Hostname: page-component-78c5997874-fbnjt Total loading time: 0 Render date: 2024-11-15T05:28:36.607Z Has data issue: false hasContentIssue false
  • English
  • Français

The Impact of External Change on Civil Service Values in Post-Colonial Hong Kong*

Published online by Cambridge University Press:  08 June 2015

John P. Burns  and
Li Wei
John P. Burns*
Affiliation:
The University of Hong Kong.
Li Wei
Affiliation:
The Chinese University of Hong Kong.
*
Email: jpburns@hku.hk(corresponding author).
Get access Rights & Permissions [Opens in a new window]

Abstract

Scholarly work in the 1990s indicated that the values of civil servants in late colonial Hong Kong were evolving from those of classical bureaucrats to those of more political bureaucrats as the political and social environment changed. Based on in-depth interviews with 58 politicians and senior civil servants carried out between 2009 and 2012, we argue that Hong Kong civil service values have adapted owing in part to external shocks such as regime change and governance reform. Still, traditional civil service values such as fiscal prudence and balancing various community interests continue to be prominent. We illustrate the influence of civil service values in two policymaking cases: small-class teaching and minimum-wage legislation.

摘要

1990 年代的文献表明, 香港殖民时代后期, 在变化了的政治和社会环境下, 公务员的价值观正从古典官僚型演变为政治官僚型。基于 2009–2012 年间对 58 位高级公务员和政治委任官员的深度访谈, 我们认为香港公务员的价值观因应外部冲击一包括政权变迁和治理改革一而发生了适应性变化。然而, 一些传统的公务员价值观如审慎理财及平衡社会不同利益仍然显著存在。我们用两个案例来说明香港公务员价值观对政策制定的影响: 小班教学和最低工资立法。

Keywords

Hong Kong civil service valuespoliticians and bureaucratspolicymakinggovernance reform香港公务员价值观政治家和官僚政策制定治理改革
Type
Articles
Information
The China Quarterly , Volume 222 , June 2015 , pp. 522 - 546
Copyright
Copyright © The China Quarterly 2015 

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

Footnotes

*

The authors gratefully acknowledge the support of the Hong Kong Research Grants Council in the production of this article.

References

Aberbach, Joel, Putnam, Robert and Rockman, Bert. 1981. Bureaucrats and Politicians in Western Democracies. Cambridge, MA: Harvard University Press.CrossRefGoogle Scholar
Australian Public Service Commission. 2014. “APS values,” http://www.apsc.gov.au/aps-employment-policy-and-advice/aps-values-and-code-of-conduct/code-of-conduct/aps-values. Accessed 7 March 2014.Google Scholar
Bauer, Michael W., and Ege, Jorn. 2012. “Politicization within the European Commission's bureaucracy.” International Review of Administrative Sciences 78(3), 403–424.CrossRefGoogle Scholar
Brewer, Brian, Leung, Joan Y.H. and Scott, Ian. 2013. “Values in perspective: administrative ethics and the Hong Kong public servant revisited.” Administration & Society July, 1–21.Google Scholar
Burns, John P. 2004. Government Capacity and the Hong Kong Civil Service. New York: Oxford University Press.Google Scholar
Burns, John P., Li, Wei and Peters, B. Guy. 2013. “Changing governance structures and the evolution of public service bargains in Hong Kong.” International Review of Administrative Sciences 79(1), 131–148.CrossRefGoogle Scholar
Campbell, Colin, and Guy Peters, B.. 1988. “The politics/administration dichotomy: death or merely change?” Governance 1(1), 79–99.CrossRefGoogle Scholar
Census and Statistics Department. 2013. “Table 006: Labour force, unemployment and underemployment,” 17 January, http://www.censtatd.gov.hk/hkstat/sub/sp200.jsp?subjectID=20&tableID=006&ID=0&productType=8. Accessed 20 January 2013.Google Scholar
Cheek-Milby, Kathleen. 1989. “The changing political role of the Hong Kong civil servant.” Pacific Affairs 62(2), 219–234.CrossRefGoogle Scholar
Cheng, Joseph Y.S., and Lee, Jane C.Y.. 1996. “The changing political attitudes of the senior bureaucrats in Hong Kong's transition.” The China Quarterly 147, 912–937.CrossRefGoogle Scholar
Cheung, Anthony B.L. 2005. “Hong Kong's post-1997 institutional crisis: problems of governance and institutional incompatibility.” Journal of East Asian Studies 5, 135–167.CrossRefGoogle Scholar
Chief Executive's Office. 2008. “Code for officials under the political appointment system,” http://www.cmab.gov.hk/doc/issues/code_en.pdf. Accessed 20 August 2011.Google Scholar
Chiu, Stephen, and Lui, Tai-lok. 2009. Hong Kong: Becoming a Chinese Global City. London: Routledge.CrossRefGoogle Scholar
Civil Service Bureau. 2009. “Civil service code,” http://www.csb.gov.hk/english/admin/conduct/files/CSCode_e.pdf. Accessed 2 January 2010.Google Scholar
Constitutional Affairs Bureau. 2001. “System of accountability of principal officials,” 18 May, http://www.legco.gov.hk/yr00-01/english/panels/ca/papers/b1601e02.pdf. Accessed 1 December 2012.Google Scholar
Constitutional Affairs Bureau. 2003. “Twelve-month report on implementation of the accountability system for principal officials,” 18 July, http://www.legco.gov.hk/yr02-03/english/panels/ca/papers/ca0721cb2-2864-3e.pdf. Accessed 24 July 2013.Google Scholar
Corraliza, Jose A., and Berenguer, Jaime. 2000. “Environmental values, beliefs, and actions: a situational approach.” Environment and Behavior 32(6), 832–848.CrossRefGoogle Scholar
Davies, Philip H.J. 2001. “Spies as informants: triangulation and the interpretation of elite interview data in the study of the intelligence and security services.” Politics 21(1), 73–80.CrossRefGoogle Scholar
Education Bureau. 2008. “Small class teaching in public sector primary school,” February, http://www.legco.gov.hk/yr07-08/english/panels/ed/papers/ed0229cb2-1180-1-e.pdf. Accessed 22 November 2012.Google Scholar
Education Bureau. 2009. “Study on small class teaching in primary schools in Hong Kong –final report,” December, http://www.legco.gov.hk/yr09-10/english/panels/ed/papers/ed0513-rpt0912-e.pdf. Accessed 25 July 2013.Google Scholar
Education Bureau. 2010. “Measures to reduce the impact of declining student population on secondary schools,” 8 November, http://www.legco.gov.hk/yr10-11/english/panels/ed/papers/ed1108cb2-182-3-e.pdf. Accessed 22 December 2013.Google Scholar
Education Commission. 1992. “Education commission report No. 5,” June, http://www.edb.gov.hk/attachment/en/about-edb/publications-stat/major-reports/ecr5_e.pdf. Accessed 21 December 2013.Google Scholar
Education and Manpower Bureau. 2005. “Small class teaching – progress of the pilot study and the way forward,” June, http://www.legco.gov.hk/yr04-05/english/panels/ed/papers/ed0613cb2-1845-1e.pdf. Accessed 18 November 2012.Google Scholar
Financial Secretary's Office. 2007. “Analysis of income disparity in Hong Kong,” 16 March, http://www.legco.gov.hk/yr06-07/english/fc/fc/papers/fc0301fc-46-e.pdf. Accessed 20 May 2012.Google Scholar
Gregory, R.J. 1991. “The attitudes of senior public servants in Australia and New Zealand: administrative reform and technocratic consequence?” Governance: An International Journal of Policy and Administration 4(3), 295–331.CrossRefGoogle Scholar
Harris, Peter B. 1980. Hong Kong – A Study in Bureaucracy and Politics. Hong Kong: Macmillan.Google Scholar
Hong Kong Legislative Council. 1993. “Legislative Council official record of proceedings,” 10 March, http://www.legco.gov.hk/yr92-93/english/lc_sitg/hansard/h930310.pdf. Accessed 10 October 2012.Google Scholar
Hong Kong Legislative Council. 1999. “Legislative Council official record of proceedings,” 28 April, http://www.legco.gov.hk/yr98-99/english/counmtg/general/cou_mtg.htm#mtg2804.htm. Accessed 15 May 2012.Google Scholar
Hong Kong Legislative Council. 2002. “Legislative Council official record of proceedings,” 3 July, http://www.legco.gov.hk/yr01-02/english/counmtg/hansard/cm0703ti-translate-e.pdf. Accessed 20 September 2012.Google Scholar
Hong Kong Legislative Council. 2003. “Legislative Council official record of proceedings,” 10 July, http://www.legco.gov.hk/yr02-03/english/counmtg/hansard/cm0710ti-translate-e.pdf. Accessed 10 August 2013.Google Scholar
Hong Kong Legislative Council. 2005a. “Legislative Council official record of proceedings,” 15 June, http://www.legco.gov.hk/yr04-05/english/counmtg/hansard/cm0615ti-translate-e.pdf. Accessed 20 May 2012.Google Scholar
Hong Kong Legislative Council. 2005b. “Legislative Council official record of proceedings,” 9 November, http://www.legco.gov.hk/yr05-06/english/counmtg/hansard/cm1109ti-translate-e.pdf. Accessed 28 June 2012.Google Scholar
Hong Kong Legislative Council. 2010. “Legislative Council official record of proceedings,” 27 January, http://www.legco.gov.hk/yr09-10/english/counmtg/hansard/cm0127-translate-e.pdf. Accessed 22 November 2012.Google Scholar
Hong Kong Legislative Council. 2012. “Legislative Council official record of proceedings,” 1 February, http://www.legco.gov.hk/yr11-12/english/counmtg/hansard/cm0201-translate-e.pdf. Accessed 21 December 2013.Google Scholar
Hood, Christopher, and Lodge, Martin. 2006. The Politics of Public Service Bargains, Reward, Competency, Loyalty – and Blame. Oxford: Oxford University Press.CrossRefGoogle Scholar
Huque, Ahmed Shafiqul, Lee, Grace O.M. and Cheung, Anthony B.L.. 1998. The Civil Service in Hong Kong: Continuity and Change. Hong Kong: Hong Kong University Press.Google Scholar
Information Services Department. 2000. “CE's transcript,” 12 October, http://www.info.gov.hk/gia/general/200010/12/1012161.htm. Accessed 2 July 2012.Google Scholar
Information Services Department. 2005a. “Speech by CE at joint Chambers of Commerce luncheon,” 17 October, http://www.info.gov.hk/gia/general/200510/17/P200510170184.htm. Accessed 21 May 2012.Google Scholar
Information Services Department. 2005b. “CE's speech at HK Economic Summit 2006,” 1 December, http://www.info.gov.hk/gia/general/200512/01/P200512010196.htm. Accessed 21 May 2012.Google Scholar
Information Services Department. 2008. “CE's speech at joint business community luncheon,” 17 October, http://www.info.gov.hk/gia/general/200810/17/P200810170163.htm. Accessed 1 December 2011.Google Scholar
Labour and Welfare Bureau. 2007. “Mid-term review of the wage protection movement for cleaning workers and security guards,” 15 November, http://www.legco.gov.hk/yr07-08/english/panels/mp/papers/mp1115cb2-310-5-e.pdf. Accessed 20 May 2012.Google Scholar
Lau, Siu-kai. 2002. “Tung Chee-hwa's governing strategy: the shortfall in politics.” In Lau, Siu-kai (ed.), The First Tung Chee-hwa Administration: The First Five Years of the Hong Kong Special Administration Region. Hong Kong: Chinese University Press, 1–40.Google Scholar
Lee, Eliza W.Y. 2010. “The politics of minimum wage legislation in Hong Kong: critical social policy change in a semi-democracy.” International Journal of Policy Studies 1(1), 109–127.Google Scholar
Legislative Council Secretariat. 2002. “Panel on education – minutes of meeting held on 18 November 2002,” 12 December, http://www.legco.gov.hk/yr02-03/english/panels/ed/minutes/ed021118.pdf. Accessed 20 September 2012.Google Scholar
Legislative Council Secretariat. 2005. “Background brief prepared by Legislative Council Secretariat for the meeting on 13 June 2005,” 13 June, http://www.legco.gov.hk/yr04-05/english/panels/ed/papers/ed0613cb2-1845-2e.pdf. Accessed 17 November 2012.Google Scholar
Legislative Council Secretariat. 2010. “Legislative Council panel on education – minutes of meeting held on 8 November 2010,” http://www.legco.gov.hk/yr10-11/english/panels/ed/minutes/ed20101108.pdf. Accessed 22 November 2012.Google Scholar
Li, Wei. 2013. “Structural Change and the Relationship between Politicians and Bureaucrats: The Case of Hong Kong.” PhD diss., University of Hong Kong.Google Scholar
Lui, Terry T. 1988. “Changing civil servants’ values.” In Scott, Ian and Burns, John P. (eds.), The Hong Kong Civil Service and Its Future. Hong Kong: Oxford University Press, 131–166.Google Scholar
Lui, Terry T. 1994. “Efficiency as a political concept in the Hong Kong government: issues and problems.” In Burns, John P. (ed.), Asian Civil Service Systems: Improving Efficiency and Productivity. Singapore: Times Academic Press, 17–58.Google Scholar
Lui, Terry T., and Cooper, Terry L.. 1996. “Bureaucracy, democracy and administrative ethics: a study of public service values in Hong Kong.” International Review of Administrative Sciences 62(2), 177–196.CrossRefGoogle Scholar
Lui, Terry T., and Cooper, Terry L.. 1997. “Values in flux: administrative ethics and the Hong Kong public servant.” Administration & Society 29(3), 301–324.CrossRefGoogle Scholar
Meyer-Sahling, Jan-Hinrik. 2008. “The changing colors of the post-communist state: the politicization of the senior civil service in Hungary.” European Journal of Political Research 47(1), 1–33.CrossRefGoogle Scholar
Miners, Norman J. 1991. The Government and Politics of Hong Kong. Hong Kong: Oxford University Press.Google Scholar
New Zealand State Services Commission. 2007. “Standards of integrity & conduct,” June, http://www.ssc.govt.nz/upload/downloadable_files/Code-of-conduct-StateServices.pdf. Accessed 7 March 2014.Google Scholar
Office of the Chief Executive. 2012. “Biography,” February, http://www.ceo.gov.hk/eng/biography.htm. Accessed 22 February 2012.Google Scholar
Peters, B. Guy. 2001. The Politics of Bureaucracy. London: Routledge.Google Scholar
Politicians-bureaucrats Project. 2009–2012. Research project conducted by The University of Hong Kong.Google Scholar
Rokeach, Milton. 1972. Beliefs, Attitudes, and Values: A Theory of Organization and Change. San Francisco: Jossey-Bass.Google Scholar
Scott, Ian. 1996. “Civil service neutrality in Hong Kong.” In Asmerom, H.K. and Reis, Elisa P. (eds.), Democratization and Bureaucratic Neutrality. London: Macmillan, 277–293.CrossRefGoogle Scholar
Scott, Ian. 2005. Public Administration in Hong Kong: Regime Change and its Impact on the Public Sector. Singapore: Marshall Cavendish International.Google Scholar
Scott, Ian. 2010. The Public Sector in Hong Kong. Hong Kong: Hong Kong University Press.CrossRefGoogle Scholar
Singapore Public Service Division. 2012. “Mission, vision and core values,” 2 July, http://www.psd.gov.sg/content/psd/en/home/singaporepublicservice/missionvisionandcorevalues.html. Accessed 7 March 2014.Google Scholar
Tansey, Oisín. 2007. “Process tracing and elite interviewing: a case for non-probability sampling.” PS: Political Science and Politics 40(4), 765–772.Google Scholar
The University of Hong Kong Public Opinion Program. 2010. “Minimum wage and standard working hours survey,” 11 May, http://hkupop.hku.hk/chinese/report/oxfam_mw2010/content/resources/freq.pdf. Accessed 11 January 2011.Google Scholar
Treasury Board of Canada Secretariat. 2011. “Values and ethics code for the public sector,” 15 December, http://www.tbs-sct.gc.ca/pol/doc-eng.aspx?id=25049&section=text. Accessed 7 March 2014.Google Scholar
Tsang, Yam-kuen. 2005a. “The full text of Donald Tsang Yam-kuen's declaration speech yesterday,” South China Morning Post, 3 June.Google Scholar
Tsang, Yam-kuen. 2005b. “Policy address,” 12 October, http://www.policyaddress.gov.hk/05-06/eng/. Accessed 22 September 2012.Google Scholar
Tsang, Yam-kuen. 2006. “Policy address,” 11 October, http://www.policyaddress.gov.hk/06-07/eng/policy.html. Accessed 20 September 2012.Google Scholar
Tsang, Yam-kuen. 2010. “Policy address,” 26 October, http://www.policyaddress.gov.hk/10-11/. Accessed 20 September 2012.Google Scholar
Tsang, Yam-kuen. 2011. “Policy address,” 24 October, http://www.policyaddress.gov.hk/11-12/eng/pdf/Policy11-12.pdf. Accessed 20 September 2012.Google Scholar
Tung, Chee-hwa. 2002. “CE on principal official accountability system,” 17 April, http://www.info.gov.hk/gia/general/200204/17/0417216.htm. Accessed 7 March 2014.Google Scholar
Tung, Chee-hwa. 2005. “Policy address,” 12 January, http://www.policyaddress.gov.hk/2005/eng/index.htm. Accessed 20 September 2012.Google Scholar
Turner, Herbert Arthur. 1980. The Last Colony: But Whose? A Study of the Labour Movement, Labour Market and Labour Relations in Hong Kong. Cambridge: Cambridge University Press.Google Scholar
UK Civil Service Commission. 2010. “Civil service code,” November, http://www.civilservice.gov.uk/about/values. Accessed 7 March 2014.Google Scholar
Wilson, Graham K., and Barker, Anthony. 2003. “Bureaucrats and politicians in Britain.” Governance 16(3), 349–72.CrossRefGoogle Scholar
Wong, Joseph W.P. 2002. “SCS writes to all colleagues on principal officials accountability system,” 31 May, http://www.info.gov.hk/gia/general/200204/17/0417284.htm. Accessed 10 August 2013.Google Scholar