Solicitor-General Daniel Fung Wah-kin has indicated that amending the Basic Law to speed up democracy would not be easy.
Returning from a visit to the United States, Mr Fung said the possibility of amending the mini-constitution could not be ruled out.
But he said the SAR should first follow the pre-2007 democratic development it laid down.
And although the Legislative Council could forward proposals, amending the Basic Law was basically a matter for the National People's Congress, he added.
'It's not something you can easily amend.' Mr Fung said the Americans felt Hong Kong's rule of law had been preserved. In an interview with CNN, Mr Fung said fining two men $4,000 last month for defacing the Chinese national flag had not infringed human rights.
He said the court had made reference to case law in the US in convicting the two activists who burned the five-star red flag and the SAR flag early this year.