In a significant address at the Symposium on Upholding the Executive-led System to Promote Good Governance in the Special Administrative Regions (SARs) on January 26, Xia Baolong, Director of the Hong Kong and Macao Work Office of the Communist Party of China Central Committee and the Hong Kong and Macao Affairs Office of the State Council, emphasized the essential role of the executive-led model in enhancing governance effectiveness.
The following is the full text of the speech:
Uphold and Improve the Executive-led System to
Continuously Enhance Governance Effectiveness in the SARs
—Address at the Symposium on Upholding the Executive-led System to Promote Good Governance in the SARs
(January 26, 2026)
Xia Baolong
John Lee Ka-chiu, Chief Executive of the Hong Kong Special Administrative Region (HKSAR),
Sam Hou Fai, Chief Executive of the Macao Special Administrative Region (MSAR),
Legislative Council members, dear guests, friends,
Good morning. I'm glad to be here for the Symposium on Upholding Executive-led Governance in the Special Administrative Regions hosted by the Chinese Association of Hong Kong & Macao Studies. Ding Xuexiang, Member of the Standing Committee of the Political Bureau of the CPC Central Committee and Vice Premier of the State Council of the People's Republic of China, attaches great importance to the work of the Chinese Association of Hong Kong & Macao Studies. He issued specific instructions to fully recognize the achievements that the Association had made and to put forward earnest expectations for further advancing Hong Kong and Macao studies. We should work conscientiously to implement this directive.
In December 2025, when hearing reports from the chief executives of the Hong Kong and Macao SARs on the current situation of the SARs and the work of the SAR governments, General Secretary Xi Jinping gave full recognition for the work of the chief executives and the SAR governments, and highlighted the need to resolutely implement the One Country, Two Systems policy, under which the people of Hong Kong administer Hong Kong and the people of Macao administer Macao, both with a high degree of autonomy. He also said that the SARs should align actively with the 15th Five-Year Plan to better integrate into and contribute to the country's overall development. He required the governments of both the Hong Kong and Macao SARs to uphold and improve the executive-led system. Through these important remarks, General Secretary Xi Jinping reiterated from an overall and strategic perspective the principled position of the CPC Central Committee on resolutely implementing the policy of One Country, Two Systems. These remarks reflect deep concern for compatriots in Hong Kong and Macao, firm support for the development of the two regions, and earnest expectations for good governance in the SARs. These remarks have pointed the way ahead for the SARs in terms of strengthening the executive-led system, enhancing governance effectiveness, and promoting high-quality development, and it carries strong practical relevance as well as far-reaching historical significance.
This symposium, hosted by the Chinese Association of Hong Kong & Macao Studies for thorough understanding and implementation of the spirit of General Secretary Xi Jinping's important remarks, is held at a very good time and is highly necessary. Here, I would like to share with you the following opinions.
I. The executive-led system, which is a key principle governing the design of the SAR political system as enshrined in the Basic Laws of the SARs, finds its root in the Constitution of the People's Republic of China and is a key institutional safeguard for the full and faithful implementation of the One Country, Two Systems policy.
The Basic Laws of the Hong Kong and Macao SARs were developed in accordance with the Constitution of the People's Republic of China, and the executive-led system is a prominent feature of the political system designed under the Basic Laws for the SARs. This design fully reflects the Chinese characteristics and the characteristics of the capitalist systems of Hong Kong and Macao. It is consistent with the One Country, Two Systems policy, accords with the legal status of the SARs, and is grounded in a solid political and legal foundation as well as a realistic foundation.
First, implementing the executive-led system is an inherent requirement for upholding the constitutional order of the SARs. The Constitution is the fundamental law of the state, possessing the highest legal authority and legal effect throughout the country, including in the Hong Kong and Macao SARs, and it constitutes the legal basis for the SAR system. The Basic Laws were developed in accordance with the Constitution, and together the Constitution and the Basic Laws establish the constitutional order of the SARs. Based on the legal status and practical circumstances of the SARs, the Basic Laws establish an executive-led political system, and the most important aspect of this system is that the chief executive occupies a leading position in the structure and operation of SAR government. The Basic Laws clearly provide that the chief executive is the head of the SAR government and the top leader of the SAR, responsible to both the SAR and the Central People's Government. The executive-led system reflects the fundamental requirement that the chief executive represent the entire SAR in assuming responsibility to the central government, helps maintain an appropriate relationship between the central authorities and the SAR, and safeguards the constitutional order of the SAR. When the Basic Laws were drafted, the provisions establishing a political system based on the executive-led principle were adopted by more than two-thirds of the members of the Drafting Committees, and both Basic Laws were adopted by overwhelming votes at the National People's Congress. This represented the common will of the people of the whole country, including people of Hong Kong and Macao, and that will is unshakeable.
Second, implementing an executive-led system is an inherent requirement for ensuring that Hong Kong people administer Hong Kong and Macao people administer Macao, both with a high degree of autonomy. A major point in the implementation of the One Country, Two Systems policy is to ensure that our compatriots in Hong Kong and Macao truly become masters of their own affairs and to resolve the question of who administers Hong Kong and who administers Macao. In the design of the executive-led political system, the chief executives and the governments of the SARs occupy a leading position, represent the fundamental interests of Hong Kong and Macao, and serve the overall interests of Hong Kong and Macao people. This is the best organizational structure to ensure that Hong Kong people administer Hong Kong and Macao people administer Macao, both with a high degree of autonomy. The central authorities have repeatedly stressed the comprehensive implementation of the principle that Hong Kong and Macao are administered by patriots and have made it clear that the chief executives and the governments of the Hong Kong and Macao SARs in the driver's seat are the first to be held accountable for the governance of the regions. This gives full play to the leading role of the chief executives and the SAR governments and enables the SARs to better exercise their high degree of autonomy; and moreover, it facilitates the implementation of the central government's overall jurisdiction over the SARs through their chief executives and governments, thus upholding the central government's overall jurisdiction while securing the SARs' high degree of autonomy.
Third, implementing an executive-led system is an inherent requirement based on the realities of Hong Kong and Macao and for achieving effective governance of the SARs. The executive-led political system adopted in the Hong Kong and Macao SARs fully takes into account the past and current conditions of the SARs and is in line with what is necessary to ensure security, sound governance, and development of the regions after their return to the motherland. As is known to all, Hong Kong and Macao are international metropolises with complex social environments shaped by history and various other factors. In these SARs, multiple interests and conflicts intersect, and much needs to be done in the reform and development. An executive-led system, by fully leveraging the leading role of the chief executives and the SAR governments, is conducive to enhancing the functionality and efficiency of state organs, pooling forces from all sectors, flexibly responding to risks and challenges, and maintaining prosperity and stability in Hong Kong and Macao. The central authorities have repeatedly emphasized the need to "advance law-based governance and shoulder responsibilities" and to enable "a capable government to serve an efficient market;" one important aspect of this is to strengthen executive-led governance and focus on improving the governance effectiveness of the SARs, so that Hong Kong and Macao can remain competitive and secure in an increasingly intense international environment.
II. The successful practice of the executive-led system in both SARs has demonstrated its vitality and strengths
The One Country, Two Systems policy is an unprecedented initiative. The executive-led governance implemented in the SARs is a political system that conforms to the principle of One Country, Two Systems, and its advantages have been continuously demonstrated in practice. Since the return of Hong Kong and Macao to the motherland, with the full support of the central government, the chief executives have led the SAR governments in implementing executive-led governance, united all sectors of society in hard work, and maintained the long-term prosperity and stability of Hong Kong and Macao. The One Country, Two Systems policy has thus achieved widely recognized success in practice.
—Since the return of Hong Kong and Macao to the motherland, practice has shown that the executive-led system has its advantages in strengthening overall coordination and ensuring strong execution, and it has played an important role in effectively safeguarding the country's sovereignty, security, and development interests. Under the principle of executive-led governance as enshrined in the Basic Laws, the chief executives, together with the executive, legislative, and judicial organs of the SAR governments, have earnestly fulfilled the constitutional responsibility of safeguarding national security, established and improved the legal system and enforcement mechanisms for this purpose, and combated in a law-based manner individuals engaged in anti-China activities aimed at disrupting Hong Kong's and Macao's social order. They have resolutely opposed words and deeds that challenge the fundamental principle of One Country, Two Systems, and reinforced national security in the SARs. The MSAR took the lead in completing its legislation under Article 23 of the Basic Law, further improving the supporting laws for safeguarding national security. The HKSAR implemented its National Security Law fully and has historically enacted the Safeguarding National Security Ordinance. This put an end to Hong Kong's history of having no dedicated law and regulation to ensure national security and represent concrete actions to effectively defend the country's sovereignty, security, and development interests.
—Since the return of Hong Kong and Macao to the motherland, practice has shown that the executive-led system has its advantages in seizing opportunities and adapting flexibly to changes, effectively promoting the economic prosperity and development of the SARs. The chief executives and governments of the SARs have united and led all sectors of society in actively aligning with China's national development strategies, adapting to changing circumstances, consolidating and enhancing strengths, and advancing high-quality economic development. Hong Kong's status as an international financial, shipping, and trade center has remained solid. It has repeatedly been rated as one of the "most economically free jurisdictions," and its real GDP has grown at an average of about 3 percent annually, higher than the average of developed economies worldwide. In 2025, Hong Kong ranked first globally by IPO fundraising volume, and the number of companies with parent companies overseas or on the Chinese mainland and with offices in Hong Kong reached a record high of 11,070. Macao has achieved leapfrog economic development, with its GDP growing by eight times compared with that before its return to the motherland, and its per capita GDP ranking among the highest in the world. The gaming industry has entered a track of lawful, healthy, and orderly development. Efforts to develop the region into a world center of tourism and leisure have yielded significant results, and steady progress has been made in building a moderately diversified economy. Macao has been named "Best Convention Destination (Asia)" for three consecutive years.
—Since the return of Hong Kong and Macao to the motherland, practice has shown that the executive-led system has its advantages in pooling resources for major tasks and balancing the interests of various quarters, effectively improving social welfare and people's well-being. The chief executives and governments of the SARs have effectively pooled resources and balanced the interests of all sectors and groups of society to safeguard the overall interests and promote the common well-being of all residents. In the Hong Kong and Macao SARs, education has been developing rapidly, and social security and welfare service systems have been continuously strengthened, placing them among the world's most livable developed cities. Hong Kong is the only city with five universities among the world's top 100, according to international university rankings. In the World Talent Ranking 2025, Hong Kong ranked first in Asia and fourth globally. Hong Kong has also been ranked for ten consecutive years as the region with the longest life expectancy in the world. Macao is one of the safest cities in the world, and a series of policies such as free education and free healthcare benefit the entire society, constantly improving local people's well-being.
—Since the return of Hong Kong and Macao to the motherland, practice has shown that the executive-led system has the advantage of encouraging innovation while upholding basic principles and the advantage of maintaining policy stability, thus effectively contributing to the international competitiveness and influence of the SARs. The executive-led system has helped Hong Kong and Macao maintain their status as free ports, ensure the continuity of their highly open policies, and continuously expand their external engagement in keeping with the times, effectively bridging the mainland and the world. The chief executives and other government officials of the SARs have been active in paying visits and inviting guests from the outside, building economic and trade ties and enhancing cultural exchanges with countries along the Belt and Road and with Portuguese-speaking countries. Hong Kong has joined more than 100 international organizations and participated in and applied more than 260 international multilateral agreements, and it is the city with the largest number of foreign consulates. Macao has established stable economic and trade relations with more than 120 countries and regions, is a member of over 190 international organizations and institutions, and serves as an important platform in promoting economic and trade cooperation between China and Portuguese-speaking countries. Both of them now enjoy significantly more international recognition and a better global reputation.
—Since the return of Hong Kong and Macao to the motherland, practice has shown that an executive-led system has the advantages of rapid response and efficient operation, effectively addressing and resolving risks and challenges. Backed by the strong support of the motherland, the governments of the SARs have been giving full play to the executive-led system in responding effectively to various challenges and overcoming a wide array of difficulties. In the face of the Asian financial crisis, the global financial crisis, the severe acute respiratory syndrome (SARS) and COVID-19 pandemics, various natural disasters, and social unrest, the SAR governments have always been able to respond fast with decisive and effective actions. Thus, Hong Kong and Macao have continued to demonstrate resilience and vitality in their development.
III. The executive-led system should be upheld and improved under the One Country, Two Systems policy to continuously boost the governance efficacy of the special administrative regions.
Overall, the executive-led system has functioned smoothly and effectively under the policy of "One Country, Two Systems." It has played a crucial role in advancing Hong Kong to a new stage in which the region has restored order and is set to thrive, demonstrating the system's strong institutional resilience. At the same time, it must be recognized that the system has encountered setbacks in practice. Hong Kong once faced severe challenges in this regard, offering profound lessons. It is worth recalling that certain anti-China elements who attempted to create chaos in Hong Kong maliciously resorted to filibustering in the Legislative Council, paralyzing the House Committee for more than six months and causing a large backlog of livelihood-related bills and motions. They flaunted their betrayal of their motherland as political capital and even used slogans that oppose the nation, resist the central government, and demonize their own nation in election campaigns. During oath-taking ceremonies, they staged utterly disgraceful political theatrics, turning the Legislative Council into a platform for advocating "Hong Kong independence," endangering national security, and destabilizing the social order in Hong Kong. These elements colluded with external forces, deliberately misrepresenting the executive-led system established by the Basic Law under the guise of "separation of powers." They abused judicial review, draining legal resources and obstructing government administration, in an attempt to portray the independent exercise of adjudication as "judicial supremacy." All these actions are essentially aimed at undermining or altering the executive-led system, promoting the so-called "separation of powers" to undermine the authority of the chief executive and government of HKSAR, thereby damaging the central government's authority and even resisting or excluding the central power. This is absolutely impermissible. Heightened vigilance is required regarding the various attempts to oppose sabotage and interfere with the executive-led system. Any vague or mistaken understanding must be clarified at the root and rectified.
The practice of One Country, Two Systems has now moved into a new phase, with Hong Kong and Macao administered by patriots. This has laid a solid socio-political foundation and created favorable conditions for upholding and improving the executive-led system. The current hard-won achievements should be cherished. Efforts should be directed towards safeguarding and implementing the executive-led system, uniting ideas and actions, and jointly building a better Hong Kong and Macao. These measures collectively secure steady and continued success of the One Country, Two Systems policy.
First, upholding and improving the executive-led system requires the chief executives and governments of the two SARs to strengthen their sense of responsibility and fulfill their primary governance duty. According to the Basic Laws, the chief executive of an SAR is the head of both the SAR and the SAR government and shall be accountable to both the SAR and the central people's government. The provisions carry deep significance. As the key figure with substantial responsibilities, the chief executive must properly exercise the statutory powers and take full leadership over the SAR, effectively serving as the principal steward. The chief executives and the governments of both regions must extend the executive-led system to every facet of governance, striving to build an efficient and effective administration. Under the leadership of the chief executives, government branches should improve top-level design and strategic planning for regional development, ensuring alignment with the national 15th Five-Year Plan to enhance the foresight and proactivity required for future development. There should be continuous adaptation, innovation in governance concepts, and improvements in administrative methods. Powers provided by the Basic Laws should be fully exercised to promote reforms, remove barriers of entrenched interests, and resolve deep-seated challenges in the development of Hong Kong and Macao SARs. Under the leadership of both SAR governments, the statutory entities, advisory bodies, and think tanks should fully exercise their professional functions, while district councils and social groups should contribute at the community level. In addition, civil servants have an indispensable duty to maintain executive-led governance. As key participants, they should deliver practical services and solutions for the public, securing broad support and participation from residents and demonstrating loyalty and commitment through tangible actions and results.
Second, upholding and improving the executive-led system depends on active support and collaboration from the legislative and judicial branches to build strong governance synergy. The essence of the executive-led system lies in the distinct yet coordinated functions of the executive, legislative, and judicial branches. Despite the division of functions, the three have the same fundamental objective: to govern the SARs effectively and safeguard the well-being of residents as well as the overall interests of the two regions within the executive-led framework. All three branches must work in concert, complementing rather than undermining one another. The legislative and judicial branches must respect the leadership of the executive. The legislature should establish a closer and more constructive relationship with the executive branch. This will make government decision-making more democratic, rigorous, smooth, and effective, enabling all-round improvements in governance efficacy. Meanwhile, the judiciary should exercise its power of adjudication independently in accordance with the law, strengthen judicial institutions, and enhance judicial efficiency in a bid to protect both the country's fundamental interests and the SARs' overall interests.
Third, upholding and improving the executive-led system calls for broad participation and support from all sectors of society to foster a conducive environment. Ultimately, the system's effective operation hinges on the strong backing and collective efforts of the public in Hong Kong and Macao. Political and social organizations in the two regions are tasked with defending the authority of the chief executives and governments, supporting lawful governance with concrete actions, serving as a bridge connecting the governments and residents, ensuring effective delivery of policies, and strengthening residents' sense of gain. Hong Kong and Macao are the home of all their people, with each resident acting as a stakeholder, contributor, and beneficiary. All members of society should heighten their awareness that they share the future of the SARs. This means supporting the SAR governments' law-based administration through daily work, thereby making due contributions to the two regions' long-term prosperity and stability.
IV. The new-term legislatures should display a renewed image through diligent performance of their duties, with full support for the chief executives and governments in exercising law-based administration and building better Hong Kong and Macao.
As a major component of the SAR governing institutions, legislatures function as a channel for bringing together public views and aspirations. It is in the interests of the two regions and consistent with public expectations for them to support the SAR governments in ensuring sound governance. The 8th Legislative Council of Hong Kong and the 8th Legislative Assembly of Macao have both been constituted smoothly and are now in formal operation, with members composed of firm patriots. The public has placed great hope in the new lawmakers. At a pivotal moment when Hong Kong and Macao are breaking new ground and achieving another leap forward, the two legislatures have much to accomplish and will accomplish much in supporting and advancing better governance through oversight. It is hoped that the new legislatures take the initiative to uphold the executive-led system, fully support the chief executives and governments in administering the SARs in accordance with the law, and, through the provision of constructive input, promote more rational, smooth, and efficient administration. On major policy decisions and measures, expressions of support must be matched with concrete actions. The legislatures should deepen research centered on policy implementation to generate ideas and solutions so that government policies are more workable and more effective in practice. The legislative branches should ensure the support for the governments is not absent and that oversight is exercised without overreach, cultivating a new culture of responsibility and efficiency. They should work with the SAR governments to explore a model of healthy executive-legislative interaction under a capitalist system.
The effectiveness of the legislatures depends on the members. As members of the new-term legislatures, you have all been elected through a highly competitive and fair process, with the most capable candidates chosen. Every word and deed of yours is paid close attention to by the public. We care about whether you strongly support the governments' law-based administration, whether you contribute constructive suggestions for economic growth and livelihood improvements, whether you stand firm against external forces from the United States and other Western countries, as well as against anti-China elements who attempt to create chaos in Hong Kong and Macao, and whether you set an example in personal conduct. Your performance is being observed by the public, the SAR governments, and the central government. Stay steadfast throughout your term, and make sure that no one is left behind.
Legislative work is a notable cause, and legislators are held in high regard. In the legislatures, there are no honorary titles—only responsibilities. All legislators are expected to faithfully perform your duties with dedication, commitment, and diligence, showcasing the professional image of the new-term legislatures. Firstly, the legislators should keep both the nation and the SARs in mind. The love for Hong Kong, Macao and the country is not an abstract concept but represents concrete responsibilities. The legislators should conscientiously honor your oaths by translating loyalty to the country, to the SARs, and to the Basic Law into concrete work and tangible actions, thus turning the institutional advantages of "patriots administering Hong Kong" and "patriots administering Macao" into governance efficacy. Secondly, the legislators should have the courage to shoulder responsibility. As a major force in the SAR governance structure, you should play an active role in advancing reform and development, rather than remaining bystanders. In the face of difficulties and challenges confronting Hong Kong and Macao, the legislators should rise to the occasion and support the SAR governments in finding a way through with concerted efforts. On matters involving fundamental principles, the legislators must maintain a firm stance and have the courage and ability to carry on the fight, resolutely opposing anti-China elements that seek to disrupt Hong Kong and Macao, as well as external forces from the United States and other Western countries. Thirdly, a strong commitment to serving the people is essential. As representatives of the people, the legislators are fundamentally responsible for serving the public and society. You should keep the people firmly in mind, spend time engaging with local communities and different sectors, and listen attentively to the voices of grassroots residents and industry stakeholders, demonstrating commitment, capability, and accountability. Every effort should be made to help address the public's urgent and pressing concerns and to advance livelihood-related matters, so that public appeals are met with timely and effective responses. Fourthly, the legislators must approach participation in legislative deliberation and oversight with diligence and commitment. Irrespective of background or profession, becoming a legislature member means making legislative work the foremost priority. Full dedication to the role is required, even at the cost of certain personal or group interests. Duties must be performed conscientiously and responsibly, with concentrated effort devoted to active participation in all aspects of the legislative work, professional fulfillment of mandates, and high-quality engagement in legislative deliberation and oversight. Whether newly elected or re-elected, legislators should develop the result-driven capability to execute tasks and solve problems. Self-directed learning and rapid adaptation are necessary to ensure a swift transition into the role and meaningful contribution to legislative work. Finally, a positive public image is essential. As public figures, the legislators should pay attention to personal conduct, setting an example for residents through good behavior. Compliance with the code of conduct is required. Actions should be guided by prudence, integrity, and public-mindedness, thereby safeguarding the reputation of the legislatures.
Distinguished guests,
Friends,
With favorable currents and winds, we set sail toward a broad horizon. As we begin the first year of the 15th Five-Year Plan period, the giant ship of "China" is boldly advancing toward the grand prospects of Chinese modernization, while the great rejuvenation of the Chinese nation surges forward unstoppably. Riding the wind of the national efforts to build a great country and advance national rejuvenation, supported by the concerted efforts of the SAR governments and all sectors of society, and backed by our great motherland, Hong Kong and Macao are bound to flourish with unlimited potential, and the practice of One Country, Two Systems will continue to progress with increasing stability and success.
With the Year of the Horse approaching, I extend my early Chinese New Year greetings. May you all enjoy a happy Spring Festival, family happiness, professional success, and due achievements in the coming year!
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