Public consultation for Hong Kong’s first-ever five-year plan is set to begin in the second quarter of 2026. Chief Executive John Lee Ka-chiu has repeatedly emphasized that the introduction of this blueprint will not alter the existing governance framework, particularly the preparation of annual Policy Addresses and Budgets. Instead, the Hong Kong Special Administrative Region government will ensure that these annual policy packages are closely aligned with Hong Kong’s first five-year plan.
Local authorities have adhered to a policy of “positive noninterventionism” for decades, with governance largely driven by annual Policy Addresses and Budgets. In the past four years, Lee’s Policy Addresses have reflected his governance philosophy, policy priorities, and responses to social concerns. While the public is familiar with this approach, the introduction of a comprehensive medium-term development plan is relatively new. Clarifying the distinct but complementary relationship between Hong Kong’s first five-year plan and the Policy Address is therefore essential before the public consultation begins.
Fundamentally, Hong Kong’s first five-year plan defines where Hong Kong aims to be in five years, while the Policy Address sets out what must be done in the immediate year. Take the development of the Northern Metropolis as an example. Hong Kong’s first five-year plan will establish its overarching strategic positioning as an “international innovation and technology city” and set medium- to long-term targets. The Policy Address then breaks these grand goals down into concrete annual milestones. Furthermore, Hong Kong’s first five-year plan retains a relatively stable rigidity throughout its cycle and would only be adjusted in the event of major disruptions, such as a pandemic. The Policy Address, by contrast, can be dynamically adjusted to reflect annual economic shifts and fiscal realities. Together, they combine strategic stability with operational flexibility, ensuring that the development “blueprint” translates smoothly into an actionable “construction map”.
The way the two documents are drawn up also differs. The Policy Address is prepared under an executive-led approach: The chief executive consults widely through seminars, public engagement and Legislative Council question-and-answer sessions before finalizing the text. LegCo’s role in this process is mainly advisory.
By contrast, drafting Hong Kong’s first five-year plan involves a more structured and institutionalized process. First, it introduces a collaborative research mechanism between the executive and the legislature. LegCo panels will be involved from the outset, jointly examining more than 120 topics, each supported by empirical research, reports, and public hearings. Second, it creates an alignment mechanism with the national 15th Five-Year Plan (2026-30), including synchronized time frames, consistent functional positioning with national strategies and central support in resource allocation through direct communication with relevant central authorities. Third, it establishes an expert consultation mechanism. To align with Hong Kong’s national positioning as “10 centers, two hubs and one ecosystem”, and to generate synergy with other Guangdong-Hong Kong-Macao Greater Bay Area cities, this mechanism has been formed under the coordination of the Hong Kong and Macao Work Office of the CPC Central Committee and the Hong Kong and Macao Affairs Office of the State Council.
Consequently, Hong Kong’s first five-year plan is not a closed-door administrative exercise but a highly collaborative undertaking backed by executive-legislative synergy and guided by national strategy.
Hong Kong’s first five-year plan will serve as a strategic navigation chart, steering the overall direction, broader picture, and long-term goals. … The Policy Address will act as an operational task list, breaking down objectives, announcing concrete measures and ensuring phased implementation. Together, the two instruments will form a mutually reinforcing framework to drive Hong Kong’s sustained and high-quality development
Moreover, the two documents diverge in their strategic focus. Hong Kong’s first five-year plan targets macro-level, long-term imperatives, selecting critical pathways that will decisively shape Hong Kong’s future competitiveness — essentially focusing on “doing the right things”. The Policy Address functions as an annual policy compendium. It responds to immediate needs and ensures the smooth running of public services, focusing on “doing things right” by turning long-term strategies into specific yearly tasks.
Legally, the Policy Address is rooted in Article 64 of the Basic Law, which requires the SAR government to present regular policy addresses to LegCo, though it lacks strict legal binding force. By contrast, Hong Kong’s first five-year plan will hold a quasi-constitutional status. It will require formal approval by LegCo, be filed with the Central People’s Government, and be aligned with the national 15th Five-Year Plan. This alignment is further underpinned by Article 37 of the National Development Planning Law, which supports the SARs in integrating into the national development framework. Failure to meet the core targets of Hong Kong’s first five-year plan could therefore trigger not only LegCo scrutiny but also accountability mechanisms at the central level.
The five-year plan will also help address the long-standing problem of fragmented policymaking. Because the Policy Address operates on an annual cycle, it is vulnerable to political and electoral rhythms, making it harder to sustain long-term reforms and mega-infrastructure projects. By spanning five full years, the five-year plan will bridge one chief executive’s term and extend into the next, creating a “relay-style” institutional arrangement. While an incoming chief executive may adjust tactical priorities, the overarching strategic direction endorsed by LegCo should not be easily reversed, thereby safeguarding continuity.
Without a farsighted blueprint, development risks losing its direction amid a volatile and complex global environment. Hong Kong’s first five-year plan will serve as a strategic navigation chart, steering the overall direction, broader picture, and long-term goals. Yet even the best strategy risks remaining on paper without an annual timetable. The Policy Address will act as an operational task list, breaking down objectives, announcing concrete measures and ensuring phased implementation. Together, the two instruments will form a mutually reinforcing framework to drive Hong Kong’s sustained and high-quality development.
The author is vice-chairman of the Committee on Liaison with Hong Kong, Macao, Taiwan and Overseas Chinese of the National Committee of the Chinese People’s Political Consultative Conference, and chairman of the Hong Kong New Era Development Thinktank.
The views do not necessarily reflect those of China Daily.