LCQ16: Management of foreign domestic helpers
*********************************************
Question:
According to government statistics, there are currently about 380 000 foreign domestic helpers (FDHs) in Hong Kong, accounting for around one tenth of the local labour force. There are views suggesting that FDHs have become an indispensable part of Hong Kong society and have all along made significant contributions to families in Hong Kong, particularly in taking care of children and elderly persons and performing household chores, which is conducive to unleashing the female labour force. In this connection, will the Government inform this Council:
(1) whether it has compiled statistics on the number of FDHs in Hong Kong from 2024 to date, and the respective numbers of households with (i) minors, (ii) elderly persons, and (iii) persons with physical disabilities or chronic illnesses that employ FDHs;
(2) given the view that the 2.35 per cent increase in the Minimum Allowable Wage (MAW) for FDHs announced recently by the Government (with a cumulative increase of around 10 per cent since 2022), coupled with persistent rises in agency fees, insurance premiums and living costs, may exert pressure on middle-class and grass-roots families due to increased living expenses and affect their desire to employ FDHs, what complementary or targeted support measures have been put in place by the Government to assist such families in alleviating their pressure arising from FDHs' wage increase, including whether it will study the introduction of a "tax deduction for expenses incurred in employing FDHs" to allow taxpayers to claim salaries tax deductions, with the deduction amount to be determined with reference to the MAW for FDHs and related expenses;
(3) whether the Government will draw reference from the regulatory models for estate agents or the travel industry and study the establishment of a "Foreign Domestic Helper Affairs Authority" to handle on a one-stop basis matters such as the approval of applications for FDHs' entry to Hong Kong, the licensing of employment agencies, inspection, training, and complaints from employers and FDHs, with a view to strengthening regulation and enhancing the quality of FDH services; if not, of the reasons for that; and
(4) given that the 2026 Policy Address proposes to admit foreign domestic carers (FDCs) on a pilot basis, but there are views suggesting that the higher remuneration for FDCs, which is estimated to be 10 per cent to 20 per cent more than that of ordinary FDHs despite the overlap in their scope of work, may deal a blow to the existing FDH market, whether the authorities have compiled statistics on the demand for FDCs in the local market, and whether they will formulate clear work guidelines and an assessment mechanism for FDCs to strictly define the scope of their duties; as FDCs will receive training in their places of domicile, what measures have been put in place to ensure their training quality and effective monitoring, and whether the authorities will explore requiring FDCs to complete training in Hong Kong before taking up employment instead?
Reply:
President,
The Government attaches importance to the reasonable rights and interests of foreign domestic helpers (FDHs) and their employers, and strives to balance the concerns of both parties. In response to population ageing, the Government continues to refine its policies on FDHs to help meet the growing demand for home-based elderly care. Having consulted the Financial Services and the Treasury Bureau, the Census and Statistics Department (C&SD) and the Immigration Department (ImmD), my reply to the question is as follows:
(1) As at December 2024, December 2025 and June 2026, there were about 368 000, 379 000 and 382 000 FDHs working in Hong Kong respectively. According to the corresponding quarterly statistics, there were 315 300, 322 300 and 325 400 domestic households employing FDHs in Hong Kong in Q4 2024, Q4 2025 and Q2 2026 respectively. Among them, 156 800, 162 200 and 163 100 households had persons aged under 18, while 134 400, 143 000 and 139 200 households had elderly persons aged 65 or above. The C&SD does not maintain a breakdown on the number of FDH-employing households with persons with disabilities or chronically ill persons.
(2) The Government reviews the Minimum Allowable Wage (MAW) and food allowance for FDHs annually in accordance with the established mechanism. In the review, the Government takes into account a basket of factors, including Hong Kong's overall economic and labour market conditions, changes in the price level, changes in household income of employers, the income situation of workers in elementary occupations, as well as the views of both employers and FDHs. The Government seeks to strike an appropriate balance among safeguarding reasonable remuneration for FDHs, taking into account employers' affordability, and maintaining Hong Kong's attractiveness to FDHs. Having fully considered the above factors, the MAW for FDHs was increased by 2.35 per cent this year, while the food allowance was kept unchanged.
Disabled recipients of the Comprehensive Social Security Assistance (CSSA) Scheme may apply for the care and attention allowance under the the CSSA Scheme to hire an FDH if they are certified by a medical officer of the Hospital Authority or the Department of Health as requiring constant attendance, and are assessed and recommended by a social worker of the Social Welfare Department (SWD). The subsidy amount is generally capped at the MAW for FDHs and the relevant food allowance set by the Labour Department (LD), and covers relevant necessary expenses based on actual needs.
In addition, recipients of the Higher Disability Allowance may apply for the Scheme on Providing Subsidy for Higher Disability Allowance Recipients in Paid Employment to Hire Carers of the SWD. Eligible applicants will receive a monthly subsidy of $5,000 for hiring FDHs as carers, to assist the applicants in commuting (not applicable to persons who work from home) and/or taking care of the applicants' activities in the workplace (including providing care for daily living), with a view to encouraging them to sustain employment.
As regards the proposal to introduce a tax deduction for expenses on employing FDHs, the Government must carefully examine the implications for public finances, while also balancing social, economic and other public policy considerations. The Government will continue to keep in view public views and the fiscal position, and carefully consider the proposal.
(3) Visa applications for employers to employ FDHs to work in Hong Kong are processed by the ImmD in accordance with the Immigration Ordinance (Cap. 115). Employment matters between employers and FDHs, as well as the regulation of employment agencies providing FDH placement services, are administered by the LD under the Employment Ordinance (Cap. 57) and relevant legislation. To strengthen co-ordination and liaison among different bureaux and departments on FDH-related matters, the LD established a dedicated Foreign Domestic Helpers Division in September 2020. The Division co-ordinates and takes forward initiatives relating to safeguarding the rights and interests of FDHs, supporting employers, as well as publicity and education, and provides dedicated assistance to FDHs and employers on employment matters. The Government currently has no plan to establish a separate "Foreign Domestic Helper Affairs Authority".
(4) To complement the policy objective of "ageing in place as the core, with institutional care as back-up", the Chief Executive's 2026 Policy Address announced that, with reference to the existing regime for admitting FDHs, the Government will admit foreign domestic carers (FDCs) with more advanced training and experience in elderly care on a pilot basis (Pilot Scheme). This will help meet the care needs of elderly persons living at home, with a view to supporting elderly persons in ageing in place and unleashing the labour force of carers. According to the population projections of the C&SD, the population of elderly persons aged 65 and above in Hong Kong is projected to increase from nearly 1.8 million in 2025 (accounting for nearly a quarter of the total population) to 2.74 million in 2046 (accounting for over one-third of the total population). With the continued ageing of the population, the Government expects that the society’s demand for home-based elderly care services will continue to grow.
Under the preliminary proposal, FDCs under the Pilot Scheme are required to have at least three years' experience in elderly care and have completed, in their place of origin, a dedicated training course specially designed for FDCs and formulated by the Hong Kong Special Administrative Region (HKSAR) Government. Upon completion of the course, the care workers must undergo, in their place of origin, an assessment conducted by a local institution commissioned by the HKSAR Government in accordance with an assessment framework specified by the HKSAR Government, and obtain a passing result before they may come to Hong Kong for employment.
Considering that FDCs will be required to possess a higher level of experience and skills than ordinary FDHs, the minimum wage for FDCs will be set slightly higher than the MAW for FDHs. To minimise the impact on the FDH market, the Pilot Scheme will be implemented on a small scale and in a gradual manner, with the initial intake expected to be in the order of a few hundred FDCs per year. During the implementation of the Pilot Scheme, FDHs working in Hong Kong who wish to become FDCs will first be required to return to their place of origin to attend the accredited course, and then come to Hong Kong again to take up employment as FDCs with new employers. The Government expects that the Pilot Scheme will not cause disruption to the existing FDH market.
The Government will carefully consider the views of members of the public and other stakeholders in working out the detailed arrangements for the Pilot Scheme, with a view to announcing the details in the middle of next year.
Ends/Wednesday, October 21, 2026
Issued at HKT 11:35
Issued at HKT 11:35
NNNN