MESSAGE

         This document has a special meaning as it is my first Policy Programme as the first Secretary for Education and Manpower of the Hong Kong Special Administrative Region Government. It also marks the beginning of a new era which will witness the development of our education system to ensure that it meets Hong Kong's long-term needs.

         This Policy Programme sets out what we are doing and will do to improve the quality of education, in particular basic education. We have promoted the use of information technology in schools, taken measures to improve language proficiency of our students and continued to improve the teaching and learning environment. In 1998-99, we will speed up the implementation of whole-day primary schooling, further promote information technology education, and take steps to enhance teacher education and training.

         We also aim at constantly enhancing the competitiveness of our manpower resources. We will provide training to improve the skills of our workers, promote safety and health in the workplace, foster good labour relations and safeguard and promote the rights and benefits of our workforce. Our emphasis will be on promoting occupational safety and health, as well as on how best to meet Hong Kong's changing manpower needs.

         I and my colleagues in the Education and Manpower Bureau, the Education Department, the Labour Department, the Secretariat of the University Grants Committee and the Student Financial Assistance Agency, with the support of the Hong Kong Examinations Authority, the Vocational Training Council, the Construction Industry Training Authority, the Clothing Industry Training Authority, the Employees Retraining Board, the Occupational Safety and Health Council and all relevant advisory boards and committees are determined to fulfil the commitments set out in this document.

         I welcome your comments and suggestions on this document.







(Joseph W P Wong)
Secretary for Education and Manpower


INTRODUCTION

         The Hong Kong Special Administrative Region (HKSAR) Government is committed to ensuring that it is open and fully accountable to the people of Hong Kong. Policies, aims and programmes must be clear to all so that the Government can be accountable for their delivery. With greater clarity of purpose and accessibility, the public can better assess our performance and help us improve our quality of service.

         The Policy Programmes, which underpin the Policy Address delivered by the Chief Executive in October 1997, explain the objectives and ongoing work of each Policy Bureau and its supporting departments, as well as Department of Justice, Office of the Judiciary Administrator, Independent Commission Against Corruption and the Administration Wing of the Chief Secretary for Administration's Office, and their proposed new commitments for the coming year. They are set out in three sections:



Objectives


Education

         The Bureau's objective is to provide "Quality Education"" at all levels so that our young people can become responsible and independent-minded citizens of the HKSAR. We seek to equip them with the necessary knowledge, skills and values to fulfil their responsibilities to their families and the community, and to contribute to Hong Kong's economic development and international competitiveness.

         We seek to achieve our goals by:

         These programmes are part of the Government's wider effort to promote a fair and prosperous community providing equal opportunities for all. They also reflect the Government's determination to invest substantially in our young people to ensure the continued success of the HKSAR into the future.

         To ensure that our education system meets the changing needs of our society, we plan to conduct a comprehensive review of our academic system. This will cover both basic and tertiary education in terms of their optimal duration of study and interface among the various stages, the length of compulsory education, and diversification in approach.


Employment

         The Government's objectives are to ensure that Hong Kong has in place a well-trained and well-motivated workforce which can cope with the dynamic needs of the Hong Kong economy, and that we have harmonious labour relations conducive to social stability and economic prosperity. We seek to achieve these goals by:


Implementing the Basic Law

         The requirements of the relevant articles of the Basic Law, as listed at Annex, have been reflected in the policy objectives of the Bureau.

         In line with Articles 136 and 137 of the Basic Law, the HKSAR will on its own continue to formulate policies to develop and improve education. We will ensure that educational institutions are run by qualified organisations and individuals; that educational institutions retain their autonomy and academic freedom; and that our students can make their own choice of educational institutions in or outside the HKSAR.

         Articles 39, 152 and 153 are related to the application of International Labour Conventions (ILCs), international agreements and participation in international organisations. In line with our policy objective of ensuring that we maintain a level of labour standards which is broadly comparable to neighbouring countries with similar social and economic developments, Hong Kong aims at applying as many ILCs as local circumstances allow. To this end, the HKSAR will continue to review the application of ILCs in consultation with the Central People's Government with a view to determining the application of new ILCs and the improvement of previous declarations.

         Hong Kong will continue to participate in the activities of the International Labour Organisation, such as conferences and fellowship programmes, as part of the delegation of the People's Republic of China or using the name of "Hong Kong, China" in consultation with the Central People's Government.

         Article 147 stipulates that the HKSAR shall on its own formulate laws and policies relating to labour. We will continue to ensure that these laws and policies protect the rights and interests of our workers, as well as contribute to the economic development of Hong Kong.


Back to INTRODUCTION


Major Programme Areas

         The Education and Manpower Bureau is responsible for 11 major programme areas:

  1. Kindergarten Education;

  2. Primary Education;

  3. Secondary Education;

  4. Special Education;

  5. Tertiary Education;

  6. Vocational Training and Employees Retraining;

  7. Construction Industry Training;

  8. Employment Services;

  9. Labour Relations;

  10. Employees' Rights and Benefits; and

  11. Occupational Safety and Health.



A. Kindergarten Education


Aim

         The aim of the Bureau is to promote the development of high quality kindergarten education in the private sector.


Overview

         The Government promotes quality kindergarten education through the following programmes of support:

         Since September 1997, we have required that at least 40% of teachers in each kindergarten have completed advanced training. Following a review of the Kindergarten Subsidy Scheme (KSS) in April 1996, we have introduced enhancement measures in the 1996-97 school year. These include raising the eligibility cut-off point to enable more kindergartens to benefit, and revising the rate of subsidy annually to take account of inflation as well as annual salary increments of teachers. With effect from the current school year, kindergartens charging fees not higher than $13,200 per pupil per annum are eligible to apply for subsidy under the KSS.


Key Indicators

         In the 1996-97 school year,


New Commitments

Training and qualifications of kindergarten teachers

  1. We will require:

    1. at least 50% of teachers in each kindergarten to be Qualified Kindergarten Teachers (QKTs) by September 1999;

    2. at least 60% QKTs in each kindergarten by September 2000; and

    3. all newly recruited kindergarten principals to have completed the Certificate in Kindergarten Education Course from September 2004.

  1. We will provide additional training for 660 existing kindergarten principals and teachers from 1998 to 2002 to enable kindergartens to meet the above requirements.

Kindergarten Subsidy Scheme

  1. We will advance the comprehensive review of the KSS to the 1997-98 school year, i.e.one year ahead of the original schedule, to take stock of how well the scheme has been operating since its introduction in September 1995. In the 1998-99 school year, we will introduce improvements to the KSS to provide incentives to encourage kindergartens to employ more trained teachers.



  2. B. Primary Education


    Aims

             The aims of the Bureau are:


    Overview

    Provision of school places

             In the 1996-97 school year, we built seven primary schools which have all begun whole-day operation before or in September 1997.

    Enhancing teaching quality and learning effectiveness

             In the 1997-98 school year, we have provided a further 350 graduate posts for primary schools (including special schools), bringing the total to 1?15 (which equals 5.5% of primary school teaching posts). We will be setting benchmarks for language teachers and will complete a pilot exercise by the end of 1998.

             We have further developed the Target Oriented Curriculum. In the 1997-98 school year, 608 government and aided primary schools adopt it at various levels, representing 82.1% of the total number of such schools.

    Improving the teaching and learning environment

             Another 37 uni-sessional/bi-sessional aided schools have switched to whole-day operation in the 1997-98 school year.

             Reduction of class size has been extended to Primary?. So far, improvement works have been undertaken in 100 and 222 primary schools under the School Improvement Programme and the Noise Abatement Programme respectively.

             We are revising the standard design for primary schools to provide additional facilities, including additional staff room, multi-media room and language room, to cater for new developments in the education arena and to provide a better teaching and learning environment.

    Language Proficiency

             The Chinese and English Extensive Reading Schemes are being extended to all primary levels over four years, and we will introduce Putonghua as a core subject in the primary curriculum starting from Primary 1 in the 1998-99 school year.

    Information technology education

             Starting from this school year, all government and aided primary schools will be provided with multi-media computer facilities. A Computer Awareness Programme and a Computer-Assisted Learning Programme, including teacher training, will be implemented.

    Education services for newly arrived children from the Mainland

             About 14 900 newly arrived children were enrolled in government and aided primary schools in the 1996-97 school year. In addition to some 1?20 classes of induction/English programmes, we have implemented a school-based support scheme from the 1997-98 school year to assist newly arrived children overcome academic difficulties. We have also started a pilot scheme on short-term preparatory course in five primary schools. In view of a possibly larger inflow of newly arrived children in the next few years, we have taken additional measures to ensure adequate provision of school places and support services for them.

    School administration

             So far, 109 government and aided primary schools have joined the School Management Initiative Scheme, 132 have joined the Performance Pledge Scheme, and another 90 have joined both Schemes.


    Key Indicators

             In the 1996-97 school year,


    New Commitments

    1. We will raise the percentage of our government and aided primary school pupils studying in whole-day schools from the present 21% to 60% in the 2002-03 school year.

             In 1998, we will:

    1. Improve the quality of education by implementing the recommendations of Education Commission Report No. 7 (ECR 7), including the establishment of a $5 billion Quality Education Development Fund, a school quality assurance mechanism and the implementation of whole school inspections;

    2. Formulate a five-year strategy, including the implementation of the following measures, to step up information technology (IT) education:

      1. to enhance the provision of IT facilities in each government or aided primary school. On average, every primary school will have 40 multi-media computers;

      2. to enhance teacher education and training in IT;

      3. to select ten primary schools to take part in a pilot scheme on IT Demonstration Schools; and

      4. to plan for an Intranet System in the school sector which will facilitate the exchange of ideas and material within the school sector;

    3. Advance the timetable for having 35% of primary teaching posts as graduate posts from the target year of 2007 to 2001, by providing about 1 380 graduate teacher posts a year from the 1998-99 to 2001-02 school year. There will be a total of about 6 500 graduate teachers in government and aided primary schools (including special schools) in the 2001-02 school year;

    4. Study the feasibility of replacing the Academic Attainment Test for allocation of Secondary? places with an Academic Ability Assessment, which aims at testing pupils' higher order thinking skills with test items based on syllabuses of all subjects in the primary curriculum;

    5. Review the policy on private schools to encourage the development of a strong private school sector and to rationalise government assistance to private schools;

    6. Review the curricula for various subjects to enhance learning about China;

    7. Provide a travel subsidy for needy primary pupils who have to travel far to go to school;

    8. Extend the service of the Central Curriculum Development Support Team to help primary schools with a large number of academically low achievers;

    9. Start to provide one additional Certificated Master/Mistress post for each whole-day primary school and each bi-sessional primary school with 12 classes or more by phases to co-ordinate library service and to support the Chinese and English Extensive Reading Schemes; and

    10. Provide 421 additional clerical staff for 411 primary schools.



    C. Secondary Education


    Aims

             The aims of the Bureau are:


    Overview

    Provision of school places

             In the 1996-97 school year, we have completed seven secondary schools, which have all begun operation before or in September 1997.

    Enhancing teaching quality and learning effectiveness

             Following wide consultation, we have issued firm guidance on the medium of instruction to public sector (government, aided, caput and Bought Place) secondary schools for implementation from the 1998-99 school year.

    Improving the teaching and learning environment

             We are on target to eliminate floating classes at Secondary? to 5 by the year 2000. We are revising the standard design for secondary schools to provide additional facilities, including additional classrooms, additional staff room, multi-media room and language room, to cater for new developments in the education arena, to provide a better teaching and learning environment, and to reduce floating classes at Secondary? and 7.

             Improvement works have been undertaken in 98 and 215 secondary schools under the School Improvement Programme and the Noise Abatement Programme respectively.

    Language Proficiency

             The Chinese and English Extensive Reading Schemes are being extended to all secondary levels over four years. We will introduce a new Putonghua curriculum at Secondary? and Secondary? in the 1998-99 school year. We will continue to provide intensive English language programmes for sixth form students, in both Chinese- and English-medium schools, to better prepare them for tertiary studies. At the beginning of the 1997-98 school year, 66 secondary schools have employed 95 native-speaking English teachers.

    Information technology education

             With government assistance, 417 or 88% of secondary schools have become Internet subscribers. We have also made preparations to set up Information Technology Learning Centres in 46 prevocational and secondary technical schools, including training for 460 teachers.

    Education services for newly arrived young people from the Mainland

             About 1 430 newly arrived young people were enrolled in public sector secondary schools in the 1996-97 school year. Support services similar to those outlined under Primary Education are available to help them integrate into the local school system as soon as possible. In view of a possibly larger inflow of newly arrived young people in the next few years, we have taken additional measures to ensure adequate provision of school places and support services for them.

    Support for schools

             A Student Discipline Section has been set up to provide assistance to schools on matters relating to student discipline. The Central Curriculum Development Support Team has continued to give professional support to secondary schools admitting a large number of academically low achievers.

    School administration

             So far, 83 public sector secondary schools have joined the School Management Initiative Scheme, 49 have joined the Performance Pledge Scheme, and another 65 have joined both Schemes.


    Key Indicators

             In the 1996-97 school year,


    New Commitments

             In 1998, we will:

    1. Formulate a five-year strategy, including the implementation of the following measures, to step up IT education:

      1. to enhance the provision of IT facilities in each public sector secondary school. On average, every secondary school will have 82 multi-media computers;

      2. to enhance teacher education and training in IT;

      3. to select ten secondary schools to take part in the pilot scheme on the IT Demonstration Schools; and

      4. to plan for an Intranet System in the school sector;

    2. Improve the quality of education by implementing the recommendations of ECR 7 as outlined under the section on "Primary Education";

    3. Provide one to two additional English teachers and a recurrent English Language Class Grant for every public sector secondary school adopting Chinese as the medium of instruction;

    4. Provide one additional native-speaking English teacher for each public sector secondary school to enhance English language teaching;

    5. Update the technical curricula and upgrade the teaching facilities in prevocational and secondary technical schools and start to raise the graduate/non-graduate teacher ratio in prevocational schools to that of public sector grammar secondary schools by phases;

    6. Extend the Textbook Assistance Scheme to needy students in Secondary? to 7;

    7. Review the policy on private schools to encourage the development of a strong private school sector and to rationalise government assistance to private schools;

    8. Review the curricula for various subjects to enhance learning about China; and

    9. Provide one additional clerical staff each for 410 secondary schools.



    D. Special Education


    Aim

             The main policy objective of special education is to enable children with special educational needs to fully develop their individual potential. We encourage students with special educational needs to receive education in ordinary schools as far as possible, or in special schools where their particular needs make this necessary.


    Overview

    Special Schools

             To cater for students with special educational needs, we give enhanced support to special schools, including the services of professional therapists, a higher ratio of social workers and the provision of boarding places. We will continue to seek further enhancement of such support.

             Last year, we provided teacher assistants to certain categories of special schools, to ensure better care for disabled students, thus enabling teachers to concentrate on educational duties. We have also improved boarding care staff in special schools by upgrading the qualifications of wardens and assistant wardens so that there will be better collaboration between teaching and boarding staff of these schools to better meet students' learning needs.

    Integration

             To encourage ordinary schools to admit disabled students, support services and special equipment are provided to disabled students. The Education Department also provides teachers with professional advisory services to help them handle the emotional and learning problems of disabled students studying in ordinary schools.

             As at September 1996, a total of 637 schools had admitted 1?83 disabled students with the help of supportive services, which included special classes, visiting teachers, educational psychologists and audiologists from the Education Department and outreach services from special schools.

    Gifted Education

             A three-year pilot project on developing school-based programmes and support programmes for gifted primary school students has just been completed and is being evaluated. To support the development of gifted education, the Fung Hon Chu Gifted Education Centre provides programmes and training to students, teachers and parents, so that gifted children are given appropriate support to enable them to develop their potential to the full.


    Key Indicators

             In the 1996-97 school year,


    New Commitments

    Special Schools

             In 1998,

    1. We will further improve the provision of boarding staff in practical schools by upgrading the posts of wardens and assistant wardens to provide better pastoral care and counselling services to students.

    2. We will start to upgrade Programme Worker and Houseparent posts in special schools by phases to enhance pastoral care and education to students with special educational needs.

    3. We will enhance the provision ratio of school social workers from 1 to 150 students to 1 to 100 students to strengthen counselling and guidance services to students of practical schools.

    Integration Pilot Project

    1. A two-year pilot project on integration has commenced in the 1997-98 school year. Based on the results of this project, we will formulate a long-term strategy on integration.

    Gifted Education

    1. We will complete an evaluation of the pilot school-based programme for gifted students in primary schools in the 1997-98 school year.

    2. In 1998, the Fung Hon Chu Gifted Education Centre will expand its services to include centre-based enrichment programmes for both primary and secondary school students. It will also expand training programmes for teachers to equip them to help gifted students fully develop their potential.



    E. Tertiary Education


    Aims

             The aims of the Bureau are:


    Overview

    University Grants Committee-funded Institutions

             The 1996-97 academic year was an eventful one in the history of the University Grants Committee (UGC) sector. In July 1996, the Hong Kong Institute of Education came under the aegis of the UGC. The UGC completed a comprehensive review of the development of higher education in Hong Kong, followed by the publication of a report in October 1996. The main recommendations, which were endorsed by the Administration, form the blueprint for the development of tertiary education into the next century. After an unprecedented expansion in the past decade, the tertiary sector has now entered a period of consolidation where the focus will be on improving quality and efficiency.

             During the year, the UGC also completed the first round of Teaching and Learning Quality Process Reviews. These reviews enable institutions to focus their attention on teaching and learning as their primary mission and hence assist institutions in their efforts to improve quality. In addition, the second Research Assessment Exercise was concluded in early 1997. Finally, the UGC has just embarked on management reviews to ensure that institutions have in place appropriate internal resource allocation, planning and financial processes. Planning for the 1998-2001 triennium is also underway.

    Financial Assistance to Tertiary Students

             In the 1996-97 academic year, we provided a total of $968 million in grants and $945 million in normal and extended loans to 37?02 eligible full-time local students at specified institutions. This represented over 60% of the total student population. Successful applicants for the Local Student Finance Scheme (LSFS) on average received $27,985 in grants and/or $24,566 in normal loans. To enhance its efficiency and effectiveness, we have completed a review of the LSFS. We will introduce a non-means tested loan scheme open to all full-time tertiary students to complement the existing means-tested scheme. We expect this to benefit some 50?00 students. We have already introduced improvements including:

    Open Education and Continuing and Professional Education

             The former Open Learning Institute of Hong Kong was granted self-accrediting status in October 1996 and then university status in May 1997. The Institute was subsequently retitled "The Open University of Hong Kong". It has a student population of over 20?00, offering sub-degree, degree and postgraduate programmes in various disciplines through distance learning.

             In June 1997, we brought into force new legislation to regulate the quality, operation and advertisement of non-local higher and professional courses. The legislation seeks to protect local students from sub-standard non-local courses, create a level playing field for course providers and protect Hong Kong's image as a place which respects quality and internationally-recognised qualifications.


    Key Indicators

             In the 1996-97 academic year,


    New Commitments

    University Grants Committee-funded Institutions

    1. In the next five years, we will build 11?00 additional students hostel places, of which 9?60 places (at a cost of $1.6 billion) will start work in 1998. This will enable more students to identify with their academic community, and participate more in its activities. This in turn will help sharpen the communication skills of tertiary students, nurture their leadership qualities, and encourage independent thinking. Under this policy, all undergraduates will be given the opportunity to stay in a hostel for at least one year. In addition, all research postgraduates, non-local students and those undergraduates who have to travel long hours to and from campus will be provided with hostel places.

    2. In 1998, we will double the number of non-local students at undergraduate and taught postgraduate levels from the present 2% to 4% and increase substantially the ratio of non-local research postgraduates from the present 20% to one-third. This will enable us to attract more talented students and distinguished scholars from outside Hong Kong so as to inject an element of healthy competition and enhance the global outlook of local students.

    3. We will invest heavily in emerging centres of excellence which will enable our institutions to achieve and maintain recognition as world-class researchers in the international academic community, keep pace with rising international standards and serve the future economic and social needs of Hong Kong.

    4. In the 1997-98 academic year, we will provide $423 million for research funding.

    5. In the 1997-98 academic year, we will enhance the Chinese and English language skills of students at UGC-funded institutions by setting aside $87.5 million for Language Enhancement Grants to help institutions develop and mount language enhancement courses in Chinese, English and Putonghua to establish/expand self-access learning centres for students, etc.

    6. We will consider setting up a Centre of Language Teaching within the Institute of Education as a centre of excellence in the training and retraining of our language teachers.

    7. We will ask the tertiary institutions to seriously consider setting exit language examinations for the students.

    Financial Assistance to Students

    1. In 1998-99, we will introduce improvements to the existing LSFS to enhance its fairness, efficiency and transparency.

    2. We will introduce a non-means tested loan scheme on a no-gain-no-loss and cost-recovery basis to enhance the financial assistance for tertiary students.

    3. We will shorten the processing time for the LSFS applications by one month through more extensive computerisation.

    4. We will extend the student travel subsidy assistance to full-time undergraduate students over 25.

    5. Open University

      1. We will make a capital grant of $50illion to the Open University of Hong Kong to develop adult distance learning courses in both English and Chinese, to serve not just Hong Kong's long-term residents and new arrivals, but also students in the Mainland. Our aim is to turn the Open University into a centre of excellence in adult and distance learning.



      F. Vocational Education and Employees Retraining


      Aim

               The Bureau's aim is to ensure that Hong Kong has a well-trained workforce equipped to meet the demands of a dynamic economy and to contribute to the overall economic competitiveness of Hong Kong. To achieve this aim, we seek to provide:


      Overview

      Vocational Training Council

               This programme area deals with the promotion and administration of training schemes and the establishment and operation of training centres to provide pre-employment and upgrading training of manpower at the operative, craft, technician and technologist levels.

               Technical education is provided in two technical colleges and seven technical institutes. They offer courses at higher diploma, higher certificate, diploma, certificate and craft certificate levels. The number of student places, and the type and content of the courses, are adjusted to meet the changing demands of the economy. In the 1997-98 academic year, a new department devoted to China Business Studies has been set up at one of the technical institutes. To meet the future manpower needs arising from the Government's expanded housing programme over the next decade, the VTC provides an additional 720 places at the technician level in the construction discipline with effect from the 1997-98 academic year. The VTC will adjust the training programmes of its 24 training centres as necessary to meet the changing needs of the economy.

               In June 1997, we announced the way forward on the recommendations in the report on the strategic and organisational review of the VTC. There is general agreement that the VTC needs to be better able to respond to the changing needs of the economy, and that it must have a robust and flexible mechanism in place to enable it to achieve this mission. With this aim in mind,

               The VTC is also undertaking a comprehensive resource review of the levels of work, uniqueness of function, quality of work and efficiency of each unit or section within the organisation. We believe that this review, once undertaken successfully, will help resource redeployment to meet the needs of a changing labour market.

               Other follow-up action in respect of the strategic and organisational review is covered in the section "Into the 21st Century".

      Employees Retraining

               The Employees Retraining Board (ERB) was established in October 1992 to administer the Employees Retraining Scheme (ERS). The ERS aims at helping workers adjust to changes in the labour market. It is now providing 251 types of courses through its 59 training bodies at 134 training centres. Courses fall into three main categories ?job search skills, job specific skills and general skills. Since its establishment, the ERB has provided training for over 100 000 persons.

               The recurrent income of the ERB comes from a levy imposed on employers employing imported workers under the importation of labour schemes at the rate of $400 per month for each imported worker. The Government provided a start-up fund of $300 million in 1992. We made a second injection of $300 million to ERB in May 1996 and a third injection of $500 million in February 1997 to enable the expansion of, and improvements to, the ERS in the coming few years.

               To improve the effectiveness of the ERS in meeting the requirements of employers and the retraining needs of the local workforce, this Bureau completed a comprehensive review of the ERS in December last year and announced the results in June 1997. The main thrust of the proposals is that the ERS should primarily focus on providing retraining for the unemployed with no more than lower secondary education and aged 30 or above; it should provide retraining for the employed who need to receive basic skills training to sustain them in employment; and its ambit be extended to cover new immigrants. The ERB is now implementing the results of the review by phases.


      Key Indicators

      Vocational Training Council

      Establishments to be inspected 44 481
      Inspections of establishments employing registered apprentices 43 656
      Inspections per inspector 1 395

      Employees Retraining

               In 1996-97,


      New Commitments

      Vocational Training Council

      1. We will draw up a timetable, together with the VTC, for the phased implementation of the agreed recommendations arising from the strategic and organisational review of the VTC to ensure that VTC will become more flexible and responsive to the changing demands of the labour market. Thereafter, we will:

        1. strengthen vocational education and training as an attractive alternative route to traditional secondary and higher education;

        2. introduce a quality assurance system into the VTC;

        3. strengthen the VTC Council and senior management;

        4. identify a new methodology so that improved labour market analysis can be carried out;

        5. identify, in the light of the resource review, those disciplines which are in least demand by students and/or employers, and those which are in great demand, and redeploy resources where appropriate;

        6. modernise the training equipment in the training centres;

        7. improve teaching equipment in the technical institutes to satisfy the most up-to-date course requirements;

        8. enhance the VTC's existing information technology infrastructure.

      Employees Retraining

      1. We will work closely with ERB to ensure the smooth implementation of the recommendations arising from the review so that they can achieve their intended objectives. In particular we will:

        1. focus ERS on providing training for the unemployed aged 30 or above who have received no more than lower secondary education and on the employed who need basic skills to sustain their employability;

        2. re-structure the retraining programme into specially designed and structured packages of job-oriented intensive courses, aimed at helping retrainees secure jobs;

        3. evaluate the number and composition of the training bodies with a view to assessing their performance and quality and improving their effectiveness; and

        4. introduce a placement-tied, performance-based payment system for the training bodies.



        5. G. Construction Industry Training


          Aims

                   The Construction Industry Training Authority (CITA), through its three training centres and one management training and trade-testing centre, provides full-time and part-time courses for craftsmen, operatives and supervisors in the construction field. Apart from meeting the manpower training needs of the construction industry, the Authority also carries out trade testing, with the aim of upgrading the quality of various aspects of construction work, as well as carrying out certificate tests for operators of builders' lifts, construction plants and temporary suspended working platforms, with the aim of improving construction site safety.


          Overview

                   The CITA has considerably expanded its training provision over the past few years. It provides almost 20 000 training places for the 1996-97 training year (ending August). These include 1 620 full-time training places for Secondary? graduates on its Basic Craft training courses, 420 places for Form? graduates on its Construction Supervision/Technician courses, and 2?49 places for the training or retraining of adults who wish to acquire construction knowledge and skills so that they can join the construction industry. The Authority is also providing a total of 6 300 places on safety training for in-service workers, and 9 247 places for part-time courses for in-service construction personnel who wish to upgrade their skills or knowledge. CITA has the resources to carry out 2 500 to 3 000 trade tests for construction workers each year. In the 1997-98 training year, training capacity would be further expanded to meet industry demands.


          Key Indicators

          • A total of 2 812 new workers/supervisors was trained in the 1996-97 training year. About 3 400 will be trained in the 1997-98 training year.

          • A total of 17 283 in-service construction personnel of various levels completed continuing education and training in the 1996-97 training year. A similar number will be trained in the 1997-98 training year.

          • About 10 000 workers underwent the "green-card"" safety training in the 1996-97 training year. An estimated 40 000 workers will undergo safety training in the 1997-98 training year.


          New Commitments

          1. CITA will maximise its capacity to provide trained manpower to meet the needs of the construction industry arising from the expanded housing programme over the next decade. It will increase its training/retraining capacity for adult workers by 484 annually to help meet the labour shortages in such trades as bar-bending, formwork carpentry, plastering and bricklaying.

          2. CITA will closely monitor the training needs of the industry and respond positively by increasing its flexibility to train more workers, and by collaborating with the Government, the VTC, the ERB and other tertiary/educational institutions.

          3. CITA will enhance its promotion efforts to attract more new arrivals to take up construction training courses.

          4. CITA will provide better retraining opportunities for adults displaced from other industries to facilitate their joining the construction industry.

          5. CITA will seek to improve the retention rate of its graduates within the construction industry.



          6. H. Employment Servicesent


            Aims

                     The Bureau's aims are:

            • to help job-seekers find jobs;

            • to help employers find suitable workers;

            • to ensure that the employment opportunities for local workers are not affected by illegal employment and abuse of the labour importation schemes; and

            • to eliminate any age discrimination in employment.

                     We seek to achieve these aims through a wide range of free employment services as well as enforcement and promotional efforts. These employment services also help Hong Kong residents to exercise their freedom of choice of occupation as provided under Article 33 of the Basic Law.


            Overview

                     The Labour Department provides:

            • a comprehensive range of free employment assistance and counselling services to all job-seekers, including new arrivals through the nine Local Employment Service (LES) offices of the Department. During the first six months of 1997, 58?15 vacancies were registered and 12?51 people were placed.

            • the Selective Placement Service to help people with a disability find open employment. During the first half of 1997, 1?86 sought assistance and 735 persons were placed; and

            • the Special Placement Team to help local workers who wish to seek employment in the New Airport and related projects. In the first six months of 1997, 490 people sought assistance and 97 were placed.

                     The Department is also providing the following employment services specifically for the unemployed of all ages and those who have lost their jobs:

            • The Job Matching Programme

              This comprises personalised in-depth interviews, counselling and job matching, and, where appropriate, arrangements for tailor-made retraining programme by the ERB. In the first half of 1997, 3?87 job-seekers were registered and 2?09 were placed in jobs.

            • The Outreaching Placement Service (OPS)

            • On-the-spot briefings and registration for employment services are provided for workers affected by major retrenchments. For the first six months of 1997, the service reached out to 3?75 retrenched workers in 31 companies. Among the 326 retrenched workers who sought employment assistance from the Labour Department, 136 found new jobs.

                     To ensure that the employment opportunities of local workers will not be adversely affected by abuse of the labour importation schemes, we follow two cardinal policy principles:

            • Local workers must be given priority in filling job vacancies available in the job market, and

            • Only employers who are genuinely unable to recruit local workers to fill their job vacancies are allowed to bring in imported workers for such vacancies.

                     We are now running two labour importation schemes-- the Supplementary Labour Scheme and the Special Labour Importation Scheme for the New Airport and Related Projects ?on the basis of the above principles. A series of measures are in place to protect the employment interests of local workers. They include a mandatory local recruitment period, and a prohibition on imported workers from changing employment. Both the Job Matching Centre of the Labour Department and the Special Placement Service for vacancies of the New Airport and Related Projects were set up primarily for the purpose of ensuring that employers who wish to import workers give priority to employment of local workers. We are now reviewing the Supplementary Labour Scheme.

                     We have continued to clamp down on illegal employment. During the first half of 1997, we made 1?87 arrests and 1?69 prosecutions.

                     As regards age discrimination in employment, the Government supports equal opportunities in employment and is combating the problem of age discrimination in employment through a sustained programme of public education, publicity and self-regulation.


            Key Indicators

                     In 1996-97, we achieved the following performance results:

            • Placed 26 847 able-bodied job-seekers into employment out of 117?14 people registered;

            • Placed 1 453 disabled job-seekers into employment out of 3 358 people registered;

            • Organised careers guidance activities for 395 409 young people; and

            • Processed 1 896 applications for labour importation.

                     We earmarked annual funding of $2 million for the sustained programme of education, publicity and self-regulation on age discrimination in employment.


            New Commitments

            Review of importation of labour

            1. We are reviewing the Supplementary Labour Scheme to see whether it has met its intended objectives.

            Labour Supply for Construction Industry

            1. We are undertaking a special exercise for the construction industry to meet the expected demand for labour arising from our plans to boost housing supply and our infrastructure over the next decade. To this end:

              1. A study on the manpower needs in the various construction trades will be completed in 1997.

              2. A working group, led by this Bureau and comprising representatives from the relevant training bodies, trade, contractors' and developers' associations, as well as trade unions and Government bureaux and departments, is planning for the expansion of training and retraining programmes for the construction industry. In the light of the Working Group's deliberations, we will consider taking specific measures, including labour importation, to ensure an adequate supply of labour for this industry over the next decade.

            Labour Supply for Textiles and Clothing Industry

            1. We have also set up a working group comprising representatives of the relevant training bodies, trade associations, labour unions and Government departments to identify how best to meet the manpower shortage of the textiles and clothing industry. The Working Group's immediate task is to identify how best to increase the local labour supply to the industry through training and retraining. Given that many of the manufacturing processes of the industry have to be done in Hong Kong, we need to ensure an adequate supply of labour.

            Computerisation of the LES

            1. The Labour Department has embarked on the computerisation of the LES to improve employment services to job-seekers. Upon the completion of the computerisation project by early 1998, the performance of the LES will be much enhanced through faster retrieval of vacancy and job-seekers information, more effective job matching and more comprehensive data analysis.

            Employment Services for New Arrivals

            1. An employment and guidance centre for new arrivals was set up in Shaukeiwan in September 1997. The centre provides a comprehensive range of employment services and guidance tailor-made for new arrivals. These services include the provision of labour market information, employment counselling, briefings on practices and conditions of work in Hong Kong, careers guidance, intensive job matching and job referrals. The aim of these services is to help new arrivals be better informed and prepared when entering the labour market.

            2. We also plan to set up one more employment and guidance centre in 1998-99 to further improve our employment services for the new arrivals.



            3. I. Labour Relations


              Aim

                       The Bureau's aim is to foster and maintain Hong Kong's harmonious labour relations by:

              • providing conciliation service to assist employers and employees to settle labour disputes and employment claims;

              • promoting public understanding of labour laws and encouraging good labour-management communication and personnel management practices;

              • adjudicating minor employment claims promptly and effectively; and

              • registering and regulating trade unions to bring about sound trade union administration and responsible trade unionism.


              Overview

                       In general, Hong Kong has had a good record of harmonious labour relations.

                       In the last three years, the average number of working days lost each year due to work stoppage per 1 000 wage earners and salaried employees remained at a low level of 0.5, which was amongst the lowest in the world. The system of voluntary negotiation between employers and employees, underpinned by effective conciliation and adjudication service to resolve labour disputes, has contributed to this industrial harmony.

                       In June 1997, we gave effect to the results of the review of the labour relations system which included the improvements to the conciliation procedure, introduction of a mediation procedure and extension of immunity to individual employers, employees, officials and members of trade unions from civil suits in respect of certain specified acts relating to trade disputes.

                       In June 1997, we expanded the jurisdiction of the Minor Employment Claims Adjudication Board (MECAB) to cover any claims involving no more than ten persons and up to a claim amount of $8,000 per person. The Board provides an effective adjudication channel for the hearing and determination of minor employment claims in a speedy, informal and inexpensive manner.


              Key Indicators

                       In 1996-97,

              • We handled 22?03 labour disputes and claims, 65.7麖erent of which were resolved amicably;

              • We organised 925 promotional activities including trade union educational courses; and

              • A total of 1?07 claims were adjudicated by the MECAB.


              New Commitments

              1. We will strengthen promotion of good communication between employers and employees, as well as direct and voluntary consultation at the enterprise level on employment issues.

              2. We will conduct a review of employment conditions of live-in domestic helpers in Hong Kong with a view to assessing whether special arrangements should be provided to regulate their employment.

              3. We will review the provisions on sickness benefits and lay-off under the Employment Ordinance to see whether further improvements should be made.

              4. The Labour Department's conciliation service will be extended to deal with complaints related to age discrimination in the employment field.



              J. Employees' Rights and Benefits


              Aim

                       The Bureau aims to progressively improve employees' rights and benefits in a way which is commensurate with the pace of Hong Kong's economic and social developments and which strikes a reasonable balance between the interests of employers and employees.


              Overview

                       In improving employees' rights and benefits, the Government adheres firmly to the system of tripartism or tripartite co-operation amongst employers, employees and the Government, mainly through the role of the Labour Advisory Board (LAB). The LAB, which comprises Government as well as an equal number of representatives of employees and employers, has long been the most important consultative forum on labour matters. All legislative proposals on labour law are, as a general practice, put forward by the Government for consultation with the LAB before they go before the legislature.

                       It was largely through the successful operation of this tripartite consultative mechanism that significant improvements to employees' welfare and benefits through legislative changes had been made during the last few decades.


              Key Indicators

              • In the 21 months from the commencement of the 1995-96 legislative session in October 1995 up to end of June 1997, the Government introduced a total of 23 legislative items into the Legislative Council, to improve employees' rights and benefits. The major improvements achieved during the 1996-97 legislative session were:

                • increasing the rate of periodical payments for temporary incapacity arising from work-related injuries from two-thirds to four-fifths of an injured employee's normal earnings;

                • removing the three-day qualifying period for periodical payment for temporary incapacity arising from work-related injuries;

                • extending the application deadline from 1 July 1996 to 30獱une?997 for claimants under the Occupational Deafness Compensation Scheme who have left their noisy occupations within 72onths before the commencement of the Scheme;

                • improving the rate of sickness allowance;

                • improving maternity protection provisions;

                • improving the definition of wages, protection of wage payment, end-of-year payment provisions and long service payment for employees younger than 45 (removal of reduction percentage); and

                • protecting employees from unreasonable termination of employment and variation of employment contracts.

              • In 1996-97, the highly popular General Enquiry Telephone Service handled a total of 1?44?27 enquiries on various labour topics.

              • In 1996-97, a total of 168?98 inspections was made by labour inspectors to safeguard employees' rights under the law.


              New Commitments

              1. We will improve benefits payable under the Pneumoconiosis Ex-Gratia Scheme to pneumoconiotics assessed before 1981.

              2. We will complete the review on the working hours of our workforce with a view to determining whether new regulations on this aspect should be introduced.

              3. We will amend the Occupational Deafness (Compensation) Ordinance to implement the recommendations arising from the comprehensive review of the Occupational Deafness Compensation Scheme so as to provide better protection for employees suffering from occupational deafness.



              4. K. Occupational Safety And Health


                Aim

                         Our aim is to protect the safety and health of employees at work, and to safeguard others who may be exposed to safety and health hazards arising from work-related activities.


                Overview

                         The protection of employees' safety and health at work is provided in the Factories and Industrial Undertakings Ordinance, the Boilers and Pressure Vessels Ordinance and, since May 1997, the Occupational Safety and Health Ordinance which extends the protection, for the first time, to employees in the non-industrial sectors. We will help employers and employees control their risk at work by enforcing these legislation and promoting safety management through advice, training and publicity. We will target our efforts, in particular, at more accident-prone industrial undertakings, including construction sites.


                Key Indicators

                         In 1996, Hong Kong's performance in respect of work-related accidents in industrial undertakings and our action to improve our performance were as follows:

                Fatal accidents 66
                Non-fatal accidents 40 185
                Accident rate per 1?00 employees 53.43
                Inspections/investigations 78 368
                Warnings 18 263
                Improvement and suspension notices 690
                Prosecutions 2 808

                New Commitments

                1. We will continue to enhance the safety and health standards at work through the introduction of new and amendment legislation, including:

                  1. mandatory safety training for those working in the construction and container handling industries;

                  2. the implementation of a safety management system in selected industrial undertakings;

                  3. better protection for those working in confined spaces and at heights; and

                  4. medical examinations for those required to handle hazardous substances and agents at work.


                Back to INTRODUCTION


                Into the 21st Century


                Quality Education

                         We are firmly committed to providing quality education that develops in our young people an inquisitive mind, communication skills and the skills for mastering new information, so that they can face the challenges of the future with confidence and fortitude. In the 21st Century, our young people will be well-educated, proud of their Chinese heritage and global in outlook.

                         The challenge for us in the next century will be to substantially enhance the quality of our school education to facilitate an all-round development of our young people. We will strive to achieve this by developing an effective quality assurance mechanism that emphasises the accountability of school management; enhancing the professionalism of our teaching force; implementing a long-term information technology education strategy, and working towards the target of whole-day schooling for all primary pupils. In the longer run, we will examine the structure of primary and secondary education, addressing the age at which students should begin the different stages from kindergarten to tertiary education, the optimal length of various stages of education and maintain an effective interface between them, in order to ensure that the education system as a whole meets the changing needs of our community.


                A Competitive Workforce

                         The industrious and enterprising workforce in Hong Kong has been the most indispensable asset in Hong Kong's economic success story through the last century. The 21st Century will see the exponential development of information technology, and rapid shifts in competitive forces in the global market. These call for increasingly new skills and expertise for our labour force to cope flexibly with the dynamic demands of the labour market and the economy both locally and internationally.

                         We will seek to ensure the continued provision of a well-trained, and motivated workforce equipped to meet the challenges of the 21st Century. To this end, the challenge of the Bureau lies mainly in maintaining the right mix and balance amongst the various labour-related issues:

                • to provide a cost-effective, market-responsive and quality-assured system of vocational training and retraining;

                • to maintain generally harmonious and peaceful labour relations conducive to economic growth and overseas investments;

                • to minimise the mismatch between job vacancies and job-seekers;

                • to progressively improve employees' rights and benefits; and

                • to improve workers' health and safety.

                         The occupational safety and health records of Hong Kong do not measure up to our status as a sophisticated and well-developed economy. Our challenge is to put in place a culture of occupational safety and health awareness amongst our employers and employees with a view to improving accident prevention and risk management in the workplace.

                         Steps will be taken to implement the agreed recommendations arising from the strategic and organisational review of the Vocational Training Council so that it will be better able to achieve its mission of providing a well-trained workforce that can meet the evolving needs of the economy as we move towards the 21st Century. Training facilities will be modernised, and training opportunities expanded. In particular, we shall concentrate on meeting the manpower needs of the construction industry. Apprenticeship training will be enhanced, and a wider range of skills upgrading courses will be offered to in-service workers in industry and commerce.


                Manpower Planning

                         In the study "Manpower 2001 Revisited" we provided statistical projections of manpower supply and requirements by educational level in 1996 and 2001, with 1991 as the base year. The aim was to assess whether, under the existing and planned education provisions, the mix of manpower supply in terms of educational levels would be broadly in line with the future needs of the economy. We are now updating the report with input from the 1996 Population By-census and new projections of graduates by level of education prepared by the Education Department, the University Grants Committee, the Vocational Training Council and other education-related agencies. The updated report will provide statistical projections of manpower supply and requirements by educational level for 2001 and 2006, using 1996 as the base year.


                Asia-Pacific Economic Co-operation

                         On the regional economic co-operation front, the Education and Manpower Bureau participates in the Asia-Pacific Economic Co-operation (APEC) Human Resource Development (HRD) Working Group. The HRD Working Group is guided by the overall framework of the HRD Action Programme endorsed by APEC Leaders and Ministers as part of the Osaka Action Agenda. The HRD Working Group focuses on eight medium term strategic priorities, which include:

                • Improving labour market information and analysis to support flexible and efficient labour markets which contribute to trade and economic growth in the region.

                • Increasing the quality of curricula, teaching methods, and instructional materials in education, training and skills development at all levels, with a particular focus on preparing for the transition to the 21st Century.

                • Facilitating mobility of qualified persons to help meet skills shortages by developing means for mutual recognition of skills and qualifications, and to increase opportunities for people to gain the skills required for the economic growth and development of member economies and the region as a whole.


                Back to INTRODUCTION


                Annex: Relevant Articles of the Basic Law


                Chapter III: Fundamental Rights and Duties of the Residents

                Article 27

                         Hong Kong residents shall have freedom of speech, of the press and of publication; freedom of association, of assembly, of procession and of demonstration; and the right and freedom to form and join trade unions, and to strike.

                Article 33

                         Hong Kong residents shall have freedom of choice of occupation.

                Article 34

                         Hong Kong residents shall have freedom to engage in academic research, literary and artistic creation, and other cultural activities.

                Article 36

                         Hong Kong residents shall have the right to social welfare in accordance with law. The welfare benefits and retirement security of the labour force shall be protected by law.

                Article 39

                         The provisions of the International Covenant on Civil and Political Rights, the International Covenant on Economic, Social and Cultural Rights, and international labour conventions as applied to Hong Kong shall remain in force and shall be implemented through the laws of the Hong Kong Special Administrative Region.

                         The rights and freedoms enjoyed by Hong Kong residents shall not be restricted unless as prescribed by law. Such restrictions shall not contravene the provisions of the preceding paragraph of this Article.


                Chapter VI: Education, Science, Culture, Sports, Religion, Labour and Social Services

                Article 136

                         On the basis of the previous educational system, the Government of the Hong Kong Special Administrative Region shall, on its own, formulate policies on the development and improvement of education, including policies regarding the educational system and its administration, the language of instruction, the allocation of funds, the examination system, the system of academic awards and the recognition of educational qualifications.

                         Community organizations and individuals may, in accordance with law, run educational undertakings of various kinds in the Hong Kong Special Administrative Region.

                Article 137

                         Educational institutions of all kinds may retain their autonomy and enjoy academic freedom. They may continue to recruit staff and use teaching materials from outside the Hong Kong Special Administrative Region. Schools run by religious organizations may continue to provide religious education, including courses in religion.

                         Students shall enjoy freedom of choice of educational institutions and freedom to pursue their education outside the Hong Kong Special Administrative Region.

                Article 144

                         The Government of the Hong Kong Special Administrative Region shall maintain the policy previously practised in Hong Kong in respect of subventions for non-governmental organizations in fields such as education, medicine and health, culture, art, recreation, sports, social welfare and social work. Staff members previously serving in subvented organizations in Hong Kong may remain in their employment in accordance with the previous system.

                Article 147

                         The Hong Kong Special Administrative Region shall on its own formulate laws and policies relating to labour.


                Note

                         In addition, all Bureaux/Departments as well as Department of Justice, Office of the Judiciary Administrator, Independent Commission Against Corruption and the Administration Wing of the Chief Secretary for Administration's Office have joint responsibility for the implementation of the following articles:

                Articles 11 (first paragraph), 16, 56 (second paragraph), 62(1) and (2), 64, 142, 148, 149, 150, 151, 152 and 153.


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                Policy Programme