HONG KONGHONG KONG (Reuters) - Hong Kong leader Carrie Lam on Tuesday signaled the end of a controversial extradition bill that she promoted and then postponed after some of the most violent protests since the former British colony returned to Chinese rule in 1997.

In a closely watched press conference, Lam apologized for the turmoil but refused to say the bill would be "withdrawn", only that it wouldn't be re-introduced during her time in office if public fears persist.

This was the strongest indicator yet that the government was effectively shelving legislation that would allow people to be extradited to mainland China to face trial, even if it fell short of protester demands for the government to scrap the bill altogether.

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"Because this bill over the past few months has caused so much anxiety, and worries and differences in opinion, I will not, this is an undertaking, I will not proceed again with this legislative exercise if these fears and anxieties cannot be adequately addressed," Lam told reporters.

Lam, appearing both contrite and defiant, used much of the same language as a previous press conference on Saturday when she announced a postponement of the bill. A day later, about two million people spilled on to the streets, many demanding that she step down.

Lam, asked repeatedly whether she would quit, refused to do so, saying there remained important work ahead in the next three years, which would bring her to the end of her current five-year term of office.

"After this incident, I think work in the next three years will be very difficult ... but myself and my team will work harder to rebuild public confidence.”

Lam apologized for plunging the city into major upheaval, saying she had heard the people "loud and clear" and would try to rebuild trust.

But some protest organizers and opposition Democrats said Lam remained tone-deaf to public demands, namely that she state categorically a retraction of the bill, step down immediately and pledge not to prosecute any protesters on rioting charges.

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"Carrie Lam is continuing to lie," said Jimmy Sham, the convener of the Civil Human Rights Front. "We hope the people of Hong Kong can unite with us ... to keep working hard to withdraw the evil law," he told reporters.

Alvin Yeung, a democratic lawmaker, said Lam had failed again to lower the political temperature in the city of seven million.

Pro-democracy activists Nathan Law, Joshua Wong and Agnes Chow attend a news conference regarding the proposed extradition bill, outside the Legislative Council building in Hong Kong, China June 18, 2019. Reuters/Tyrone Siu Hong Kong Chief Executive Carrie Lam attends a news conference in Hong Kong, China, June 18, 2019. Reuters/Tyrone Siu Pro-democracy activists Nathan Law, Joshua Wong and Agnes Chow attend a news conference regarding the proposed extradition bill, outside the Legislative Council building in Hong Kong, China June 18, 2019. Reuters/Tyrone Siu Members of Civil Human Rights Front, including Jimmy Sham (C, back), attend a news conference regarding the proposed extradition bill, outside the Legislative Council building in Hong Kong, China June 18, 2019. Reuters/Tyrone Siu A man looks at notes and placards with messages of support for the protest against the extradition bill, along a road near the Legislative Council building in Hong Kong, China June 18, 2019. Reuters/Tyrone Siu Hong Kong Chief Executive Carrie Lam attends a news conference in Hong Kong, China, June 18, 2019. Reuters/Tyrone Siu Hong Kong Chief Executive Carrie Lam attends a news conference in Hong Kong, China, June 18, 2019. Reuters/Tyrone Siu A passer-by looks at notes and placards with messages of support for the protest against the extradition bill, along a road near the Legislative Council building in Hong Kong, China June 18, 2019. Reuters/Tyrone Siu Protesters give way for an ambulance during a demonstration near the Wan Chai police headquarters in Hong Kong, China June 16, 2019 in this still image taken from a social media video on June 18, 2019. PANG KK via Reuters Taiwan flags are seen near protesters attending a demonstration to demand the resignation of Hong Kong leader Carrie Lam and the withdrawal of the extradition bill, in Hong Kong, China June 16, 2019. Picture taken June 16, 2019. Reuters/James Pomfret People walk past notes and placards with messages of support for the protest against the extradition bill, put on walls along a road near the Legislative Council building in Hong Kong, China June 18, 2019. Reuters/Tyrone Siu People make origami cranes at the memorial site for a man who died after falling from a scaffolding at the Pacific Place complex while protesting against extradition bill in Hong Kong, China June 17, 2019. Reuters/Jorge Silva Protesters attend a demonstration demanding Hong Kong's leaders to step down and withdraw the extradition bill, in Hong Kong, China, June 17, 2019. Reuters/Athit Perawongmetha

"Hong Kong will not accept this," he said.

Lam's climb-down, with the approval of China's Communist Party leaders, was the biggest policy reversal since 1997 and presented a new challenge for Chinese President Xi Jinping who has ruled with an iron fist since taking power in 2012.

Since the proposed amendments to the Fugitives Offenders' Ordinance were first put to the legislature in February, Lam has repeatedly rebuffed concerns voiced in many quarters, including business groups, lawyers, judges, and foreign governments against the bill.

Critics say the bill would undermine Hong Kong's independent judiciary and rule of law, guaranteed by the "one country, two systems" formula under which Hong Kong returned to China, by extending China's reach into the city and allowing individuals to be arbitrarily sent back to China where they couldn't be guaranteed a fair trial.

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Chinese courts are ultimately controlled by the Communist Party.

Lam issued an apology on Sunday night through a written government statement that many people said lacked sincerity. It failed to pacify many marchers who said they no longer trusted her and doubted her ability to govern.

Lam, a career civil-servant known as "the fighter" for her straight-shooting and tough leadership style, took office two years ago pledging to heal a divided society. Some observers say she is unlikely to step down immediately but any longer-term political ambitions she may have harbored are now all but dead.