【公務員守則】更新《公務員守則》諮詢稿 - 引言 (Introduction - Updating the Civil Service Code [Draft Consultation]) ...... !

​I . 引言

香港回歸祖國以來， 在“ 一國兩制” 這史無前例的偉大創舉下， 香港克服種種挑戰， 穩步前行， 包括普通法在內的原有法律得到保持和發展， 各項社會事業全面進步。中央充分肯定“ 一國兩制”對維持香港繁榮穩定、國家建設和中華民族偉大復興的貢獻， 並符合國家、民族及香港的根本利益， 必須長期堅持。

2 . 香港特別行政區政府（ 香港特區政府） 必須全面準確貫徹“ 一國兩制” 方針； 堅持中央全面管治權和保障特區高度自治權相統一； 落實“ 愛國者治港” 以及保持香港的獨特地位和優勢。香港特區政府並須著力提高治理水平； 不斷增強發展動能； 切實排解民生憂難；和共同維護和諧穩定。

3. 今天， 國家已全面建成小康社會， 下一個目標1是在建國一百年（ 二零四九年） 時建成富強、民主、文明、和諧、美麗的社會主義現代化強國。這是所有中國人的共同目標。作為國家一個特別行政區， 香港擔當重要的角色， 須確保在“ 一國” 之下發揮好“ 兩制” 的優勢， 以維持香港繁榮穩定， 並配合國家所需， 發展香港所長。

4 . 中央在二零二零年作出《全國人民代表大會關於建立健全香港特別行政區維護國家安全的法律制度和執行機制的決定》和制訂《中華人民共和國香港特別行政區維護國家安全法》( 《香港國安法》) ， 建立在香港特別行政區( 香港特區) 維護國家安全的制度規範，並於二零二一年作出《全國人民代表大會關於完善香港特別行政區選舉制度的決定》和修改《基本法》附件一及附件二， 完善香港特區選舉制度， 全面落實“愛國者治港” ， 確保“一國兩制” 行穩致遠。自此香港開展管治新局面。

公務員管理

5 . 《基本法》第四十八（ 七） 條訂明， “ 香港特別行政區行政長官可依照法定程序任免公職人員” 。這是所有公職人員的任免的法理依據。公務員必須向以行政長官為首的香港特區政府負責。

6 . 公務員團隊是香港特區政府的骨幹， 向行政長官負責， 並協助行政長官制訂、推廣和執行政府政策； 處理各項行政事務； 向市民提供服務； 以及履行執法和規管職能。

7 . 香港特區政府有一套完整的公務員管理體系。公務員事務局局長就公務員隊伍的政策和管理事宜， 向行政長官負責。公務員事務局局長的主要工作之一， 是維護公務員隊伍的基本信念和訂明公務員隊伍的操守準則， 並為履行這項職責訂定《公務員守則》（ 《守則》） 。為配合提升管治能力， 香港特區政府有必要更新二零零九年訂立的《守則》。

8 . 《守則》是重要綱領。公務員在各範疇的日常管理透過公務人員（ 管理） 命令， 《公務員事務規例》及公務員事務局通告和通函執行。與公務員品行和誠信有關的《公務員事務規例》、公務員事務局通告和通函， 列於附件。個別主要官員2、部門和辦事處首長如認為合適或有需要， 亦可按其決策局／ 部門的獨特運作需要， 擬訂與《守則》相符的詳細指引。公務員同時必須遵守各政策局/ 部門發出的各種業務運作規則及指引， 包括財務、安全、環保、採購及投訴處理等。

9 . 香港特區政府及公眾對公務員的操守和紀律期望甚高， 會向各級公務員提供適當的培訓及指導， 以符合《守則》的要求。根據《公務員事務規例》第4 10 (1 )條， 如果公務員違反政府規例或政府其他口頭或書面的指令， 或因其行為而使政府聲名受損， 政府可按事件的嚴重程度， 把該員革職或處以較輕的懲罰。公務員違反《守則》會影響其表現評核及晉升機會， 更甚或可能會招致紀律處分。

《公務員守則》

10. 《守則》涵蓋的主要範疇包括：

( i ) “一國兩制” (第I I 節)；
( i i ) 公務員宣誓和作出聲明的要求(第I I I 節)；
( i i i ) 公務員的基本信念和操守準則(第IV 節)；
( i v) 公務員隊伍和政治委任制度(第V 節)；
( v ) 公務員敍用委員會的獨立角色(第VI 節)； 以及
( v i ) 結語(第VI I 節) 。

​I. INTRODUCTION

Since Hong Kong’s return to the motherland, with the unprecedented innovation of the “One Country, Two Systems” principle, Hong Kong has overcome various challenges and moved forward steadily. Its previous laws including the practice of the common law have been maintained and developed, and its social programmes have made all-round progress. The Central Authorities fully recognise the contributions made by “One Country, Two Systems” to the sustained prosperity and stability of Hong Kong, the development of the country and the rejuvenation of the Chinese nation. As “One Country, Two Systems” serves the fundamental interests of not only Hong Kong but also the whole country and the nation, we must adhere to it in the long run.

2. The Government of the Hong Kong Special Administrative Region (HKSAR) must fully and faithfully implement the principle of “One Country, Two Systems”; uphold the compatibility of the Central Authorities’ overall jurisdiction and the HKSAR’s high degree of autonomy; ensure that Hong Kong is administered by patriots; and maintain Hong Kong’s distinctive status and advantages. The HKSAR Government should further improve its governance; continue to create strong impetus for growth; earnestly address people’s concerns and difficulties in daily life; and work together with the people of Hong Kong to maintain harmony and stability.

3. China has become a moderately prosperous society in all respects and is working towards the next goal1 of building a great modern socialist country that is prosperous, strong, democratic, culturally advanced, harmonious and beautiful when the People’s Republic of China (PRC) celebrates its centenary (in 2049).

This is a common goal of all Chinese people. Hong Kong, as a special administrative region of the country, plays an important role in this process. It must capitalise on the advantages of “Two Systems” under “One Country” to maintain its prosperity and stability, and leverage its strengths to meet the country’s needs.

4. In 2020, the Central Authorities established the legal system to safeguard national security in the HKSAR through passage of the Decision of the National People’s Congress on Establishing and Improving the Legal System and Enforcement Mechanisms for the Hong Kong Special Administrative Region to Safeguard National Security and the enactment of the Law of the People’s Republic of China on Safeguarding National Security in the Hong Kong Special Administrative Region (the National Security Law) . In 2021, the passage of the Decision of the National People’s Congress on Improving the Electoral System of the Hong Kong Special Administrative Region, and the amendment of Annex I and Annex II to the Basic Law of the Hong Kong Special Administrative Region of the People’s Republic of China (the Basic Law) improved the electoral system of the HKSAR, thereby fully implementing the principle that Hong Kong should be administered by patriots and ensuring the steadfast and successful implementation of “One Country, Two Systems”. Hong Kong has since entered a new era in its governance.

Management of the Civil Service

5. Article 48(7) of the Basic Law empowers the Chief Executive (CE) of the HKSAR to appoint or remove holders of public office in accordance with legal procedures. This is the legal basis for the appointment or removal of all holders of public office. Civil servants must be responsible to the HKSAR Government headed by the CE.

6. The Civil Service is the backbone of the HKSAR Government. It is responsible to the CE, and supports the CE in formulating, promoting and implementing policies; conducting administrative affairs; delivering public services; and discharging law enforcement and regulatory functions.

7. The HKSAR Government has a comprehensive system for the management of the Civil Service. The Secretary for the Civil Service is responsible to the CE for civil service policies and the management of the Civil Service. One of the Secretary’s major duties is to safeguard the core values and stipulate the standards of conduct of the Civil Service, and, for this purpose, draw up the Civil Service Code (the Code). It is necessary for the HKSAR Government to update the Code promulgated in 2009 with a view to enhancing governance capability.

8. The Code is a high-level statement. The day-to-day management of the Civil Service in various aspects is effected through the Public Service (Administration) Order, Civil Service Regulations (CSRs), and Civil Service Bureau (CSB) circulars and circular memoranda. Attached at Annex is a list of CSRs and CSB circulars and circular memoranda relating to the conduct and integrity of civil servants. Individual Principal Officials (POs)2 and heads of department/agency may issue their own detailed guidelines in conformity with the Code to suit the particular operational needs of their respective bureaux/departments/agencies if considered necessary or appropriate. Apart from the Code, civil servants must abide by operational rules and guidelines issued by bureaux/departments, including those on finance, security, environmental protection, procurement and complaint handling.

9. The HKSAR Government and the general public have high expectations on the conduct and discipline of the Civil Service. Civil servants at all levels are provided with appropriate training and guidance to help them comply with the Code. In accordance with CSR 410(1), an officer who commits any breach of Government Regulations or any other official instructions, whether oral or written, or who by his/her actions brings the Government into disrepute is liable to dismissal or lesser punishments depending upon the gravity of the case. Violation of the Code will have an impact on the assessment of a civil servant’s performance and promotion prospect and may even lead to disciplinary action.

Civil Service Code

10. The Code covers the following major areas –

(i) One Country, Two Systems (section II);
(ii) Oath-taking and Declaration Requirement by Civil Servants (section III);
(iii) Civil Servants’ Core Values and Standards of Conduct (section IV);
(iv) Civil Service and the Political Appointment System (section V);
(v) Independent Role of the Public Service Commission (section VI); and
(vi) Conclusion (section VII).