District councils of Hong Kong

An early basis for the delivery of local services were the Kaifong associations, set up in 1949. However, by the 1960s, these had ceased to represent local interests, and so, in 1968, the government established the first local administrative structure with the city district offices, which were intended to enable it to mobilise support for its policies and programmes, such as in health and crime-reduction campaigns. An aim was also to monitor the grass roots, following the 1967 riots.[1]

Under the Community Involvement Plan, launched in the early 1970s, Hong Kong and Kowloon were divided into 74 areas, each of around 45,000 people. For each, an 'area committee' of twenty members was then appointed by the city district officers, and was comprised, for the first time, of members from all sectors of the local community, led by an unofficial member of the Legislative Council (Legco). The initial purpose was to help implement the 'Clean Hong Kong' campaign, by distributing publicity material to local people. This was held to be a success.[1]

A next stage in the government's effort to increase local engagement and influence was the setting up, in June 1973, of mutual aid committees (MACs) in high-rise residential buildings. These were described in Legco as "a group of responsible citizens, resident in the same multi-storey building who work together to solve common problems of cleanliness and security." In fact, they were tightly controlled by the government. With government encouragement, the number of such committees increased rapidly in these private buildings, from 1,214 in 1973 to 3,463 in 1980. The scheme was extended to public housing estates, of which 800 had MACs in 1980, as well as factories and in the New Territories.[1]

The next development was the establishment of eight district advisory boards in the districts of the New Territories, starting with Tsuen Wan in 1977. The boards, whose members were appointed, were more formally constituted than the city district boards, charged with advising on local matters, recommending minor district works, and conducting cultural and recreational activities.

Then in 1982, under the governorship of Sir Murray MacLehose, the district boards were established under the District Administration Scheme. The aim was to improve co-ordination of government activities in the provision of services and facilities at the district level and the boards initially took over the roles of the district advisory boards.[1][2]

At first, the boards comprised only appointed members and government officials, but from 1982, a proportion of each was elected.[1] In an attempt to inject a democratic element into the Legislative Council, the government introduced a model where some legislators were elected indirectly by members of the district councils. Twelve legislators were returned by an 'electoral college' of district councillors in 1985. The practice was repeated in 1988 and 1995.[3]

After the HKSAR was established, as part of the 'through train', the district boards became provisional district boards, composed of all the original members of the boards supplemented by others appointed by the chief executive. (Under the British administration, the Governor had refrained from appointing any member.)

Later in early 1999 a bill was passed in the Legislative Council providing mainly for the establishment, composition and functions of the District Councils, which would replace the Provisional District Boards. The 27 ex officio seats of Rural Committees, abolished by the colonial authorities, were reinstated. The government rejected any public survey or referendum on the issue, saying that it had been studying the issue since 1997, and had received 98 favourable submissions. The self-proclaimed pro-democracy camp dubbed the move "a setback to the pace of democracy" because it was a throwback to the colonial era.[4]

In 2010, the government proposed that five legislators be added to district council functional constituencies, and be elected by proportional representation of elected DC members.[5] In a politically controversial deal between the Democratic Party and the Beijing government, this was changed to allow the five seats to be elected by those members of the general electorate who did not otherwise have a functional constituency vote.

The councils are mandated to advise the Government on the following:

• matters affecting the well-being of people in the District;
• the provision and use of public facilities and services within the District;
• the adequacy and priorities of Government programmes for the District;
• the use of public funds allocated to the District for local public works and community activities; and

District councils also undertake the following within the respective districts with its available funds allocated by the government:

• environmental improvements;
• the promotion of recreational and cultural activities; and
• community activities

There were a total of 534 district council members in the third term (2008–11), of which –

• 405 are returned by direct election, each from the constituencies in the 18 districts by a "First past the post" system,
• 27 are ex officio members (當然議員) (Rural Committees Chairmen in the New Territories), and
• 102 are appointed members by the Chief Executive of Hong Kong.

Starting from the fourth District Council Election, the total number of district council members has reduced from 534 to 507, of which –

• 412 are returned by direct election
• 27 are ex officio members (當然議員) (Rural Committees Chairmen in the New Territories), and
• 68 are appointed members by the Chief Executive of Hong Kong.

Map of district councils

There is a district council for each of the following eighteen districts. The number in parentheses corresponds to the number shown on the map at the right.

• Hong Kong Island
  • Central and Western District (15)
  • Eastern District (16)
  • Southern District (17)
  • Wan Chai District (18)
• Kowloon (including New Kowloon)
  • Kowloon City District (10)
  • Kwun Tong District (11)
  • Sham Shui Po District (12)
  • Wong Tai Sin District (13)
  • Yau Tsim Mong District (14)
• New Territories
  • Islands District (1)
  • Kwai Tsing District (2)
  • North District (3)
  • Sai Kung District (4)
  • Sha Tin District (5)
  • Tai Po District (6)
  • Tsuen Wan District (7)
  • Tuen Mun District (8)
  • Yuen Long District (9)

Source: Review of the Roles, Functions and Composition

As of 2 January 2020:

Under the district councillor appointment system, 102 district councillors out of 534 are picked by the chief executive. The remainder are democratically elected by voters in each district. In June 2010, the government announced it would make proposals on whether to scrap the system in the next Legco year, from October 2010.[6]

 Summary of the 6 November 2011 District Councils of Hong Kong election results

Political Affiliation			Popular vote	%	%±	Standing	Elected	±
		Democratic Alliance for the Betterment and Progress of Hong Kong	282,119	23.89	1.84	182	136	16
		Civil Force	35,221	2.98	0.27	20	15	3
		Hong Kong Federation of Trade Unions	36,646	3.10	2.73	20	11	7
		Liberal Party	23,408	1.98	2.41	24	9	3
		New People's Party	15,568	1.32	-	12	4	3
		New Territories Association of Societies	2,187	0.19	-	2	2	1
		Economic Synergy	2,404	0.20	-	3	1	1
		Fu Cheong Estate Residents Association	2,235	0.19	-	1	1	1
		Federation of Hong Kong and Kowloon Labour Unions	1,859	0.16	0.04	2	1	0
		Pro-Beijing Independents	252,720	21.40	-	172	121	3
Total for pro-Beijing camp			654,368	55.42	1.77	438	301	23
		Democratic Party	205,716	17.42	2.04	132	47	3
		Hong Kong Association for Democracy and People's Livelihood	45,453	3.85	0.75	26	15	2
		Neo Democrats	25,437	2.15	-	10	8	0
		Civic Party	47,603	4.03	0.26	41	7	5
		Neighbourhood and Worker's Service Centre	14,364	1.22	0.11	6	5	2
		Hong Kong Confederation of Trade Unions	4,044	0.34	0.14	3	0	0
		Power for Democracy	3,837	0.32	-	4	0	0
		Individuals	23,007	1.95	2.33	14	6	1
	Total for Democratic Coalition for DC Election		369,461	31.29	3.60	236	88	9
		People Power	23,465	1.99	-	62	1	1
		League of Social Democrats	21,833	1.85	0.66	28	0	5
		Land Justice League	3,025	0.26	-	4	0	0
		Citizens' Radio	1,718	0.15	-	2	0	0
		Independent democrats and others	45,015	3.81	-	37	14	3
Total for pan-democracy camp			464,512	39.34	0.18	369	103	16
Independent and others			61,930	5.24	1.96	108	8	2
Total vaild votes			1,180,809	100.0	-	915	412	7
Invaild votes			21,497
Total (turnout 41.49%)			1,202,544

After the election, Donald Tsang appointed 68 members, none of them from the pan-democrat camp.

 Summary of the 18 November 2007 district councils of Hong Kong election results

Political Affiliation			Popular vote	%	%±	Standing	Elected	±
		Democratic Alliance for the Betterment and Progress of Hong Kong	292,916	25.73	2.79	178[lower-roman 1]	115	40
		Civil Force	30,880	2.71	0.27	20	18	3
		Liberal Party	50,026	4.39	1.63	55	14	3
		Hong Kong Federation of Trade Unions	4,208	0.37	0.11	3[lower-roman 1]	1	1
		Tseung Kwan O Residents' Association	1,922	0.17	-	1	1	-
		Tin Shui Wai Women Association	1,457	0.13	-	1	1	-
		Federation of Hong Kong and Kowloon Labour Unions	1,339	0.12	0.12	1	1	0
		New Territories General Chamber of Commerce	818	0.07	-	1	0	-
		New Century Forum	543	0.05	0.03	1	0	0
		Hong Kong Civic Association	390	0.03	-	5	0	-
		Independents	226,645	19.91	-	161	118
Total for pro-Beijing camp			614,621	53.98	7.38	430	273	61
		Democratic Party	175,054	15.38	5.90	110	59	21
		Hong Kong Association for Democracy and People's Livelihood	52,386	4.60	0.46	37	17	7
		Civic Party	48,837	4.29	-	41	8	2
		League of Social Democrats	28,601	2.51	-	29	6	0
		Neighbourhood and Worker's Service Centre	12,565	1.10	0.24	5	4	0
		Frontier	18,203	1.60	0.81	15	3	3
		Yuen Long Tin Shui Wai Democratic Alliance	9,530	0.84	0.04	11	1	4
		Hong Kong Confederation of Trade Unions	2,273	0.20	0.18	2	0	2
		Civic Act-up	991	0.09	0.40	2	0	2
		Individuals	60,510	5.31	-	44	10	-
	Total for Democratic Coalition for DC Election		409,573	35.97	-	296	108	-
		Independent democrats and others	36,208	3.18	-	39	19	-
Total for pan-democracy camp			445,781	39.15	5.51	335	127	56
Independent and others			78,133	6.86	2.21	142	5	-
Total (turnout 38.83%)			1,138,358	100.0	-	907	405[lower-roman 2]	5

In December 2007, Donald Tsang named 27 government-appointed council members.[8]

• 13 members of the Liberal Party
• 11 members of the DAB
• three members from the Federation of Trade Unions

Tsang was criticised for not appointing a single member of the pan-democrats in either 2003 or 2007.[8]

 Summary of the 23 November 2003 District Councils of Hong Kong election results

Political Affiliation			Popular vote	%	%±	Standing	Elected	±
		Democratic Alliance for the Betterment of Hong Kong	241,202	22.94	0.59	200	62	21
		Civil Force	25,720	2.45	0.02	22	17	3
		Liberal Party	29,108	2.77	0.65	27	14	1
		Hong Kong Progressive Alliance	29,091	2.77	0.05	23	13	5
		Wan Chai Community Union	1,189	0.11	-	1	1	-
		Hong Kong Federation of Trade Unions	2,766	0.26	0.13	3	0	-
		New Youth Forum	1,314	0.12	-	2	0	-
		New Century Forum	833	0.08	-	1	0	-
		Federation of Hong Kong and Kowloon Labour Unions	-	-	-	1	1	-
		Independent and others	156,827	14.92	-	136	92	6
Total for pro-Beijing camp			489,889	46.48	0.97	417	201	28
		Democratic Party	223,675	21.27	3.57	120	95	17
		Hong Kong Association for Democracy and People's Livelihood	53,264	5.07	0.36	37	25	4
		Frontier	25,349	2.41	1.25	14	6	1
		Neighbourhood and Worker's Service Centre	14,146	1.35	0.94	5	4	1
		Yuen Long Tin Shui Wai Democratic Alliance	8,418	0.80	-	6	4	2
		Civic Act-up	5,170	0.49	-	5	3	3
		Central and Western Democratic Power	5,748	0.55	-	4	2	-
		Hong Kong Confederation of Trade Unions	4,032	0.38	-	3	2	2
		Yuen Long Democratic Alliance	1,489	0.14	-	1	1	-
		7.1 People Pile	2,888	0.27	-	3	0	-
		April Fifth Action	1,149	0.11	-	1	0	-
		Citizens Party	361	0.03	0.22	1	0	1
		Independent democrats	130,453	12.41	-	87	56	8
Total for pro-democracy camp			477,596	45.54	10.29	288	198	38
Independent and others			83,939	7.98	-	132	1	-
Total (turnout 44.10%)			1,051,424	100.0	-	837	400	10

In 2003, Tung appointed 21 political party appointees to the district councils to dilute the influence of the pan-democrats as follows:[8]

• eight members of the Liberal Party
• six members of the DAB
• six members from the Progressive Alliance
• one from the New Century Forum

Professor of politics and sociology at Lingnan University, Dr. Li Pang-kwong said "As in the past, most of the appointees were pro-government or persons without a clear political stance... ensur[ing] that no district council is in the hands of the democrats."[9]

A spokesman for the democrats said the appointees "will have an unfair advantage in that they are getting financial support from the government which will help them run for office in future elections."[9]

After this election, this election would abolish the appointed members of the Hong Kong district councils.

 Summary of the 28 November 1999 District Councils of Hong Kong election results

Political Affiliation			Popular vote	%	%±	Standing	Elected	±
		Democratic Alliance for the Betterment of Hong Kong	190,792	23.53	11.82	176	83	27
		Hong Kong Progressive Alliance	23,168	2.86	1.33	25	16	1
		Liberal Party	27,718	3.42	3.98	34	15	3
		Civil Force	19,633	2.42	0.65	14	11	2
		Hong Kong Federation of Trade Unions	1,074	0.13	-	1	1	1
		New Territories Heung Yee Kuk	942	0.12	-	1	1	0
		Hong Kong Chinese Reform Association	-	-	-	1	1	0
		Independent and others	177,774	21.92	-	180	104	4
Total for pro-Beijing camp			443,441	54.69	-	436	232	22
		Democratic Party	201,461	24.85	1.69	173	86	13
		Hong Kong Association for Democracy and People's Livelihood	38,119	4.70	2.25	32	19	1
		123 Democratic Alliance	11,396	1.41	0.60	10	6	0
		Frontier	9,388	1.16	-	9	4	1
		Neighbourhood and Worker's Service Centre	3,295	0.41	-	3	2	0
		Citizens Party	2,072	0.26	-	1	1	0
		Hong Kong Democratic Foundation	1,392	0.17	0.42	1	1	0
		Independent democrats	58,706	7.24	-	54	38	7
Total for pro-democracy camp			325,829	40.18	-	283	157	22
Independent and others			41,593	5.13	-	79	1	0
Total (turnout 35.82%)			810,863	100.0	-	798	390	44

Note1: The total seats of the District Councils are 519 including 27 ex-officio members (Rural Committee Chairmen in the New Territories), and 102 members appointed members by the Chief Executive of Hong Kong.
Note2: Councilor Lau Kong-wah who ran under both DAB and Civil Force banners is counted as a DAB member in this chart.

In 1999, Tung Chee Hwa appointed 100 members to the district councils. These included 41 from various political parties, namely the Liberal Party, the Democratic Alliance for the Betterment and Progress of Hong Kong (DAB), and the Hong Kong Progressive Alliance. No democrats were appointed.[9]