Civic Education beyond Curriculum:A Study of the Junior Police Call of the Royal Hong Kong Police

Paper submitted and presented at the

AAPS Annual Conference 2014TokyoJapan

Kin-man WAN

Institute of SociologyNational Tsing Hua University

10 October 2014

Working draft, please do not quote unless getting author’s permission

Introduction

In 2012, the Hong Kong Special Administrative Region (HKSAR) government proposed to gradually launched a newly designed, compulsory and independent subject in all government and aided secondary schools called “Moral and National Education”, with the explicit objective to promote national identity. However, the attempt was deeply suspected as a hardcore means to ‘brainwash’ the school children and ‘beautify’ the role of Chinese Communist Party (CCP) in the development of China. Followed by the large-scaled marathon styled rallies with the participants across the community, government announced to temporarily abandon the original plan. After the saga, there have been lots of analyses that Hong Kong communities are very resistant to the hardcore indoctrination of ‘national and moral values’ in schools, due to a number of factors.

There are two dimensions could be found when reviewing the controversies on National and Moral Education. First, flooding of information in the information era had broadened the ways for citizens to receive knowledge. They learn and know their civic rights, so they are more emphasizing on civil rights and freedom than before. Second, the regime was forced to accept the changing era, however, she also expected the state or city is under controlled. Under such intense divergence, the youth and education sector then becomes the battle field between the two. As a result, it is not difficult to understand that civic education is an integral part of primary and secondary school curriculum but the way of its delivery to the student exhibit sharp variation in the education systems with different underlying regime values. Some authorities highlight the concepts associated with ‘nation and state’ into the regular curriculum and the official discourses on their interpretations were indoctrinated to students through independent, publicly-examined subject. In some contexts, authorities have taken a more indirect approach to deliver their messages to school children. Through the school extra-curricular activities which are coordinated by the government, students voluntarily enrolled to such programs are exposed to the propaganda of the government and gradually nurtured to a faithful believer of the official discourses. It is quite common to witness the interchangeable use of both ‘hard’ (in regular curriculum) and ‘soft’ (extra-curricular activities) in different contexts. When this underlying regime values and thoughts become internalized through the process of political socialization in school, it is a better and a more effective tool to achieve “social control” comparing with the hard strategy.

In1970s and 1980s Hong Kong was usually named as the “MacLehose era” and regarded as the “Golden era”. The large scale social reform and an open-minded image are promoted by the colonial government. The public is allowed to participate in public affairs in some extent. However, when reviewing the development of the civic education in Hong Kong, it is a totally de-politicization curriculum which is difficult to link up with the solidarity of the society. It is questionable on how it could be done. This presentation tries to discover a soft means and also the intention which has been neglected.

Junior Police Call (JPC), under the control of Police Public Relation Branch of Police force, is established in 1973, the year of many new social reform policies launched. The target groups is the youth, that’s mean it is mainly aim on the new generation. Although JPC is not a regular civic education school curriculum but serve as an important education role in the youth activities in the past. In further, it is highly discussed by the educational sector and regarded it as a contribution to the society. Undoubtedly, the police played a very important role of the success. The presenter unravels the context and patterns of JPC, which is regarded as a civic education beyond the curriculum by focusing on the process of socialization, and characterized it as the means of social control. In further, the presenter would try to answer the question how the colonial regime promoted the soft strategy to conduct and organize the extracurricular activities for the youth beyond the regular curriculum, in order to promote social control invisibly and interpret civil rights.

Really is an Open-Minded Government?

The foundation of “Golden era” or the rise of cohesion in 1970s and 1980s has been debated and firmly discuss among scholars, but it has various discourses and a conclusive answer has yet to be determined.

Some scholars attributed to the notion of “exceptionalism” defining the foundation of “Golden era” are unanticipated and it is an exception in the Asia region and even the world. They argue that it is no absolute formula could explain the rise, and that is as a fortunate circumstance provided by the Mainland China reform because of the ideal geographic location, it boost the economic development of Hong Kong rapidly.

Meanwhile, many academic analyses focus on the economic factors and also some fortune required in the development of Hong Kong. Scott (1997) advocated thatit is mainly because of the economic success, the GDP of Hong Kong increased 9% during 1972 to 1982; it stimulated the domestic demand and export during this period. The success of economic growth provided a good condition to promote tax reduction policy and large scale of social reform. This means the motivation of social reforms acceleration is just a homeopathic policy reform, but not to improve the state- society relationship. Through those social reforms, more public goods and services are provided, the living standard would be improved, and it is unexpected to create a result of the rise of cohesion. Scott (1997) also alerts us “The more successful the economy, the less economic elites could criticize or seek to determine the actions of the bureaucracy.” In further, Scott (1997) believed the vision and personality is another important element of acceleration in reforms. Chow (1998) also mentioned the logic of “compensation” to explain the Hong Kong identity in colonial period. To further explain the logic of “compensation” is colony lost the political rights, but get the better economic status and decent homes, it help Hong Kong to build up the solidarity.

In addition to the notion of “exceptionalism” and rapid economic growth, some academics would argue the above discourses are underestimating and misjudging the role of colonial government and is ignoring the hidden intention and coloniality of the colonial government governance (Yep; Lui, 2010; Lu, 2012). Yep (2013) argued that the former colonial governor Black and Trench already realized the need of reform. Disturbances and riots in 1966 and 1967 were

critical events that facilitated the government’s response to a rapid changing social environment. Yep and Lu (2012) further recognized that the first major attempt to review various state provisions for social services was carried out before 1967. After reviewing the policy, the planning, and systematical administered reform initiatives also had begun before1967. That means the colonial government consciously promoted the large scale reform, but not the “exception” and luck. Meanwhile, Lu (2012) has a further analysis of the intention of colonial government. Sir MacLehose mentioned that it must “to put its house in order” in order to delay the Sino-British negotiations in 1972 Annual Report. In order words, Hong Kong must develop a prosperous, united city and satisfy the public, so the government can avoid critics. FCO archives “Hong Kong Objectives” also recorded the consideration of Sir MacLehose. He wants to create a context that the Communist Party in Mainland China could gain larger than the loss on political aspect, in order to keep the Hong Kong status remain unchanged (Lu, 2012). With this concept, both policy aim at strengthening the confidence in the colony, providing money-making opportunities, increasing working incentives and improving the living standard (Lu, 2012). Therefore, most of the discourse is based on the consolidation of the “four pillars”, namely public housing, education, medical and health services, and social welfare (Yep; Lui, 2010). In this context, it is undoubtedly that both policies are deliberate and intentional to transfer a message that “the uncertain environment cause by the influx of refugees in 1950s and 1960s is gone, Hong Kong is their home, and the government is belonging to them” (Lu, 2012).

However, it might not be well explained why the solidarity would formed at that time and further affect to the next generation. Did the colonial government really open-minded and tried to relieve the social control, in order to give more civil liberties to the citizens? I would try to explain the soft strategy implemented by the colonial government through discuss the biggest youth organization- JPC to answer the above question.

Research Methods

This is a qualitative study based on literature review and interview. The major documentary source comes from newspaper in the 1970s and 1980s, archives and publications of police force; while the main targets of interviews are the scholars who were JPC member in the past, person in charge of JPC, and specially the teacher in charge of JPC at school in 1970s and 1980s.

Textual Research The researcher will make use of the documentary sources come from major newspaper in 1970s and 1980s, archives of Colonial Government, Legislative Council minutes, and publications provided by Police Force such as “JPC Monthly Newsletter” and “OFFBEAT”. Those documentary sources can be viewed in The University of Hong Kong Library and Legislative Council.

In the process of library research, the research will focus on the data-mining work of the JPC establishment paper and Legislative Council minutes, to review the purpose and expected outcomes of JPC. The researcher will also review the publications publish by Police Force such as “JPC Monthly Newsletter”, “OFFBEAT” and newspaper to revisit the actual practice of JPC, echo from the public, and how JPC act as a political and education means to response public, and form an interaction platform between the youth and regime. The newspapers and other documentary sources mentioned above would facilitate deeper understanding on the soft strategy of Colonial Government and the context of the local society in 1970s and 1980s, also how it well developed. The resource is expected to be an important component to supplement the deficiencies during interview section.

Oral InterviewThis research will use the oral interview method to record the presentation from the teacher in charge of JPC interviewees and JPC officer for further analysis. The adoption of qualitative means to study enables the researcher to interpret the JPC as civic education beyond non- regular school curriculum from a multi- perspective. In the process of the interview, the degree of involvement between researchers and subjects is comparatively high. Thus, the results in the research would be more detailed and the researcher could have a deeper understanding of the complexities of this topics.

The SubjectsTo tap the practice and the influence of JPC at school, the researcher approach 3 teachers in charge of JPC work at school. They are the key stakeholders in sharing the experiences in the practice and evaluating the effect of JPC. The considerations of the teachers by the time are in charge of JPC, their attitudes towards JPC and the details of actual operation work are the key elements in exploring the perspective and evaluation of the impact of JPC from the educational sector. Also, it may know more about how the JPC officer to communicate with the teachers, and what the teachers thinks about JPC is always important. The time of JPC formed in the school is also as the following concern. The JPC members in 1970s and 1980s (former members), especially the scholars are another target groups. They could provide details on first-hand experience, direct personal feeling of joining JPC, and the context and reflection on the effectiveness of JPC. It can further help us to know more about the reason of their participation and the whole process of the JPC work in the school context. Thus, the researcher will also approach 2 members to collect the first-hand experiences. Meanwhile, the researcher interview 3 JPC officers to evaluate the purpose and nature of JPC under the official interpretations, in order to have a comparatively objective analysis. It could compare with the details given by teachers, providing a full picture of JPC. It may also know more about the understanding of JPC beyond the government interpretations in the practical context.

Adopting the Qualitative ApproachIt is reasonable to argue that using the quantitative method in this study would be better as it could get rid of personal prejudice and subjective interpretation in exploring the impact of JPC. However, it may ignore the fact that the social reality is a construction of human meanings, intentions and actions, and there should not have an absolutely objective means to interpret them. The strength of adopting the oral interview for the study but not by means of setting and filling the quantitative questionnaires, is that the former could truly and accurately captures the actual context of the work of JPC and also the personal feelings of the members in details. The reporting of results in qualitative research would be comparatively rich and detailed. To enhance the effectiveness of qualitative study, the researcher will try to construct some analytical instruments by developing some measurable indictors to contextualize the subjective observation, in order to avoid personal prejudice towards the interviewees.Research Samples

Subject

Status Background

P1 Retired Senior Superintendent Former PCRO of PPRB in 70sand 80s, In addition to Auxiliary principals, he has been in charge of JPC before retirement

P2 Retired Sergeant In charge of JPC from 1986 (sergeant)

P3 Retired Sergeant Current Sergeant in charge of JPC

T1 Government Secondary School Teacher in Ho Man Tin (Demolished)

In charge of JPC in 70s and he was Discipline Group

T2 Retired Aided Secondary School Teacher in Sha Tin

In charge of JPC in 80s

T3 Aided Secondary School Teacher in Tsuen Wan

In charge of JPC in 80s

M1 Former Junior Police Call Member

Becoming a member of the JPC in 1980, JPC Leader

M2 Former Junior Police Call Member, Graduated from Cadet School

Police Cadet School graduates , He was a JPC member before the enrollment

This study includes eight interviews recorded as the analysis base. The researcher has no intention to prove anything in this study, but the uniqueness recorded from the interviews will be summarized into some points and findings which could provide new understanding and it can help us to re- understand Hong Kong civic education and soft governance means during the colonial period. This study would also focus on how the JPC took this as an alternative civic education outside regular school lesson time, the way the British government and the police in response to the background of the establishment of JPC throughout history as a means of shielding soft governance.

Historical background of Junior Police Call

Generally, Hong Kong had built up the sense of community in 1970s. The 1970s of Hong Kong was also the watershed in the development of Hong Kong, especially at the time when MacLehose became the governor of Hong Kong. However, when we back to the situation in 1960s, the society was surrounded in a negative emotion with social conflicts embedded in this society. The exposure of 1967 Riots triggered the colonial government to carry out the reform.

In the beginning of 1960s, many mainland refugees had flooded into Hong Kong and seek for security. As a result, 500 thousands of people lived in the squatters on the hills without a proper living environment. The gap between rich and poor was wide; many social problems had been created, such as hygienic problem, poor living and working conditions and wide wealth gap etc. Moreover, the corruption happened in the government departments, especially the police caused growing unease among the society.

Most people felt disappointed to those social problems and corruptions, and put all grievances towards the refugees. The social conflicts and corruption had set up the anti-colonial consciousness and the conflict between the leftists and the rightists. Eventually, the 1966 commotion and 1967 Riots raised up and causing serious damage to the society.

In 1967 Riots, rioters fired cars and attacked police, and most of the rioters were students. At that time, some schools with Leftists background, encouraged and teaching student to make bombs, and place the bombs in their community (Carroll, 2013). After the 1967 Riots, the colonial government realized the need to in response to her people, and to achieve effective governance. Since there were a hugh amount of students joined the riots, this was perilous to the governance of the government. Thus, Mr. Robert Black (Black) and Mr. David Trench (Trench), who is the governor of Hong Kong, had reviewed the policies faster the pace in carrying out the reform, before the MacLehose time (Yep, 2013；Lu, 2012).

Under to the background history in 1960s, the aim of reform is, made by the colonial government, to build up a sense of community and the social cohesion. A great proportion of the reform policies and activities were mainly focusing on the teenagers, and the core value of these activities was to encourage teenagers to

participate in the society. The activities held by JPC, the target of this research, also contained this core value same as the“Cleaning Hong Kong Campaign「清潔 香 港 運 動 」 ” (1972) and “Anti- Crime Violence 「 撲 滅 暴 力 罪 行 」”(1973). Both of them are aims to develop people’responsibility of citizenship.

We may take the “Cleaning Hong Kong Campaign「清潔香港運動」” (1972) as an example. Since this campaign is open for all citizens, the government had spent a large amount of budget and human resources to promote the campaign, 13 of government departments were joined (Lu, 2012). This campaign had been divided into 74 districts, each district contains 45,000 participants, and the Mutual Aid Committees (units in building) organized and hold the campaign. And this campaign had set as an example to the following campaign.

The “Anti- Crime Violence 「 撲 滅 暴 力 罪 行 」 ” (1973) not only aimed to response to the great concerned on public safety and to build up the ability of problem solving in the governance of the government; but also focused on “Social Participation”, which aimed at increasing the citizen’s responsibility and their moral standards, in order to enhance their sense of belongings. At the above had helped to build up the basis of the social activities, the activities for teenagers and the team uniforms later on.

In 1960s, the school education in Hong Kong was not common. It was normal to see the deprivation of education of teens and go to work. Most of them only had to attend the lessons for half of the day, and they would use the remaining time to have part-time jobs, or hanging on the streets, and these formed the problems of juvenile gangs, and they rarely have an chance to go to join the extra-curricular activities. However, as the teenagers played a crucial role in the 1966 commotion and 1967 riots, the “Kowloon Disturbances 1966: Report of Commission of Inquiry” in the chapter of “Problems of Teenagers” made suggestion to the government that there is a need to build up more facilities for the teenagers to have healthy entertainments and developments in eshausting their massive energy and emotions, in order to avoid the similar cases happened again. From the perspective of the Functionalism of sociology, these deviant behaviors reflect a malfunction in part of the society. It could be the reason of the late development of education system cannot catch up with the development of the society; or there were no ways for the teenagers to learn and to develop to go through the process of socialization, as the facilities and the related social

welfare were not enough and cannot achieve the goal on keeping the teens busy. In fact, socialization is an important process for people to learn the norms and behave in the way of what the society expect. The deviant behaviors are actually the result of the imbalance situation of the society. Under this condition, “Problems of Teenagers” became one of the focuses of the government. Afterwards, the extra-curricular activities were developed under the control of government in a political means (Zhou & Huang, 2000). The extra-curricular activities of teenager then were held by the groups or the government. Under the encouragement of the colonial government and the Education Bureau, the extra-curricular activities were quickly developed in 1970s, like the Summer Youth Programme, the Duke of Edinburgh Award Scheme and the CYC. The JPC was established at that time and widespread in the schools under the cooperation of the Education Bureau. This resulted to move of the extra-curricular activities were moved from the street into the school with a certain scale and standard. In 1975, the Primary Funding Regulations required that the government schools or the aided schools to have the post of teaching assistants, which should be promoted by the post of Director of Extracurricular Activities (Zhou & Huang, 2000). However, the extra-curricular activities were only at its starting stage. Even though they were included in the general practices, as the students were not forced to participate, these activities were only still in the level of after class ‘activities’ only. In 1980s, the extra-curricular activities were labeled as informal curricular to become the means of completing the curriculum by the ‘Moral Education in School Guidelines’ in 1981 and the ‘Guidelines on Civic Education’ in 1985 for instance. Extra-curricular activities were developed quickly under this situation in 1980s. Yet, the numbers and the categories of the activities were still less, and most likely, they were voluntarily participated.

Figure 1 Schematic of extracurricular activities in1970s Time

Activities

Schooling Non-curriculum

Unfree ** Expression is faulty**

** Expressionis faulty **

Fairly decide by themselves ** Expression is faulty

**** Expression

is faulty **

Except the cause of the society, the reason of JVC was different to the other activities or groups is that it related to Royal Hong Kong Police. The image of the police force did affect the formation of JVC. The culture of corruption in early colonial period had already been entrenched. The governors thought that it was only the bad habits of Chinese and most British were self-respected; or they were weak to handle (Goodstadt, 2005). However, in 1966, the Kowloon Disturbance made the public concerned about the problem of corruption in the Police Force and in the other government departments (Carroll, 2013). Although the 1967 riots arose the police’s attention, the problem of corruption had still eroded to the whole government, from the high ranking officials to the police who corrupted as syndical, and seriously criticized by the public. And the case of Godber made the government embarrassed and forced the government to face the problem of corruption. Godber was praised in the 1967 riots and he was promoted to Chief Superintendent in 1969 and became the Total Commander of Kowloon District in 1971. Afterwards, he discovered that the was being investigated internally, he applied to have early retirement, and approved. However, three months before his retirement, he was discovered that he was planning to transfer a great amount of money out of Hong Kong, and found that his total wealth is 6 times of his total salaries for the past 20 years. Even he was closely monitored; he could still escape and settled in Singapore and England separately. The local media wantonly reported this news. On one hand, the case showed the serious corruption problem in the police force. On the other hand, it reflected the inability of the government. It then triggered the social movement of ‘anti-corruption and catch Godber’, to force the government to review the problem of corruption. The reputation of police force decreased to the lowest point in the history. Therefore, the government and the police joined together to

promote a series of policies to fight corruption and save people’s confidence towards the government and the police force. The ICAC and the Royal Police Cadet School were formed under this situation and the JPC was promoted as well.

The Rationale and Organizational Structure of JPC

The Rationale of JPCAs the above mentioned, JPC established in 1974 with the background of extra-curricular activities being taken seriously by the government and the police with poor reputation. JPC have 118,450 members at the first year, it far more that the police expectation, they expect that just around 20,000 to 30,000 members at the first year. It is the largest youth organizations over Hong Kong until now. Although we rarely talked about JPC now, however, it widely reported by the media and newspaper, it can be imagined that the establishment of the JPC draw attention of society. However, our understanding of JPC may just is a youth organizations which is related to Hong Kong Police. In further, our understanding of JPC’s established aims just limited at the Police official interpretations. When the Royal Hong Kong Police established JPC in 1974, it indicated the purpose of JPC is “Providing recreational activities and entertainment for young people, so that they need not be playing in the streets, which may acquainted bad friends”, “JPC members taught to become good citizens of the knowledge base and encourage them to be public-spirited”, and “encourage young people being friend with Hong Kong Police Force, and build a bridge between young people and the Hong Kong Police Force”. Around a year later, JPC corporate with Education Department, encourage all primary, secondary school over Hong Kong founded "JPC" and start infiltrate into the school structure. At the same time, JPC became one of the school's extracurricular activities and called JPC school clubs (the school ward or school branch). The rationale of the founded of JPC school clubs is aim to “promote young people's interest of JPC activities and attract new members to join JPC”, “promoting student-police relations, and provide an outline of the activities to School Liaison Officer (SLOs)”, and “organized some well-organized activities to students and also meet the school's extracurricular activities, or other adverse effects to curb triad infiltration in schools”. (Hong Kong Kung Sheung Daily News, 16/11/1975). In short, the aims of the establishment of JPC are providing numerous extracurricular activities, civic education beyond regular lesson to the

youth, also guide them to be a good citizen and combating the triads. In further, there is a doubt and feel unsure about why the extracurricular activities must be provided by Police, but not the educational organization or sponsoring bodies. However, the schools, teachers and parents also had not sense the paradox, and most of them do not understand the aims of establish JPC, even the teachers in charge JPC in 1970s and 1980s.

When we retrospect the history, it may find some special, is why school established “JPC”, but not “JFC”? It is quite obvious that JPC is representing Police, but not Fire. Once we understand the paradox, then we can understand it is strengthening the image of the police structurally or on the policy level, of course, it is a healthy image. At that time, however when the government gives an amount of funding, we, the teacher in charge extracurricular activities must obey the instructions of the principal, thus, it must execute. Anyway, the attitude of educational sector is positive. Ostensibly, the government providing the resource, the students can enjoy more extracurricular activities; it is good for students, why not? (T1)I’m served pastoral work at school at that time, principal distribute the work of JPC to me, but I don’t know what is JPC, the details of work of JPC, one thing I understand clearly is it gave many support to us. When the students go out to have a meeting with police and other schools representatives, they will bring back many messages to me, it is meaningful and useful. (T3)

From the respondents (T1, T3), it is clear the teachers as the other end of partner with police, do not understand and know what JPC doing, the aims and philosophy of JPC and even the whole operational framework. They just think the management level or principal distribute the extra resources beyond the regular teaching to establish a club or society in the school, it can give more chance to students go join the extracurricular activities. During 1970s and 1980s, “Edinburgh Award Scheme” ( 愛 丁 堡 獎 勵 計 劃 ) is the only sizable extracurricular activities, thus JPC has a great appeal to students, teachers and even schools. Under this situation, basically, schools and teachers are not concern the nature of JPC, also would not think much about the aims, instead of what schools and students gained. Indeed, in addition to the official purpose of establishment which pointed by police and media, in fact, police did an in-depth study before JPC formed, and it is undoubtedly have its own underlying purpose.

“We did many research about how can improve Hong Kong Police’s image, so that the public likes the police after 1967 riot. The public generally believe that it is corrupted seriously inside the police force before JPC established, therefore we want to use JPC as the means to change their thoughts. Firstly, make the public like and support the police; secondly, JPC members may become new blood of police force in future; thirdly, helping police to fight crime, they will become the eyes and ears of the police.” (P1)

The version mentioned by respondents (P1) is quite differ to the official discourse, the major differences is that the official state JPC is for the youth, so that they could have more activities, but on the other hand the respondents (P1) state that the underlying purpose is focus on police, it aims to improve the image of the police force in the next generation, and also assisting police to a lesser extent, friendly relations between the police and young people is just a byproduct. In the general trend in 1970s, it may like respondent (P1) said, the establishment is line with the series of reform policies of government. JPC founder and Chief Superintendent of Police Public Relations Bureau (PPRB), Andrew C. Rennie (1981) wrote an article “When a Dream Became Reality” in a JPC commemorative publication point out that, “There was only one snag. When we sought comment on our proposals from local community leaders we were given a resounding setback. ‘Families in Hong Kong will not let their children become involved with the police’ was the message we were given. Fortunately, the Scots and the Irish, apart from anything else, are noted for their stubbornness. So, Commissioner of Police Brian Slevin and myself decided to ignore local opinion and launch JPC in July, 1974”. So-called “resounding setback” pointed out by Rennie is reflecting the poor image of the police force, the public generally keep at a distance with the police and even dissatisfied. Actually, that was the reason why the police willing to launch JPC resolutely, they want to change the public thoughts through JPC. However, schools, teachers and students obviously seems do not know the reason and purpose of JPC, they also do not know the actual operating and structure of the operation.

The Organizational Structure of JPCFor the general public's awareness of the JPC is not much, neither familiar with the purpose of its establishment, also may not be familiar with its structure and mode of operation. They probably only know the JPC directly under the Police and cooperate with the school to offer a range of extra-curricular activities.

Figure II Schematic figure of JPC’s structure and operations

In fact, JPC directly under PPRB, this is affiliated by Support Wing of Operation & Support. As JPC often called "central coordination" is responsible for coordinating the planning by PPRB. Under this structure, JPC would form JPC District, such as Kwai Tsing District, Wong Tai Sin District, and Border Areas so on. Then, every JPC District would found JPC Club in Secondary and Primary schools over the district, in order to released information to the student members. General JPC members are below 17 years old, who larger than 17 years old would became, JPC leaders in the past, they usually become the Chairman or Vice-Chairman of JPC Clubs in school. All the actual operation of JPC’s works are started from central coordinating by PPRB, they would set up a annul theme for JPC at the start of the year, such as juvenile crime, traffic safety, fight against triad so on. When PPRB set up these annul theme, they would usually refer to the Crime Wing of Crime & Security,

sometimes would refer to Operation Wing and Support Wing, and see what kind of crime in that year is more common. At the same time, the department above mentioned would also seek for JPC help. PPRB would set up the annul theme and broad guidelines to JPC at the following, then JPC would further command every JPC District, and then different District would have their own way and style to work. During 1970s to 1980s, every JPC District would lead by one Sergeant and about four to five police officer; they would join and participate in every activity with the youth and students, even the activities planning and all the communication, such as visiting the school. Furthermore, both police in charge JPC would hold a regular meeting with the school JPC club’s representatives. Teachers as a supervisor would attend the meeting in the beginning of the year and the end of the year, and basically the chairman would lead a few committees to join every meeting over the year. The meeting would endorse a participant as the secretary to drop down the minutes, and students would report to the supervisor. Teachers would consider which activities could be joined, and the following work would endorse the students to cooperate with the police, includes both preparation work and arrangement. The activities can briefly classify few fields, which are JPC Club/ Society, JPC District, Cross JPC District, Hong Kong and overseas, it is a wide range of the amount and types of activities (see Table 1).

Noteworthy, the whole process is basically just includes two counterparts, which are JPC District (police) and JPC Club (students and teachers), however, local community, the other stakeholders would involving to JPC too. It is includes District Council members, community leaders, Mutual Aid committees, Rural committees, Clan committees so on. Both PPRB and JPC District would encourage them to become JPC President or Honorary President, whose would provide a large amount of funding to JPC, that’s means most of the funding and resources are not provided by the police, but the so-called communities’ leaders. Beyond providing funding, they would notify by the police, when the police are designing and planning activities, they can also provide some suggestion and modify the plan. At the same time, sometimes they would participate in activities and attend a number of large public events, such as large-scale events and award ceremonies, etc. Thus, it is forming a third stakeholder other than the police and students, and became a tripartite relationship, no longer a bilateral relation.

Table 1 The activities table of JPC classify by fields (not exhaustive)

Field ActivitiesJPC Club/ Society Quiz Competition, Booth, Visit (Police Station,

Fire Station, Custom, Police Dog Training School, Police Cadet School, TVB, RTHK), Writing Competition

JPC District Clean-up Campaign, Flag selling, Respect for the elderly Activities, Gathering Party, Distributing leaflets

Cross JPC District Cross JPC District sports competition (football, basketball, volleyball, athletics, swimming), Gathering Party,

Hong Kong Edinburgh Award Scheme, Clean-up Campaign, Summer Camp, AYP, Fight against crime Poster Design, Booth, HSBC Incentive Scheme, Camp, River cruise,

Overseas Oversea Trip (Australia, Canada, England)

In addition, most of the respondents reflect that the Club House of JPC in every district plays a very important role. As the above mentioned, students can just go back to home or wandering the streets after school, rarely places for the youth to have activities in the community.

At that time, JPC Club House was sat up nearby my school, all the JPC Club or Society in school dispatch the student representatives to attend the meeting, all things happen and all the activities in here. Sometimes, the parents would dissatisfy that we pay so much time in JPC Club House. However, when we have a “Base Camp”, all things are become easy. The place is not gorgeous, and there was heavy place before the Club House build. Although it is just a few corrugated roofs, but it is very useful, it make us to have a place to take root, which is the most important. Many things have happened here, and both of the Sergeant and Police officer would stayed here with a long time, we have training and also gathering in here. (M1)

This shows many activities’ design, discussed as well as implementation are conducted in the district's clubs addition to a series of outdoor activities. Under

this situation, the youth and students get along with the police and arising friendly relation gradually.

The Function and Effectiveness of JPC

Enhance the Sense of identity and SocializationObviously, even though the teacher is one of the stakeholders, but they are more nearly to be a consultant or a minor partner. On the contrary, the major stakeholders are police and students, they contacts and cooperate frequently. The students would have an obvious change during close contact with the police (T2, T3, P2, M1), and the police play a significant role in this. Before the social reform in 1960s and 1970s, the British officer tightly control and govern the government, Chinese even the elite is also difficult to be the senior government officer. The colonial government is enclosed to the public especially the Disciplinary Forces. Thus, although the public know the corruption is rooted inside the police force, but the public don’t really understand them. More important are the Police having an absolute power and also authoritativeness, it is not easy to recognize and contacts generally.

I remember that it is one Sergeant and four Police officers holding the meeting, they are Plainclothes Police officer and affiliated to Police Community Relations. It makes me very shock, because all the police should be wearing police uniform, patrolling on the street and get rid of the offences. (M1)The police station is a very mysterious place at that time and the police are both very ferocious, you know? Then, how we have the opportunity to visit police station? (M1)

Referring to the respondents, the image of police in the youth are “army uniform”, “ferocious”, “mysterious” and “get rid of the offences”. It is naturally constructing an authoritative and unattainable image to the youth. This shows the youth is not quite understand the police and did not dare to communicate with police. Yet, the youth and students got a new objective identity after joining JPC and being close encounter with the Police officer without any resistance. Though the identity of JPC membership, it is breaking the communication barrier between students and the police, even though the Police officer still have a considerable authority, but it is far cordial than before.

JPC police officer would come to school to communicate with the students when they are patrolling at that time, the student no longer to afraid the police and the relation is quite close. Sometimes, the students would ask for playing the guns, quite interesting. Also, some of JPC police are just graduated from the training school and not much older than the students' age, thus, they can communicate well and the students are usually be excited, especially the senior students. (T1)

In some cases, students’ parents may detained by the police in the morning, but the police would have a friendly conversation with them in the afternoon, it is miraculous to them (T1), it makes them feel a great difference with others. Moreover, the sergeant and police officer would just wear plainclothes when they participating the activities and staying in JPC Club House with students. Of course, they would wear the uniform when have official duties or joining public events (T3). Not only that, JPC members can visit some places which other students cannot, such as the Detention of Police Station, Customs, Fire Department, Police Cadet School or Police Dog Training School etc. It makes the students glad to be JPC member, and having a sense of superiority. Referring to the Social Identity Theory, the social identity is non-innate; it is not necessarily agreeing the identity subjectively when people getting a new objective identity. Also, when people construct or build up a group or social identity, it possibly to improve self-esteem, but also will compare the status and reputation of each community (Tajfel, 1982). When applying in JPC cases, it has an obvious difference between JPC members and other students, and also most of the JPC members feel superior. At the same time, Hogg (2004) point out that constructing identity is always in order to make themselves and others be distinguished, thus, when people accepted the group membership and build up their group identity, the members’ within the group would have some same characteristics. In case of JPC, the most obviously and easy to distinguish their characteristics are JPC uniform and their membership card. They use these as the symbol to distinguish with other students.

There is a JPC uniform for us, although it seems to be look like PE uniform in school, however, the logo is called “Junior Police Call”, and this logo is extremely similar to the Police logo. It let us felt superior, and some of the members are playing a part of Police Force. As we all know, Police is arrogant and impressive at that years, we all are willing and glad to wear

this uniform. (M1)Every JPC members would hold a membership card, when they came to the Club House; they are requiring showing the card and signed a name for registration, all of them felt very excited. If the members have not yet been receiving the membership card, their parents would give us a phone call to questioning us. (P2)JPC members had status, prestigious and also honor at that time. (M2)JPC usually reported by the media, such as television and newspaper, it let the public know that JPC is very important. (P2, T1, T2, M1, M2)

Referring to the respondents (P2, M1, M2, T1, T2), JPC members generally glad to be the members, and they are proud of their identity. But it must be noted that, the identity and superiority are tight related to the police, and they basically would not resist the Police anymore, instead of friendliness. Besides, the process of socialization let JPC members become felt superior and formed many same qualities, it also socialize the members to be a so- called “qualified” members. Dukheim (1956) pointed out that the functions of socialization are internalized moral and standard recognized by the society, and develop a unifying and disciplinary power by different components in the society (Averch, 1974). It could process in any groups and agents beyond the school and regular curriculum, such as the conversation with pears, teacher-student interaction, flag-raising, saluting, ceremony, extra-curricular activities, etc. (Dawson, Prewitt, 1969). As above mentioned, JPC has a unique uniform and logo, which is reminiscent to Police, that’s means they are represent Police in a certain extent, thus the society would give some expectation to them, it let them always remember their “JPC” identity. During 70s to 80s, the media and newspaper are usually reported JPC’s activities and their merits, of course, it’s includes their faults. In October 1975, it is news reported on the newspaper, the title is “Female student grab by JPC members”.

A Secondary 3 Junior Police Call member grabs a female students, and trial in Tsuen Wan Magistracy, sentenced to Flogging nine vines, also 2 years probationers. The defendant Cheung, 16 years old, lives in 11 blocks, Shek Lei Estate. The defendant grabs 40 cents and 1dollar 60 cents from a female student in 26, Sept and 27 Sept. (Ta Kung Pao, 20/10/1975)

Referring to the news, it is not really a serious cases, but the newspaper reported it in details, it could be explained that the defendant is a JPC member, the society

expect them to be a well behaved people, it is similar a police, if police commit crimes, the echo of society would be great. Therefore, if the youth want to be a member of JPC, it must be well behaved, and follow the guidelines from Police. Therefore, the identity of JPC is an honor to the youth, but also a burden, because socialization is the process of learning the behavior of a particular individual or social group, which can be keep normal lives (Elkin, 1960). As time passes, they would confirm what they can do and what they cannot, and aim at doing a well behaved students, if not, they are not a “qualified” JPC member. In addition to the external pressure cause by the identity, it is also internal effect. Although it is many different types of JPC activities, however, these activities always have a common theme, is fight against crime that further make the members knowing the “right or false”. Besides, in the process of the member to become a disciplined people and admire Police, the Police and Club House also play a key role. Foucault (1979) point out that disciplines was directed not only at the growth of its skills, nor at the intensification of its subjection, but at the formation of a relation that in the mechanism itself make it more obedient as it become more useful, and conversely. In case of JPC, it may not aim at strengthen member’s knowledge and ability, of course, it have not any tougher controls over the members, also it is not make them absolute obedience to the Police, make them to be totally conquest them, it is rather develop a relatively friendly and close relations, which can refer the above mentioned. It is differ to military service and any top-down order, but it is more useful to let the people more disciplined. Foucault (1979) has further explained that discipline increases the forces of the body (in economic terms of utility) and diminishes these same forces (in political terms of obedience). On the one hand, it turns it into an “aptitude”, a “capacity”, which it seek to increase; on the other hand, it reverses the course of the energy, the power that might result from it, and turns it into a relation of strict subjection, and disciplinary coercion establishes in the body the constricting link between an increased aptitude and an increased domination. In case of JPC, both activities designed for the members could increases the forces of the body, that’s so-called the aptitude and capacity, such as the leadership skills, independent ability, independent learning, active learning, citizenship, social concern, discipline and so forth, let them to be an active learner which the civic education emphasizing in the modern century. However, it would also increase the domination by the police. It must mention that both resources and activities were provided by the Police, and had a long period of conversation with the police; it would easy to socialize by the peers, polices and even the nature and aims of the actives. Usually, the respondents reflected that the police

become members’ role model, but it would not make the relation more alienated, but more close. Besides, Foucault (1979) also states that discipline sometimes require enclosure, the specification of a place heterogeneous to all others and closed in upon itself. In case of JPC Club House, it is also an enclosure place, who want to get into the club house, he must registered by the membership card, that’s means non JPC member could not get into the club house. All could get into to club house are having some same features, and sergeant and police officer would usually stay there and wait for the members. As the respondents replies, all conversations and many activities would be conducted within the club house. Although JPC emphasizing it had not many rules, but as we all know, the police have his authority, and it would make the members more disciplined.

Although JPC is far freer than other uniform groups, however, it was always disciplined. Most of the members are well behaved children, but it was inevitably have some so-called “bad” students, we would scold and even reprimand them. They would continue to go to the Club, if they want to be a good citizen. (P2)We would scold them; of course every colleague would have their own handling. They would usually listen to our reprimand, because we have the authority, so that they would be less rebellious. (P3)

The most important is that both conversations, teaching, scolding, joining the activities would accompanied by the police, under this situation, the members would see the police as a friend, brother or sisters, respected person, teachers, authority and the person who can protect them. Thus, they naturally would not resist the police, but also like and support the police currently and even in the future.

As a Mean to Win Society’s SupportAs the above mentioned, it is a paradox that the community leaders became the third stakeholders. Indeed, it is not necessary that invited the community leaders to involve JPC work; however, they play an important role within the structure of JPC (P1). Indeed, as the above mentioned, the funding of JPC was mainly given by the so-called community leaders, of course it is positive to the Police Force, it is because, the Police Force could spent lesser money on JPC, but it can also have a significant results and effects, then the question is why the community leaders

were willing to spend a large amount of money to JPC, in addition to the their own interest on the youth activities. Indeed, it is a mean to mean to win over the society. The respondent P1 stated,

There were many successful person and community leaders in every district. Of course, when they became the President or Honorary President of JPC, it was conducive to them to become the committees of Fight Crime Committee. It was obviously that many committees of Fight Crime Committee are come from the Presidents of JPC District, it is something reward to them. The most important is the Commander can recommend someone to be the committees, and even it could help them to get the honor of Justice of the Peace (JP) or even Order of the British Empire. (P1)It is an interlocking society, such as when I am the Commander; they would usually ask for our help, then I must help them in basically. That’s why they were willing to donate a large of amount of funding to JPC. Another case is the District Council members; they would strive for our votes in the election. It is a mutually beneficial relation between the Police and the community. (P1)

Referring to the respondents, it is obviously intention that it was a means to win the society support, and it could improve the relation between the community and Police, and also get more funding by them, indeed, it is a brilliant means of governance. The newspaper in 1980s stated that the triads xin yi an (新義安 ), xiang hua yan ( 向 華 炎 ) also attend the activities of JPC, and also wang hua sheng (王華生), the shipbuilding magnate also join the ceremony. It is clear that no matter the triads or business man and the political parties, both are the target of Police to gain their support.

Conclusion: JPC as a Soft Means of Social Control and Civic Education

To summarize the above findings and respond to the beginning of the article, we could imagine that JPC was not an uncomplicated youth / uniform organization. The intention of Police to establish JPC may not just aim at providing more extracurricular activities to the youth and students. When this research combined the historical background and the interviews of each stakeholder, it could find that is a deliberately design, and use JPC as a soft means of governance, and also civic education in 70s and 80s.

In the view of the governance, JPC is successful to become the bridge between the community and Police as the above mentioned. No matter the triads or business man and the political parties, both are the target of Police to gain their support. As the result, they done a successful job to strengthen the relation with the community, more and more so-called community leaders become the President or the Honor President of JPC, it is not many conflict in the later years. Another success is improved the image of the Police Force to the new generations, youth, parents, schools and even the whole educational sector. However, it is a paradox we must concern, teachers and schools are become a mere figurehead in the process of JPC work, their role are similar to consultant or superior, but not an important stakeholder within JPC work, although they are excepted to be a key role of JPC. Teachers usually proud of their students are clear and out standard, so they are not required to put many efforts on JPC work , and all the work are well designed and planned by police and students. Under this situation, they would not know many about JPC and just see it as an extracurricular activity. It left the space to the police and the students have a close conversation and the police make the students more disciplined, that’s why teachers would always support JPC. Although it is hard ti proof this is the policy design at the beginning, but it became the results and having unexpected effects.

At the same time, it increases the transparency of Police and even the colonial government. As we all know, Police is a mysterious place before JPC established. When JPC broke the myth, the students and public would know more about the government, sometimes, JPC member would invited to some “mysterious place”, such as the Fire station, Department of government, Police station so forth, it can also providing the fresh and positive image of Police and government. Also, the Police are the state apparatus of the government, when

they show a friendly and helpful image to the public; it can also become the bridge between the public and government.

In addition to be the soft means of governance, JPC also as the civic education in 70s and 80s. Civic education could be classified as identity, virtue, citizenship, political and social (Heater, 1990). It usually runs by the non-curriculum and hidden curriculum methods, each as extracurricular activities. Referring to the activities mentioned above, many activities having the elements of social participation, which is coordinate with the government policy, that’s it aim at to increase their a sense of belonging of the city and Hong Kong. In political and identity aspect, JPC also constructed a identity of JPC membership, and it is tight related to the Police Force, and they are usually respect the Police and see they as the friend, it can improve the image and also increase the legitimacy of colonial government, thus JPC also have a political effect. In further, their virtues have been improved during participated the activities, such as the respect for the elderly, Clean-up Campaign, Fight against crime and so forth. Also, JPC could also let the youth more disciplined during the process of socialization. Thus, JPC is exactly the civic education beyond the regular curriculum far earlier than 1984 The Civic Education Committee formed, and as a form of social control.

It is a pilot study of JPC; it has many question and paradox need to have a further study and answer.

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