhance the quality of DCs in deliberating business, Ms HO Sau-lan
said many DB members could only serve on a part-time basis because DB members
could not live on the limited allowances for DB members. This would
adversely affect the quality of DB discussion. She considered that
appointed membership was not the only means to enhance the quality of transacting
business by DCs. SCA agreed that there were many ways to enhance
the quality of DCs in transacting district business. The Administration
had made much efforts to increase the sense of civic awareness of the general
public through voter registration and election publicity campaigns, which
could hopefully attract more quality people to participate in district
affairs. In this connection, Ms HO urged the Administration to consider
requiring DC members to have a higher attendance rate at DC meetings as
a means of enhancing the quality of DC discussion.
17. Responding to Mr LI Wah-ming and Mr Ambrose CHEUNG on the appointment
procedure, SCA informed members that an effective system for appointing
members to advisory and consultative bodies was already in existence.
The Administration had comprehensive information, through input from various
sources and District Officers, on people who had a record or interest in
public service, or who had expertise in various fields. Interested
individuals could also volunteer for public service.
Disqualifications
18. Referring to the provision of the Legislative Council Ordinance
(Cap. 542) which disqualified a LegCo Member if he or she, without valid
reason, was absent from meetings for three consecutive months without the
consent of the LegCo President, Mr Howard YOUNG asked about the reasons
for having more lenient provisions in the Bill which sought to disqualify
a DC member on absence from meetings for six consecutive months without
the consent of the DC. SCA explained that the proposed provisions
were the same as those in the former DB legislation. He pointed out
that a lower threshold of six months for DC members was reasonable because
LegCo in session would hold a Council Meeting almost every week, while
DB meetings were held once every two months. An absence for six consecutive
months would only mean an absence from two or three DB meetings.
SCA also informed members that there had been a case in which a DB Member
was disqualified for being absent from meetings for six consecutive months
without the consent of the DB. Ms HO Sau-lan expressed dissatisfaction
that while the Administration stressed the importance of enhancing the
quality of DCs in transacting business, the Administration had decided
to set such a low attendance standard for DC members.
19. Referring to clause 11(2) which clearly specified that an appointed
member would hold office from the date specified in the letter of appointment
and vacate office on 31 December of the year in which an ordinary election
was next held after the appointment, Mr Andrew WONG asked about the purpose
of subclause (3) which empowered the Chief Executive to specify in a letter
of appointment a shorter period for the term of office of a person appointed
to a DC. He expressed concern that subclause (3) might be intended
as a deterrence clause against 'unsatisfactory performance' of some appointed
members. SCA clarified that subclause (3) was only to provide for
flexibility in appointing members after the commencement of the normal
term of office. He agreed to review the drafting of the subclause
to see if it would give rise to any misunderstanding. | Adm |
---|
Adjustment to the term of office of District Councils
20. Mr SIN Chung-kai was of the view that November would not be an ideal
time for holding a DC election because October - December was normally
the peak period of DB activities, while less activities would be held towards
the end of a financial year. If an ordinary election was to be held
in November, incumbent members would have undue advantage by making use
of public-funded activities to canvass for their own election. He
suggested that the Administration should consider adjusting the commencement
date of the term of office of DC to coincide with the beginning of a financial
year in April. The arrangement would also facilitate operation of
the DCs and their secretariats as there would be guaranteed financial resources
for DC activities in the beginning of a new term, and that there would
be less interruption to DC activities if the ordinary election was to be
held towards the end of a financial year. Considering that the PDB
members' terms of office would expire on 31 December 1999, the first term
of office of DC members could be shorter than four years.
21. Mr SZETO Wah referred members to the Provisional District Boards
Ordinance (Cap. 366) which specified that the term of office of the Provisional
DB members would end not later than 31 December 1999. He considered
that if the ordinary election for DCs was to be held in November 1999,
it would be a fairer arrangement for the existing tenure of PDB members
to end earlier so that PDB members would not have undue advantage over
other candidates.
22. SCA noted members' suggestions and undertook to provide a written
response at the next meeting. | Adm |
---|
Functions of District Councils
Referring to clause 59(b), Mr Andrew WONG asked whether the Administration
would object to an amendment to the Bill transferring some of the executive
powers of the municipal councils to the DCs, on the grounds that the amendment
would have a charging effect on the revenue. In response, SCA reminded
members that the Administration had disagreed with the LegCo as to whether
the Rules of Procedure of the LegCo were consistent with the Basic Law.
The Administration was of the view that the Basic Law had prohibited LegCo
Members from moving legislative amendments relating to public expenditure,
or the political structure or the operation of the government, while LegCo
Members held a different view. The Administration would need to see
the wording of the proposed amendment before taking a view on Mr WONG's
suggestion. Should the amendment involve appropriation of public
funds, the Administration would object to the amendment.
23. Considering that the Bill did not specifically seek to transfer
the existing functions of the municipal councils (which included food and
environmental hygiene services) to DCs, Mr LEE Wing-tat asked whether it
was appropriate to add "matters relating to food and environmental hygiene
services" as functions of a DC under clause 59(a)(i). He asked whether
PDBs had agreed to the arrangement. SCA responded that the Administration
had consulted all PDBs on the future functions of DCs and the proposed
addition reflected the majority view.
24. Mr LEE Wing-tat informed members that the Planning, Environment
and Land Bureau recently declined to send representatives to attend a meeting
of the Provisional Kwai Tsing District Board to explain the delay in implementing
the Executive Council's decision of re-locating the shipyards at North
Tsing Yi. He therefore had doubts that the Administration really
wanted to enhance the role of DBs/DCs, since senior officials did not even
attend PDB/DC meetings. In response, SCA assured members that the
Administration was committed to sending officials who were sufficiently
senior to attend PDB/DC meetings to answer members' questions. The
Chief Secretary for Administration had also asked Heads of Bureaux and
Departments to increase communication with individual PDBs, to answer enquiries
of members and to consult DBs in a positive, frank and open manner.
SCA said that he hoped the case cited by Mr LEE was only an isolated incident.
He also told the meeting that with a view to ensuring effective implementation
of DC decisions, chairmen of future DCs would join the District Management
Committee as members.
Quorum of District Council meetings
25. Mr SIN Chung-kai queried whether it was operationally feasible
to increase the quorum requirement of DC meetings from one-third to "not
less than half" of the DC membership, having regard to the operation of
DB meetings and attendance records of DB members. SCA informed members
that the Administration had consulted all DB secretariats which confirmed
that the average attendance rates of all DB meetings were not less than
80%. Mr SIN cited his experience that such a high attendance rate
could unlikely sustain throughout a DB meeting which normally lasted a
fairly long time. SCA undertook to obtain more information in this
respect. However, he pointed out that DCs would normally hold bi-monthly
meetings and DC members had the duty to stay through the meeting.
If there were operational difficulties in meeting the requirement, DCs
should review the length of DC meetings. | Adm |
---|
Powers of the Chief Executive and the Chief Executive in Council
26. Referring to clause 8 which empowered the Chief Executive in Council
to amend Schedules 1, 2 and 3 in the Bill, Mr Ambrose CHEUNG asked and
Deputy Secretary for Constitutional Affairs 2 (DS/CA2) responded that section
3(1A) of the Provisional District Boards Ordinance had provided for similar
powers. Deputy Secretary for Constitutional Affairs 3 (DS/CA3) explained
that in the past, the then Governor in Council would publish the Schedules
after enactment of the principal ordinance. However, as the present
Bill was subject to a tight timetable, these Schedules were included in
the Bill so that both would be enacted at the same time. Mr CHEUNG
expressed concern that LegCo might not have a chance to comment on any
amendment to the Schedules, and that the Chief Executive would be given
too much powers such as the power to change the number of DCs, which would
not require LegCo approval. SCA advised that these Schedules were
subsidiary legislation subject to negative vetting by the LegCo.
These schedules only referred to the number of DCs or elected/appointed
members in each DC, while the functions of DCs were stated in the principal
ordinance. In the past, the Governor in Council had reduced the number
of DBs from 19 to 18 only on one occasion.
27. Mr CHEUNG pointed out that the wording of Clause 8 was different
from that of section 3(1A) of the Provisional District Boards Ordinance.
Dr TANG Siu-tong also queried why the phrase "to affect the public interest"
in section 24 of the Provisional DB Ordinance was not retained in Clause
83 in the Bill. SCA undertook to provide a written response. | Adm |
---|
28. Miss Christine LOH shared Mr Ambrose CHEUNG's concern that clause
8 and clause 83 would confer very broad powers on the Chief Executive and
the Chief Executive in Council. She considered that the Bill should
specify the circumstances when such powers would be exercised. In
response, SCA said that members needed not worry that LegCo would not be
consulted on changes to the Schedules, because it was the usual practice
of the Administration to conduct thorough consultation with parties concerned
before making any important changes. SCA emphasized that clause 8
was not meant to provide a mechanism for the Administration to bypass LegCo
scrutiny. He added that it would not be practicable to specify all
possible circumstances in the Bill as some flexibility would be necessary.
Despite the Administration's explanation, some members maintained the view
that the Administration should consider limiting and defining the powers
of the Chief Executive and the Chief Executive in Council under clause
8 and clause 83. | Adm |
---|
DC Chairmanship
Mr Andrew WONG sought the preliminary views of the Administration if
an amendment was to be moved to require all DC chairmen to be returned
by direct election in the Districts. He also asked whether such an
amendment would be considered by the Administration as having a charging
effect. SCA declined to respond to a hypothetical question as such.
III. Way forward
29. The Chairman informed members that the Administration intended to
resume Second Reading debate at the Council meeting on 10 February 1999.
If the Bills Committee agreed to the timetable, it would have to complete
scrutiny of the Bill before the end of January 1999.
Clerk 30. To assist the Bills Committee in scrutinising the Bill, members
agreed that written submissions from the public should be invited through
advertisements in newspapers and press release; and that the Bills Committee
would receive oral representation from interested parties at a future meeting.
Mr LEE Wah-ming suggested that the Bills Committee could also consider
inviting views from the academics. Mr Andrew WONG said that although
numerous views had already been expressed on the Bill, he would not object
to inviting submissions from the public as there were controversies over
the appointed membership and functions of DCs. He considered that
a deadline should be set for written submissions to avoid undue delay to
the scrutiny of the Bill. The Chairman suggested and members agreed
that organisations would be given about one week to send in their submissions,
and the Bills Committee will meet deputations the week after.
31. Mr Ambrose CHEUNG considered that the Bill was proposed on the assumption
that the two municipal councils were to be abolished, and he suggested
that members might also wish to consider whether the Bill should be enacted
before or after the enactment of the bill repealing the existing Provisional
Urban Council Ordinance (Cap. 101) and the Provisional Regional Council
Ordinance (Cap. 385), or whether all these bills should be synchronised.
IV. Date of next meeting
32. To facilitate scrutiny of individual clauses of the Bill
at future meetings, the Chairman suggested and members agreed that
the Administration should provide a comparison table on the existing provisions
of the Provisional District Board Ordinance (and related legislation) and
the proposed provisions of the Bill. Ms HO Sau-lan suggested that
the Administration should also provide a list on the powers of the Chief
Executive and the Chief Executive in Council as conferred by the Bill.
To allow time for the Administration to prepare the written response, members
agreed that the next meeting should be held on Monday, 11 January 1999
at 4:30 pm. | Adm
Adm
|
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33. There being no other business, the meeting ended at 4:35 pm.
Legislative Council Secretariat
14 July 1999