# Hong Kong Bill of Rights Ordinance 1991

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Date of Commencement: 8 June 1991 (s. 1(2)) Adaptation of law: See 34 of 1999 for changes after the handover of Hong Kong. ss. 3(1)-(2) and 4 are not adopted as laws after 1 July 1997.
* A verified copy of this enactment exists on Hong Kong e-Legislation since 15 February 2017.
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HONG KONG BILL OF RIGHTS ORDINANCE 1991
CONTENTS
Article 1 Entitlement to rights without distinction
Article 2 Right to life
Article 3 No torture or inhuman treatment and no experimentation without consent
Article 4 No slavery or servitude
Article 5 Liberty and security of person
Article 6 Rights of persons deprived of their liberty
Article 7 No imprisonment for breach of contract
Article 8 Liberty of movement
Article 9 Restrictions on expulsion from Hong Kong
Article 10 Equality before courts and right to fair and public hearing
Article 11 Rights of persons charged with or convicted of criminal offence
Article 12 No retrospective criminal offences or penalties
Article 13 Right to recognition as person before law
Article 14 Protection of privacy, family, home, correspondence, honour and reputation
Article 15 Freedom of thought, conscience and religion
Article 16 Freedom of opinion and expression
Article 17 Right of peaceful assembly
Article 18 Freedom of association
Article 19 Rights in respect of marriage and family
Article 20 Rights of children
Article 21 Right to participate in public life
Article 22 Equality before and equal protection of law
Article 23 Rights of minorities
HONG KONG
Ordiance No. 59 of 1991
* L.S.
I assent. David WILSON, Governor 6 June 1991
An Ordinance to provide for the incorporation into the law of Hong Kong of provisions of the International Covenant on Civil and Political Rights as applied to Hong Kong; and for ancillary and connected matters.
[8 June 1991]
Enacted by the Governor of Hong Kong, with the advice and consent of the Legislative Council thereof.
PART I Preliminary
1. Short title and commencement
(1) This Ordinance may be cited as the Hong Kong Bill of Rights Ordinance 1991.
(2) This Ordinance shall come into operation on 8 June 1991.
2. Interpretation
(1) In this Ordinance, unless the context otherwise requires—
“article” means an article of the Bill of Rights;
“Bill of Rights” (人權法案) means the Hong Kong Bill of Rights set out in Part II;
“commencement date” (生效日期) means the date on which this Ordinance comes into operation;
“legislation” (法例) means legislation that can be amended by an Ordinance;
“pre-existing legislation” (先前法例) means legislation enacted before the commencement date.
(2) The Bill of Rights is subject to Part III.
​(3) In interpreting and applying this Ordinance, regard shall be had to the fact that the purpose of this Ordinance is to provide for the incorporation into the law of Hong Kong of provisions of the International Covenant on Civil and Political Rights as applied to Hong Kong, and for ancillary and connected matters.
(4) Nothing in this Ordinance shall be interpreted as implying for the Government or any authority, group or person any right to engage in any activity or perform any act aimed at the destruction of any of the rights and freedoms recognized in the Bill of Rights or at their limitation to a greater extent than is provided for in the Bill. [cf. ICCPR Art. 5.1]
(5) There shall be no restriction upon or derogation from any of the fundamental human rights recognized or existing in Hong Kong pursuant to law, conventions, regulations or custom on the pretext that the Bill of Rights does not recognize such rights or that it recognizes them to a lesser extent. [cf. ICCPR Art. 5.2]
(6) A heading to any article does not have any legislative effect and does not in any way vary, limit or extend the meaning of the article.
3. Effect on pre-existing legislation
(1) All pre-existing legislation that admits of a construction consistent with this Ordinance shall be given such a construction.
(2) All pre-existing legislation that does not admit of a construction consistent with this Ordinance is, to the extent of the inconsistency, repealed.
4. Interpretation of subsequent legislation
All legislation enacted on or after the commencement date shall, to the extent that it admits of such a construction, be construed so as to be consistent with the International Covenant on Civil and Political Rights as applied to Hong Kong.
5. Public emergencies
(1) In time of public emergency which threatens the life of the nation and the existence of which is officially proclaimed, measures may be taken derogating from the Bill of Rights to the extent strictly required by the exigencies of the situation, but these measures shall be taken in accordance with law.
(2) No measure shall be taken under subsection (1) that—
    (a) is inconsistent with any obligation under international law that applies to Hong Kong (other than an obligation under the International Covenant on Civil and Political Rights); ​
    (b) involves discrimination solely on the ground of race, colour, sex, language, religion or social origin; or
    (c) derogates from articles 2, 3, 4(1) and (2), 7, 12, 13 and 15.
[cf. ICCPR Art. 4]
6. Remedies for contravention of Bill of Rights
(1) A court or tribunal—
    (a) in proceedings within its jurisdiction in an action for breach of this Ordinance; and
    (b) in other proceedings within its jurisdiction in which a violation or threatened violation of the Bill of Rights is relevant,
may grant such remedy or relief, or make such order, in respect of such a breach, violation or threatened violation as it has power to grant or make in those proceedings and as it considers appropriate and just in the circumstances.
(2) No proceedings shall be held to be outside the jurisdiction of any court or tribunal on the ground that they relate to the Bill of Rights.
7. Binding effect of Ordinance
(1) This Ordinance binds only—
    (a) the Government and all public authorities; and
    ('b) any person acting on behalf of the Government or a public authority.
(2) In this section—
“person” (人) includes any body of persons, corporate or unincorporate.
PART II The Hong Kong Bill of Rights
8. Hong Kong Bill of Rights
The Hong Kong Bill of Rights is as follows.
Article 1 Entitlement to rights without distinction
(1) The rights recognized in this Bill of Rights shall be enjoyed without distinction of any kind, such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.
​(2) Men and women shall have an equal right to the enjoyment of all civil and political rights set forth in this Bill of Rights.
[cf. ICCPR Arts. 2 & 3]
Article 2 Right to life
(1) Every human being has the inherent right to life. This right shall be protected by law. No one shall be arbitrarily deprived of his life.
(2) Sentence of death may be imposed only for the most serious crimes in accordance with the law in force at the time of the commission of the crime and not contrary to the provisions of this Bill of Rights and to the Convention on the Prevention and Punishment of the Crime of Genocide. This penalty can only be carried out pursuant to a final judgment rendered by a competent court.
(3) When deprivation of life constitutes the crime of genocide, nothing in this article shall authorize the derogation in any way from any obligation assumed under the provisions of the Convention on the Prevention and Punishment of the Crime of Genocide.
(4) Anyone sentenced to death shall have the right to seek pardon or commutation of the sentence. Amnesty, pardon or commutation of the sentence of death may be granted in all cases.
(5) Sentence of death shall not be imposed for crimes committed by persons below 18 years of age and shall not be carried out on pregnant women.
(6) Nothing in this article shall be invoked to delay or to prevent the abolition of capital punishment in Hong Kong.
[cf. ICCPR Art. 6]
Article 3 No torture or inhuman treatment and no experimentation without consent
No one shall be subjected to torture or to cruel, inhuman or degrading treatment or punishment. In particular, no one shall be subjected without his free consent to medical or scientific experimentation.
[cf. ICCPR Art. 7]
Article 4 No slavery or servitude
(1) No one shall be held in slavery; slavery and the slave-trade in all their forms shall be prohibited.
(2) No one shall be held in servitude.
(3) (a) No one shall be required to perform forced or compulsory labour.
    (b) For the purpose of this paragraph the term “forced or compulsory labour” shall not include—
       (i) any work or service normally required of a person who is under detention in consequence of a lawful order of a court, or of a person during conditional release from such detention;
       (ii) any service of a military character and, where conscientious objection is recognized, any national service required by law of conscientious objectors;
       (iii) any service exacted in cases of emergency or calamity threatening the life or well-being of the community;
       (iv) any work or service which forms part of normal civil obligations.
[cf. ICCPR Art. 8]
Article 5 Liberty and security of person
(1) Everyone has the right to liberty and security of person. No one shall be subjected to arbitrary arrest or detention. No one shall be deprived of his liberty except on such grounds and in accordance with such procedure as are established by law.
(2) Anyone who is arrested shall be informed, at the time of arrest, of the reasons for his arrest and shall be promptly informed of any charges against him.
(3) Anyone arrested or detained on a criminal charge shall be brought promptly before a judge or other officer authorized by law to exercise judicial power and shall be entitled to trial within a reasonable time or to release. It shall not be the general rule that persons awaiting trial shall be detained in custody, but release may be subject to guarantees to appear for trial, at any other stage of the judicial proceedings, and, should occasion arise, for execution of the judgment.
​(4) Anyone who is deprived of his liberty by arrest or detention shall be entitled to take proceedings before a court, in order that that court may decide without delay on the lawfulness of his detention and order his release if the detention is not lawful.
(5) Anyone who has been the victim of unlawful arrest or detention shall have an enforceable right to compensation.
[cf. ICCPR Art. 9]
Article 6 Rights of persons deprived of their liberty
(1) All persons deprived of their liberty shall be treated with humanity and with respect for the inherent dignity of the human person.
(2) (a) Accused persons shall, save in exceptional circumstances, be segregated from convicted persons and shall be subject to separate treatment appropriate to their status as unconvicted persons.
    (b) Accused juvenile persons shall be separated from adults and brought as speedily as possible for adjudication.
(3) The penitentiary system shall comprise treatment of prisoners the essential aim of which shall be their reformation and social rehabilitation. Juvenile offenders shall be segregated from adults and be accorded treatment appropriate to their age and legal status.
[cf. ICCPR Art. 10]
Article 7 No imprisonment for breach of contract
No one shall be imprisoned merely on the ground of inability to fulfil a contractual obligation.
[cf. ICCPR Art. 11]
Article 8 Liberty of movement
(1) Everyone lawfully within Hong Kong shall, within Hong Kong, have the right to liberty of movement and freedom to choose his residence.
(2) Everyone shall be free to leave Hong Kong.
​(3) The above-mentioned rights shall not be subject to any restrictions except those which are provided by law, are necessary to protect national security, public order (ordre public), public health or morals or the rights and freedoms of others, and are consistent with the other rights recognized in this Bill of Rights.
(4) No one who has the right of abode in Hong Kong shall be arbitrarily deprived of the right to enter Hong Kong.
[cf. ICCPR Art. 12]
Article 9 Restrictions on expulsion from Hong Kong
A person who does not have the right of abode in Hong Kong but who is lawfully in Hong Kong may be expelled therefrom only in pursuance of a decision reached in accordance with law and shall, except where compelling reasons of national security otherwise require, be allowed to submit the reasons against his expulsion and to have his case reviewed by, and be represented for the purpose before, the competent authority or a person or persons especially designated by the competent authority.
[cf. ICCPR Art. 13]
Article 10 Equality before courts and right to fair and public hearing
All persons shall be equal before the courts and tribunals. In the determination of any criminal charge against him, or of his rights and obligations in a suit at law, everyone shall be entitled to a fair and public hearing by a competent, independent and impartial tribunal established by law. The press and the public may be excluded from all or part of a trial for reasons of morals, public order (ordre public) or national security in a democratic society, or when the interest of the private lives of the parties so requires, or to the extent strictly necessary in the opinion of the court in special circumstances where publicity would prejudice the interests of justice; but any judgment rendered in a criminal case or in a suit at law shall be made public except where the interest of juvenile persons otherwise requires or the proceedings concern matrimonial disputes or the guardianship of children.
[cf. ICCPR Art. 14.1]
Article 11 Rights of persons charged with or convicted of criminal offence
(1) Everyone charged with a criminal offence shall have the right to be presumed innocent until proved guilty according to law.
(2) In the determination of any criminal charge against him, everyone shall be entitled to the following minimum guarantees, in full equality—
    (a) to be informed promptly and in detail in a language which he understands of the nature and cause of the charge against him;
    (b) to have adequate time and facilities for the preparation of his defence and to communicate with counsel of his own choosing;
    (c) to be tried without undue delay;
    (d) to be tried in his presence, and to defend himself in person or through legal assistance of his own choosing; to be informed, if he does not have legal assistance, of this right; and to have legal assistance assigned to him, in any case where the interests of justice so require, and without payment by him in any such case if he does not have sufficient means to pay for it;
    (e) to examine, or have examined, the witnesses against him and to obtain the attendance and examination of witnesses on his behalf under the same conditions as witnesses against him;
    (f) to have the free assistance of an interpreter if he cannot understand or speak the language used in court;
    (g) not to be compelled to testify against himself or to confess guilt.
(3) In the case of juvenile persons, the procedure shall be such as will take account of their age and the desirability of promoting their rehabilitation.
(4) Everyone convicted of a crime shall have the right to his conviction and sentence being reviewed by a higher tribunal according to law.
(5) When a person has by a final decision been convicted of a criminal offence and when subsequently his conviction has been reversed or he has been pardoned on the ground that a new or newly discovered fact shows conclusively that there has been a miscarriage of justice, the person who has suffered punishment as a result of such conviction shall be compensated according to law, unless it is proved that the non-disclosure of the unknown fact in time is wholly or partly attributable to him.
(6) No one shall be liable to be tried or punished again for an offence for which he has already been finally convicted or acquitted in accordance with the law and penal procedure of Hong Kong.
[cf. ICCPR Art. 14.2 to 7]
Article 12 No retrospective criminal offences or penalties
(1) No one shall be held guilty of any criminal offence on account of any act or omission which did not constitute a criminal offence, under Hong Kong or international law, at the time when it was committed. Nor shall a heavier penalty be imposed than the one that was applicable at the time when the criminal offence was committed. If, subsequent to the commission of the offence, provision is made by law for the imposition of a lighter penalty, the offender shall benefit thereby.
(2) Nothing in this article shall prejudice the trial and punishment of any person for any act or omission which, at the time when it was committed, was criminal according to the general principles of law recognized by the community of nations.
[cf. ICCPR Art. 15]
Article 13 Right to recognition as person before law
Everyone shall have the right to recognition everywhere as a person before the law.
[cf. ICCPR Art. 16]
Article 14 Protection of privacy, family, home, correspondence, honour and reputation
(1) No one shall be subjected to arbitrary or unlawful interference with his privacy, family, home or correspondence, nor to unlawful attacks on his honour and reputation.
(2) Everyone has the right to the protection of the law against such interference or attacks.
[cf. ICCPR Art. 17]
Article 15 Freedom of thought, conscience and religion
(1) Everyone shall have the right to freedom of thought, conscience and religion. This right shall include freedom to have or to adopt a religion or belief of his choice, and freedom, either individually or in community with others and in public or private, to manifest his religion or belief in worship, observance, practice and teaching.
(2) No one shall be subject to coercion which would impair his freedom to have or to adopt a religion or belief of his choice.
(3) Freedom to manifest one’s religion or beliefs may be subject only to such limitations as are prescribed by law and are necessary to protect public safety, order, health, or morals or the fundamental rights and freedoms of others.
(4) The liberty of parents and, when applicable, legal guardians to ensure the religious and moral education of their children in conformity with their own convictions shall be respected.
[cf. ICCPR Art. 18]
Article 16 Freedom of opinion and expression
(1) Everyone shall have the right to hold opinions without interference.
(2) Everyone shall have the right to freedom of expression; this right shall include freedom to seek, receive and impart information and ideas of all kinds, regardless of frontiers, either orally, in writing or in print, in the form of art, or through any other media of his choice.
(3) The exercise of the rights provided for in paragraph (2) of this article carries with it special duties and responsibilities. It may therefore be subject to certain restrictions, but these shall only be such as are provided by law and are necessary—
    (a) for respect of the rights or reputations of others; or
    (b) for the protection of national security or of public order (ordre public), or of public health or morals.
[cf. ICCPR Art. 19]
Article 17 Right of peaceful assembly
The right of peaceful assembly shall be recognized. No restrictions may be placed on the exercise of this right other than those imposed in conformity with the law and which are necessary in a democratic society in the interests of national security or public safety, public order (ordre public), the protection of public health or morals or the protection of the rights and freedoms of others.
[cf. ICCPR Art. 21]
Article 18 Freedom of association
(1) Everyone shall have the right to freedom of association with others, including the right to form and join trade unions for the protection of his interests.
(2) No restrictions may be placed on the exercise of this right other than those which are prescribed by law and which are necessary in a democratic society in the interests of national security or public safety, public order (ordre public), the protection of public health or morals or the protection of the rights and freedoms of others. This article shall not prevent the imposition of lawful restrictions on members of the armed forces and of the police in their exercise of this right.
(3) Nothing in this article authorizes legislative measures to be taken which would prejudice, or the law to be applied in such a manner as to prejudice, the guarantees provided for in the International Labour Organization Convention of 1948 concerning Freedom of Association and Protection of the Right to Organize as it applies to Hong Kong.
[cf. ICCPR Art. 22]
Article 19 Rights in respect of marriage and family
(1) The family is the natural and fundamental group unit of society and is entitled to protection by society and the State.
(2) The right of men and women of marriageable age to marry and to found a family shall be recognized.
(3) No marriage shall be entered into without the free and full consent of the intending spouses.
(4) Spouses shall have equal rights and responsibilities as to marriage, during marriage and at its dissolution. In the case of dissolution, provision shall be made for the necessary protection of any children.
[cf. ICCPR Art. 23]
Article 20 Rights of children
(1) Every child shall have, without any discrimination as to race, colour, sex, language, religion, national or social origin, property or birth, the right to such measures of protection as are required by his status as a minor, on the part of his family, society and the State.
​(2) Every child shall be registered immediately after birth and shall have a name.
[cf. ICCPR Art. 24]
Article 21 Right to participate in public life
Every permanent resident shall have the right and the opportunity, without any of the distinctions mentioned in article 1(1) and without unreasonable restrictions—
    (a) to take part in the conduct of public affairs, directly or through freely chosen representatives;
    (b) to vote and to be elected at genuine periodic elections which shall be by universal and equal suffrage and shall be held by secret ballot, guaranteeing the free expression of the will of the electors;
    (c) to have access, on general terms of equality, to public service in Hong Kong.
[cf. ICCPR Art. 25]
Article 22 Equality before and equal protection of law
All persons are equal before the law and are entitled without any discrimination to the equal protection of the law. In this respect, the law shall prohibit any discrimination and guarantee to all persons equal and effective protection against discrimination on any ground such as race, colour, sex, language, religion, political or other opinion, national or social origin, property, birth or other status.
[cf. ICCPR Art. 26]
Article 23 Rights of minorities
Persons belonging to ethnic, religious or linguistic minorities shall not be denied the right, in community with the other members of their group, to enjoy their own culture, to profess and practise their own religion, or to use their own language.
[cf. ICCPR Art. 27]
PART III Exceptions and Savings
9. Armed forces and persons detained in penal establishments
Members of and persons serving with the armed forces of the government responsible for the foreign affairs of Hong Kong and persons lawfully detained in penal establishments of whatever character are subject to such restrictions as may from time to time be authorized by law for the preservation of service and custodial discipline.
10. Juveniles under detention
Where at any time there is a lack of suitable prison facilities or where the mixing of adults and juveniles is mutually beneficial, article 6(2)(b) and (3) does not require juveniles who are detained to be accommodated separately from adults.
11. Immigration legislation
As regards persons not having the right to enter and remain in Hong Kong, this Ordinance does not affect any immigration legislation governing entry into, stay in and departure from Hong Kong, or the application of any such legislation.
12. Persons not having the right of abode
Article 9 does not confer a right of review in respect of a decision to deport a person not having the right of abode in Hong Kong or a right to be represented for this purpose before the competent authority.
13. Executive and Legislative Councils
Article 21 does not require the establishment of an elected Executive or Legislative Council in Hong Kong.
14. Temporary savings
(1) For a period of 1 year beginning on the commencement date, this Ordinance is subject to the Ordinances listed in the Schedule.
​(2) This Ordinance does not affect—
    (a) any act done (including any act done in the exercise of a discretion); or
    (b) any omission authorized or required, or occurring in the exercise of a discretion,
before the first anniversary of the commencement date, under or by any Ordinance listed in the Schedule.
(3) The Legislative Council may before the first anniversary of the commencement date by resolution amend this section for all or any of the following purposes—
    (a) to provide that, for a period of 1 year beginning on the first anniversary of the commencement date, this Ordinance is subject to such of the Ordinances listed in the Schedule as are specified in the amendment;
    (b) to provide that this Ordinance does not affect—
       (i) any act done (including any act done in the exercise of a discretion); or
       (ii) any omission authorized or required, or occurring in the exercise of a discretion,
    before the second anniversary of the commencement date, under or by any Ordinance listed in the Schedule that is specified in the amendment; and
    (c) to repeal this subsection.
(4) In this section, a reference to an Ordinance includes a reference to any subsidiary legislation made under that Ordinance.
(5) This section operates notwithstanding section 3.
Provisions to which Section 14(1) and (2) Applies
Immigration Ordinance (Cap. 115)
Societies Ordinance (Cap. 151)
Crimes Ordinance (Cap. 200)
Prevention of Bribery Ordinance (Cap. 201)
Independent Commission Against Corruption Ordinance (Cap. 204)
Police Force Ordinance (Cap. 232)
This work is a Hong Kong ordinance, which is copyrighted in Hong Kong for 50 years after publication pursuant to section 183(2) and paragraph 36 of Schedule 2 of the Copyright Ordinance (Cap. 528). However, as an edict of a government, it is in the public domain in the U.S.
According to Section 3 of the Interpretation and General Clauses Ordinance (Cap. 1), the term "ordinance" also includes any subsidiary legislation made under any ordinances of Hong Kong that does not contravene with the Hong Kong Basic Law.
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