Gaming, Governance and Public Policy in Macao Edited by Newman M. K. Lam and Ian Scott Hong Kong University Press 14/F Hing Wai Centre 7 Tin Wan Praya Road Aberdeen Hong Kong www.hkupress.org © Hong Kong University Press 2011 ISBN 978-988-8083-28-2 (Hardback) ISBN 978-988-8083-29-9 (Paperback) University of Macau Av. Padre Tomás Pereira, Taipa Macau, China www.umac.mo All rights reserved. No portion of this publication my be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopy, recording, or any information storage or retrieval system, without permission in writing from the publisher. British Library Cataloguing-in-Publication Data A catalogue record for this book is available from the British Library. 10 9 8 7 6 5 4 3 2 1 Printed and bound by Liang Yu Printing Factory Ltd. in Hong Kong, China Contents List of Figures, Plates and Tables vii Preface xi Abbreviations and Acronyms xv A Note on the Place Name and the Currency xvii List of Contributors xix 1. Social Stability and Economic Growth 1 Ian Scott Part I The Gaming Industry and Its Critics 2. The Development of the Gaming Industry and Its Impact on 19 Land Use Penny Wan and Francisco V. Pinheiro 3. The Impact of Gaming Liberalisation on Public Opinion and 37 Political Culture Newman M. K. Lam Part II Governance 4. Executive-Legislative Relationships and the Development of 57 Public Policy Eilo Yu Wing Yat 5. Challenges and Threats to Traditional Associations 75 Annie Lee Shuk Ping vi Contents 6. Civil Service Reform: Building Basic Administrative Capacity 89 Brian Brewer 7. Improving Productivity through Ef¿ ciency Wages: The Case of 107 the Civil Service Jeannette Taylor Part III Public Policy 8. Labour Policy: Resolving the Mismatch between Demand and 129 Supply Grace O. M. Lee 9. Labour Regulation in the Liberalised Casino Economy: The Case 145 of the Croupiers Alex H. Choi and Eva P. W. Hung 10. Education Governance and Reform: Bringing the State Back In 163 Joan Y. H. Leung 11. Housing Policy: A Neoliberal Agenda? 183 James Lee 12. Social Welfare Policy: A ‘Flexible’ Strategy? 197 Chan Kam Wah and James Lee Part IV Conclusions 13. Gaming, Governance and Public Policy: Constraints and 217 Opportunities Ian Scott and Newman M. K. Lam Appendix: Timeline Macao 1999–2010 225 Notes and References 243 Selected Bibliography 269 Index 283 List of Figures, Plates and Tables Figures 1.1 Economic Growth and Social Stability: Four Different Scenarios 3 1.2 Regime Characteristics in Four Scenarios 4 1.3 The Decline in Employment in Manufacturing, 1990–2008 7 1.4 Homicides, 1997–2008 8 1.5 Rate of Growth of Gross Domestic Product in Real Terms, 1991– 9 2001 1.6 Growth in Foreign Investment, 2001–2008 11 1.7 Rate of Growth of Gross Domestic Product in Real Terms, 2001– 11 2008 2.1 Percentage of Gaming Revenues to Government Income, 1998– 25 2008 6.1 Organization Chart of the Macao Government 92 7.1 Ef¿ ciency Wage Ratio and Elasticity of Effort of the Macao Civil 118 Service, 1998–2009 7.2 Ef¿ ciency Wage Ratio and Elasticity of Effort of the Macao 119 Workforce by Industry 7.3 Annual Percentage Change in Public Sector Wages and Private 122 Sector Wages and InÀ ation in Macao, 1998–2009 11.1 House Price to Income Ratio, 2002–2006 194 Plates 2.1 The Flagship Casinos of the Macao Casino Industry after p. 28 2.2 Height Restrictions near Guia Hill after p. 28 2.3 The Oceanus Casino after p. 28 viii List of Figures, Plates and Tables Tables 2.1 Number of Casinos and Tables, 2002–2009 25 2.2 Growth Pattern of Revenue from Different Gaming Activities, 26 2002–2008 (in millions MOP) 2.3 Changes in the Unemployment Rate, the Total Employed Population 26 and the Employed Population in the Gaming Sector, 2002–2009 2.4 Comparison of Employment in the Gaming Industry with Other 27 Major Employment Sectors, 2004–2008 2.5 Visitor Arrivals by Top Three Places of Origin, 2002–2009 27 3.1 Association between Gender and Opinion of Gaming Liberalisation 41 3.2 Association between Gender and Job Type 41 3.3 Association between Gender and Residency 42 3.4 Association between Gender and Knowledge of Gaming 42 Liberalisation 3.5 Association between Family Income and Opinion of Gaming 43 Liberalisation 3.6 Association between Education and Opinion of Gaming 44 Liberalisation 3.7 Association between Age and Opinion of Gaming Liberalisation 45 3.8 Perceived Conditions after Gaming Liberalisation 45 3.9 Association between Perceived Conditions and Key Variables 46 3.10 Views on the Gaming Industry 47 3.11 Association between Views on Gaming Industry and Key Variables 48 3.12 Views on the Effects of the Booming Gaming Industry 49 3.13 Association between Views on the Gaming Boom and Key 49 Variables 3.14 Views on Foreign Investment 50 3.15 Association between Views on Foreign Investment and Key 51 Variables 3.16 Responsibility for Social Problems 52 3.17 Responsibility for High Property Prices 52 3.18 Policy Preference for Foreign Gaming Investment 53 4.1 Composition of the Legislative Assembly 59 4.2 Number of Laws and Decree Laws, 2000–2009 60 4.3 The Budget of the Macao Government, 2000–2009 (in billions 64 MOP) 4.4 Number of Written Enquiries Submitted by Legislators 66 5.1 Number of Registered Associations 77 5.2 Results of Legislative Assembly Elections, 2001, 2005 and 2009 82 List of Figures, Plates and Tables ix 5.3 Appointments of Legislative Assembly Members to Chinese 84 Consultative Committees, 2005, 2009 5.4 Subsidies Granted by the Macao Foundation 88 6.1 Macao Civil Servants Born in Portugal 91 6.2 The Macao Civil Service: Secretariats and Bureaus 92 6.3 Macao Civil Service Establishment by Department, 2008 94 6.4 Macao Civil Service, 1980–2008 95 6.5 Control of Corruption: Hong Kong/Macao Comparison 98 7.1 Salary Points of Macao Civil Servants, 2009 112 7.2 Ef¿ ciency Wage Ratio and Elasticity of Effort of the Macao Civil 118 Service, 1998–2009 7.3 Ef¿ ciency Wage Ratio and Elasticity of Effort of the Civil Service 120 in Selected Countries, 2005 7.4 Total Factor Productivity of the Macao Workforce and Public 122 Sector Workforce, 1998–2008 8.1 Employed Population by Industry in 1999 and 2009 130 8.2 Employed Population by Occupation in 1999 and 2009 131 8.3 The Number of People Employed in the Gaming Industry, 2003– 131 2009 8.4 The Number of Imported Workers, 2001–2009 131 8.5 Unemployment Rate, 1999–2009 132 8.6 Number of Vacancies in the Gaming Industry, 2004–2009 (by 140 Position) 8.7 Unemployed by Age Group in 2009 140 8.8 Number of Vacancies in 2008 and 2009 (by Industry) 142 8.9 Employed Population by Educational Attainment in 1999 and 2009 143 10.1 State Construction of the Macao Education System, 1991–2009 167 10.2 Number of Schools and Students within/outside the Free Education 169 System, 2008–2009 10.3 Number of Public and Private Schools in Macao, 2008–2009 172 10.4 Number of Students in Public and Private Schools, 2008–2009 172 10.5 Education Committee of Macao: Members and Their Institutional 174 Af¿ liations 10.6 Employed Population by Educational Attainment: Macao, Hong 177 Kong and Singapore 10.7 Number of Student Drop-outs, 2003–2007 178 10.8 Academic Attainment and Rate of Further Studies of Secondary 178 Students in Macao 10.9 Number of Macao Students Receiving Higher Education (by Place 179 of Study) 10.10 Classi¿ cation of Schools According to the Medium of Instruction, 180 2002–2008 x List of Figures, Plates and Tables 11.1 Neoliberal Urbanisation and Its Impact on Institutional Change 188 11.2 House Price InÀ ation, 2002–2006 189 11.3 The Macao Gaming Economy, Population and Housing 190 11.4 Transaction Values of Residential Units Bought under the 4 Percent 192 Interest Subsidy Scheme (in MOP billions) 11.5 Annual Growth of Monthly Income, Real GDP and House Price 193 11.6 The Macao Housing System, 2009 194 11.7 Social Housing Units: Year of Construction and Type by Year 195 11.8 Construction of Economic Housing Units, 1981–2006 195 12.1 Traditional Associations in Charity Work, 2002 199 12.2 Current Revenue and Expenditure of the Social Security Fund (in 202 millions MOP) 12.3 Number of Recipients and Payments and Subsidies Granted by the 203 Social Security Fund by Type, 2008 12.4 Number of Social Services/Facilities by Type of Service 204 12.5 Social Services Expenditure by Item (in millions MOP) 205 12.6 Recurrent Subsidies for NGOs and Traditional Associations, 2008 206 12.7 Selected Cash Subsidies 208 List of Contributors Brian BREWER is Associate Professor in the Department of Public and Social Administration at the City University of Hong Kong. CHAN Kam Wah is Associate Professor in the Department of Applied Social Sciences at the Hong Kong Polytechnic University. Alex H. CHOI is Assistant Professor in the Department of Government and Public Administration at the University of Macau. Eva P. W. HUNG is Assistant Professor in the Department of Sociology at the University of Macau. Newman M. K. LAM is Associate Professor in the Department of Government and Public Administration at the University of Macau. Annie LEE Shuk Ping is with the Macao Productivity and Technology Transfer Center.