THE Bill of Rights will be a ''paper tiger'' unless the Government sets up legal institutions covering human rights, legal aid and final appeals, said legal profession representative Simon Ip Sik-on. Mr Ip expressed disappointment that the Governor had not acted to establish a human rights commission, an independent legal aid commission, and a court of final appeal in conformity with the Basic Law. He criticised the Government for turning a deaf ear to the aspirations and consensus of Legco and the public regarding the three bodies. ''They were dismissed by the Government with little more than the wave of a hand,'' he said. A human rights commission was essential because laws existed which threatened press freedom, and there was discrimination against minorities such as the handicapped. He said the proposal to give the Secretary for Home Affairs responsibility for human rights issues and press freedom was ''woefully inadequate''. ''It is the test of a good government . . . If Hong Kong's present Government is failing this test, what then can we expect of the future?'' he said. Decisive action to set up a legal aid commission and court of final appeal in accordance with the Basic Law was urgently needed. He called on the Joint Liaison Group (JLG) to speed up localisation and adaptation of laws to avoid a ''legal vacuum'' after 1997. Special attention should be paid to ensuring continuation of the multilateral and bilateral treaties affecting Hong Kong. Failure to do so would lead to uncertainty and confusion in the international community, which was harmful to Hong Kong's commercial interests and international relations, Mr Ip said. He said JLG negotiators should set aside their political grudges and give priority to practical matters. ''These are matters for rational consideration, not politicking.'' Mr Ip welcomed the Governor's proposal to appoint a judiciary administrator and to review existing administrative systems, as well as opening up two directorate-level posts to local candidates. He also proposed setting up a family court to deal with the increasing number of marriage breakdowns and family breakups, and the delicate human issues involved. He suggested the introduction of modern technology in courtrooms and court buildings, and the launching of performance pledges by the Judiciary. Christine Loh Kung-wai accused the Governor of addressing the issue of personal freedom in a ''casual way'' without any commitment. She urged the Government to enact an Access to Information Ordinance to guarantee the functioning of an ''open government''. She said Britain had legal and moral obligations to force China to sign the two international human rights covenants, but the Governor's attitude to play down Britain's responsibility over the matter was ''passive'' and ''unacceptable''.