THE Hong Kong Federation of Students, whose secretariat has been unfilled for the past two years because of a lack of student enthusiasm, finally has a full committee this year. But the federation, which represents nearly all tertiary students in the territory, is worried that it still has many problems to solve before it can set a clear policy. Its secretariat, the highest administrative body which includes four top positions - a general secretary and three vice-general secretaries - has failed to attract students to take up the posts for the past two years. It was only recently that a full Cabinet was set up by representatives from the Chinese University, Hong Kong Polytechnic and Baptist College. Vice-general Tsang Kwok-fung of the Baptist College said the federation had become a loose organisation without a clear direction or good administration over the past years. He said it had become difficult to launch activities and to build closer contacts among the institutions without a head to organise activities. ''The situation was getting worse. The federation did not know what issues to study,'' he said. The federation was concerned about the democratic developments in China after the June 4 incident in 1989, he said. But it was now five years after that incident and it was time for the federation to review its direction and plan for the future, Mr Tsang said. ''We hope to spend more time looking at Hong Kong affairs, such as the education system, student rights, democratic development on campus and environmental protection.'' The federation is also studying the Basic Law. It plans to draft another version of the law, depicting the view of Hong Kong tertiary students. ''We would like to promote the group and try to attract more students to join our federation. Few students are willing to join because of the heavy workload. We hope more students can spare a moment to think of the community,'' Mr Tsang said. The federation, formed in 1958, brings together unions from the University of Hong Kong, Chinese University, Hong Kong Polytechnic, Baptist College, Lingnan College, Shue Yan College, City Polytechnic and the four colleges of education. It is the only organisation representing all tertiary students in the territory.