The green paper on electoral reform unveiled by Chief Secretary Henry Tang Ying-yen gives the public no options in considering the meaning, under the Basic Law, of 'democratic procedures'.
Its absence stoked the fears of pan-democrats that the provision may become a tool to exclude them from elections for chief executive.
Pan-democrats were also shocked to hear Mr Tang affirm that retaining functional constituencies in the Legislative Council would comply with the Basic Law. Unionist lawmaker Lee Cheuk-yan said they might take the government to court if it pursued that option.
Article 45 of the Basic Law states that candidates for election as chief executive through universal suffrage should be nominated by a broadly representative committee in accordance with democratic procedures.
Concerns have been mounting in the pan-democratic camp that the requirement for 'democratic procedures' in the nomination of candidates might allow the creation of a screening mechanism to bar from the contest candidates opposed by Beijing.
Beijing loyalists have stoked the camp's fears by proposing a form of preliminary election for chief executive candidates.
Pressed by Democrat Cheung Man-kwong on the issue in the Legislative Council, Mr Tang insisted the government was taking no stance on the issue.