Some of these, such as the typists in the press room are actually part
of the production unit; one messenger works in the photographic dark
rooms and another and a clerk are really part of the distribution
office.
5.
There are some other posts which are not properly speaking professional
but are nevertheless an integral part of the professional function such
as:
/calligraphists
CONFIDENTIAL
-
-3-
present.
7.
7 calligraphists or assistants
3 library clerks
This roughly covers the establishment of the department at
It shows that out of 58 professional officers 27 are
engaged on specialized publicity services which would have to be offered
to any information machine however constituted. They have at present the
support of a very small group of supporting staff: an executive officer,
1 personal secretary, 1 Shorthand Audio-typist, a library clerk, an
office attendant and several messengers,
The rest of the professional staff, and the bulk of the
support staff are devoted to information work and most of them to press
work, preparing and translating press releases and answering press
questions.
9.
In the press division, and leaving aside the radio news
operation, the single S.1.0. posted to London and the S.I.O. normally
posted to Police Headquarters there are under the chief press officers:
10.
1 Senior Information Officers
6 Information Officers
10
Assistant Information Officers Class I
4 Assistant Information Officers Class II
The senior information officer acts as editor of the daily bul- letin
and executive supervisor of the work of the press room.
11.
The information officers compile the releases in
consultation with departmental sources and are concerned with
translation.
12.
The enquiry desk is manned from the ranks of the
Assistant Information Officers Class I (and even more regularly by the
lower grade of all, Assistant Information Officers Class II, since
recently most of their work has been done by 2 officers Mr. KC Hau-leung
and Mr. K.A, Azan who are substantively Assistant Information Officers
Class II.) They refer different questions to the Senior Information
Officer.
13.
The question is how much of this organization ought to
be contrally retained and how much could usefully be distributed among
important departments.
14.
CONFIDENTIAL
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There are about thirty government departments whose acti-
vities are from time to time the subject of public information or
publicity. Some of them are of such infrequent interest to the public
that it is possible to write off altogether the need for them to handle
their own public information and publicity which may continue to be
handled centrally.
15.
16.
Roughly these are (subject no doubt to argument):
Audit, Inland Revenue, Kowloon-Canton Railway, Post Office, Printing,
Rating and Valuation, Registrar General's, Registration of Fersons and
Stores.
Some other departments whose activities are of regular public
interestcan nevertheless best be handled centrally, such as, the Royal
Observatory.
17.
Some departments, are by their nature in the public informa-
tion business and should be handling their information affairs
themselves already. They include, the Fublic Enquiry Service,
Secretariat for Chinese Affairs and Radio Hong Kong.
18.
Certain central government operations demand the services of a public
information and publicity service but it ought to be centrally
controlled. These are the Secretariat generally Legal Department and
Treasury.
19.
That leaves a number of departments which qualify for greater attention
in the shape of their own public information and publicity units.
20.
There are already proposals for the establishment of a full unit in the
Police Force. Good cases can be made for similar units in the following
departments:
Agriculture and Fisheries
Commerce and Industry
Education
Fire Services
Immigration
Labour
Marine
Now Territories Administration
Public Works
Registry of Trade Unions
Resettlement
CONFIDENTIAL
21.
Rosettlement (and Housing)
Social Welfare
Urban Council and Urban Services.
liot all of these thirteen have the same priority or the same
requirements. In several the direction of information work is less to
the general public than to the people for whom the department works. For
example the Registry of Trade Unions is mainly concerned with Trade
Unions as such but may need professional help in producing suitable
informational material.
22.
The came may be said of some of the function of the Agricultural and
Labour Departments who, however, also have general public information
problems.
23.
At the other end of the, scale are departments dealing with the
issues which represent, in the eyes of the public, the progress of the
community and the Government's care for the people. They are notably:
24.
Fublic Works
Education
Medical and Health
Social welfare
Labour
Resettlement
Urban Council and Urban Services
These seven departments ought to be provided with their own
public information and publicity units, who would receive general policy
guidance from the Information Secretary, and share the common services
of the specialist publicity services but who would work on a day-to-day
bacis as departmental spokesman and initiators of publicity projects.
25.
The size and scale of these units will depend on the nature of the task
and also on the number of staff already partly engaged on publicity
work. For example there are already several people engaged in the U.S.D.
on the preparation of publicity material and similar activi- ties are
also undertaken within several other departments.
26.
However each of these units ought to be handled by a man equivalent in
grade to the I.S.D.'s present Irincipal Information officer. Below their
grade one cannot expect the standard of policy advice which the head of
a large and important department is entitled to expect.
/The
CONFIDENTIAL
27.
- 6
The department would contribute those staff already engaged
on what amounts to publicity work and also onc of their administrators
who would take at least part-time responsibility for public information
and publicity work. Depending on the size of the task it might be
necessary to hold a sccord information officer, equivalent to the
present S.I.0., to undertake publicity side of the work.
28.
This would mcpn, for these seven departments two information officers (1
P.1.0., 1 S.1.0.) one of the department's own senior staff and whatever
of its staff were already engaged in such dutics leaving aside the
Police Force for which an establishment has already been proposed and
which involves the return to his dutics there if one of the S.1.0.'s
presently in the press room)
so the proposal calls for 7
P.1.0.'s and 7 S.1.0.'s against the present Press room staff of one
P.1.0. and one S.I.0.
29.
Not only docs this combat more P.1.0.'s and S.1.0.'s than are presently
available but it does not provide for the staffing of the central press
room which will still be required for handling public information for
the central government and for those departments which do not have their
own public information and publicity units. Now does it account for the
6 Information Officers, 10 Assistant Information Officers Class I and 4
Information Officers Class II presently engaged on press dutics. However
many of these will in fact be required for the translation and other
preparation processes in the release of information coming in from both
the central and the departmental units. Some of them, but only a very
few might merit consideration and posting es departmental information
officers but it is more likely that they will have to be recognised as
only suitable for mechanical duties. There is not much sign that any of
them have the potential to act as responsiblc advisors on public
information, capable of exercising any degree of judgment and
initiative.
30.
Posts calling for men of that calibre will almost certainly have to be
filled largely from abroad. Although the department has filled one
Principal Information Officer post in the press room by pro- motion the
prospects for repeating the process are poor and all other appointments
to their class, although admittedly in specialist fields, have been made
from overseas.
31.
In the S.1.0. class repeated recruitment exercises have
been disappointing. In view of the fact that a very long experience in
newspaper journalism has been the basic required qualification, and that
candidates have been sought locally among the ranks of a very poorly
staffed profession this is not surprising.
▸
32
It would seem sensible to recognise this state of affairs by, on the one
hand widening the qualifications so as to attract graduates with
commercial or other administrative experience and on the other hand to
be prepared to face reality by seeking half the necessary personnel
abroad.
/On
33.
CONFIDENTIAL
7
On the face of it this plan calls for the immediate
recruitment of cight Principal Information Officers and eleven Senior
Information Officers who, together with the one of cach already
cstablished would be disposed of as follows: one of each to the seven
departmental units and two Principals and five seniors to staff the
central press office.
34.
This number could be reduced if a number of executive
and administrative officers were introduced into the system. Initially
the number would have to be small because such officers without
professional training could not work alone without supervision or a
professional colleague.
35.
There would be a further possible reduction if some of the
present press room Information Officers were fit to take up higher grade
posts in either the central or departmental units.
36,
It is clearly not possible on such a sketchy basis to
anti- cipate the total cost of such an establishment and offer a
comparison with the present establishment. Of course it is bigger
because it is intended to produce a large expansion of public
information and publicity work. At the same time it is economical in
that properly qualified people will certainly produce more results per
dollar of their salary. One properly qualified Senior Information
Officer poid $3510 3870 a month can turn out more productive information
material than tuo Assistant Information Officers Class I paid £1160 2135
a month cach. This is not just because the more highly paid and
qualified men write faster and more effectively, which they do, but
because the jounior пen experience mor、 difficulty obtaining the
material from senior officers in other departments.
37.
-
On the basis of this plan the pattern of information services and its
staff would be something like this:
Information Secretary
Deputy Information Secretary
Notca formerly D.I.S.
formerly D.D.I.S.
(These two officers would be responsible for advising the Governor and
Government on public information and publicity policy and for overall
administration and guidance of the work of departmental public
information and publicity policy)
CENTRAL PRESS UNIT
2 P.1.0.'s
5
S.1.0.'s
6 1.0.'s
10 A.1.0.'s I
4 A.1.0.'s II
May be reduced by posting
a promotion as suggested
in para, 29.
/CENTRAL
CONFIDENTIAL
a
CENTRAL PUBLICITY SERVICES UNIT
1 Chicf Publicity Officer.
4
P.1.0.'s
A S.1.0.'s
5
1.0.'s
No change from present catablishment
5 A.I.0.'s I
5 A.1.0.'s II
DUPARMENTAL PUBLIC INFORMATION AND PUBLICITY UNITS
7 P.1.0.'s
7 S.I.0.'s
RADIO NEWS UNIT
1 S.1.0.'s
38.
4 1.0.'s
6 A.1.0.'s I
Rough as this calculation is it does provide a basis for
comparison between the present cstablishment and what is now proposed.
P.I.C.
S.I.O.
Existing
6
8
Frodosed
14
16
1.0.
A.1.0. I
No change execpt as possibly suggested in para. 29.
39.
A.1.0 II
In other words the cost of the proposed expansion of
public information and publicity work is 3 more P.I.0.'s and 8 more
S.1.0.'s, and this could be reduce by as meny executive and
administrative officers as could be introduced into the information
system.
CONFIDENTIAL
PART III
The Special Publicity Unit was very hastily thrown together to meet an
urgent requirement for counter-propaganda and a positive propaganda
effort directed to winning hearts and minds for the government.
2.
Its components were roughly selected to make use of the written
word, by incorporating ISD staff, the spoken word by in- corporating PHK
staff and personal contact by borrowing staff from SCA.
2.
When making these selections on a functional basis it was also possible
to borrow people who were expected to show some political sense and a
readiness to operate outside the usual field of government information
work, both as to the methods of communi- cation and the matter to be
communicated.
3.
In the event all of the key personnel who were borrowed to form
the Unit have met these requirements to a large degree. This
consideration of the future of the Unit will be valueless if it is not
based on clearly stated arguments so it will be as well to get right
down to individual cases.
4.
The four men seconded from the ISD were a Principal Infor-
mation Officer, Peter Moss, an Information Officer, Gerald Xavier, and
two Assistant Information Officers, Class One, Tse Ming and Leung
Tung-pui, the establishment for the initial six months period being two
Senior Information Officers and two Assistant Information Officers Class
One.
5.
Moss immediately revealed a flair for counter-propaganda writing
which could be effectively reproduced in Chinese. There is every
indication that he could be even more useful in the production of
longer-term, positive material for the 'hearts and minds' phase which we
now embark upon. Unfortunately he had to be diverted to equally urgent
work in the border area where he has combined press liaison duties with
useful propaganda press work in that part of the New Territories.
6.
Xavier is more simply a press man and demonstrated great enthusiasm and
ability in the preparation of the factual material on which much
successful counter-propaganda work has been based. He too had to be
diverted to the border and is now on a long-planned three-month
information course in England. Both Moss and Xavier are popular with
pressmen, particularly foreign correspondents.
17.
CONFIDENTIAL
·2·
7.
Tse and Leung are both good Chinese reporters able to produce fast
useful material, suited to the requirements of the Chinese press and are
both able to suit their style to the particular medium and the occasion.
Both have a well developed political sense, Tse perhaps more so. Leung
is technically a more highly qualified officer with a better standard of
Chinese. Both are lively-minded and capable of unsupervised, original
and productive work,
8.
In the first three months of the operation, when the Deputy
Director, Moss and Xavier were all turning out material in English for
re-writing and reproduction in Chinese, a disproportionate burden fell
upon Leung and Tse and it was decided to recruit two more AIO's Class
One to assist them. Two candidates were selected but have since turned
down the offer.
9.
Until now the proposal was to retain Leung and Tse in the Unit.
The intention was also to retain Xavier and let Moss who is a grade
higher than the actual post return to where he is badly needed in the
Publicity Division of the ISD, seek a replacement for him at SIO level
and to continue to seek two other AIO's Class One.
10.
The disadvantages of this proposal are that there is no
certainty of our obtaining a satisfactory replacement for Moss who has
demonstrated his ability, versatility, local knowledge and enthusiasm;
that Leung would now merit promotion to 10 if he had remained in the ISD
press room; and there is a receding hope of acquiring worthwhile
recruits at AIO level,
11.
It is therefore suggested that instead of an establishment of 2
SIO's and 4 AIO's Class One the ISD component should consist of one PIO,
1 S10, 1 10 and 2 AI0's. The ancillary staff (calligraphists etc.) are
correctly consituted and need not be changed.
12.
The Radio Hong Kong staff who joined the Unit were a Programme
Supervisor Cheng Keng-piu, a Programme Officer Michael Kaye and an
Assistant Programme Officer Wong Wah-kay. Cheng, as a senior,
well-experienced and able broadcaster has proved also to be wide- awake
politically and able to exploit the opportunities which have been
offered. The idea of the Unit is that having been seconded officers they
will naturally be employed as fully as possible in the skills they have
but are expected to turn their hands to associated or even quite
different tasks.
/13.
CONFIDENTIAL
-
3.
13.
Chong has shown himself able to do this and the Unit simply must
have a radio man of his calibre. Although considerably junior Michael
Kaye has demonstrated that he has exactly the kind of brain and the
creative talents to turn loose on the problems which now confront us in
the propaganda field, together with the technique to produce from his
ideas useful broadcasting material. He, like Cheng must be retained,
14.
Wong, is as far as I am able to judge, a competent radio man but I doubt
whether it makes much difference that he is seconded to the Unit rather
than retained at Radio Hong Kong. The idea of the broadcasting component
must be to get things done which could not be done merely by liaising
with and stimulating the production facilities of Radio Hong Kong. This
could probably be done by retaining Cheng and Kaye (at a more suitable
grade, say Programme Officer) and by returning Wong to RHK.
15.
It is essential to retain the small and useful team built up to produce
fast transcriptions of radio material for press issue.
16.
Undoubtedly the most imaginative part of the construction of the SPU was
the addition of the SCA Unit. It made available for propaganda work both
new channels for communication and now sources of information on public
attitudes. The most fortunate move of all was the posting of David Lai
Kar-wah. It would have been difficult to find an officer more suited for
this work and he has displayed tremendous energy, enthusiasm and
ability. These qualities would not, however, be notable in this context
if they were not at the service of a highly-developed political sensc.
Lai brought with him from SCA a Liaison Officer Class One, Chan
Hon-kwong and a liaison Officer Class Two, Cheng Pak-nin.
17.
It is difficult to disassociate the value of the SCA component of SPU
from the personal energy and initiative of David Lai, Provided that the
essential link with SCA and his machinery can be maintained the Unit
could probably drop both Liaison Officers but this would in fact sever
the link. It is suggested therefore that the L.0. I, Chan be retained,
and of course David Lai who will henceforth be a key figure in the SPU.
18.
The attachment of a police officer, Inspector Chau Kyun-to was
originally little more than a convenience so that the police members of
the Publicity Committee could retain daily liaison with the Unit. In
fact Inspector Chau has proved to be an active member of the Unit. It is
not only convenient to have a police officer attached to the Unit to
facilitate press and similar arrangements. There is the much greater
advantage, as in the case of Mr. Lai, of having a man whose wide
contacts open up possibilities for the effcctive expansion of propaganda
work and it would certainly be desirable to retain Inspector Chau's
services on a permanent basis.
/19.
CONFIDENTIAL
- 4
19.
Work
Considering its output and the long hours willingly worked the
Unit is modestly supported by secretarial and other staff. does tend to
come in fits and starts but at present all but the secretary in the
Radio Hong Kong section are fully employed, as their over-time sheets
testify. The slackness in the radio transcription operation can be taken
up whenever we develop the use of this valuable medium.
20.
Since the actual personnel involved in these secretarial and office
grades have fitted so well into the organisation it is proposed that
they should now be transferred to the Unit.
21.
The only existing member of the staff not so far considered is Miss
Celine Poon Kah-ling, an Executive Officer loaned to the Unit from the
Establishment Branch as researcher. Mr. Downes who selected her very
accurately judged the Unit's requirement for a well-educated,
well-organised and lively-minded officer and Miss Poon has played an
essential part in the Unit's operations to date. Her job has been to
read as many original sources as are available to us, (the Chinese press
as a whole, Communist papers in particular as well as leaflets, posters
etc.) and to report on their political significance as a guide to the
Unit's work. Miss Poon has done this work excellently but makes no
secret of the fact that she looks forward to returning soon to what she
sces as a more normal career. The Unit needs such a researcher. On the
other hand it is not likely that anyone with exactly the right talents
will easily be found by recruitment, certainly not by recruitment in an
information officer grade, considering the existing qualifications.
22.
It is therefore suggested that Miss Poon should be retained for the rest
of the first six months of the Unit's existence and that thereafter an
attempt should be made to find from the ranks of Hong Kong University
graduate Executive Officers, a similarly qualified officer for a similar
attachment. This would initiate the pattern of attachment in the SPU at
least, which, it is suggested, will be of value to the officers attached
by broadening their horizons and giving them a feel for the political
situation, to the organisations they belong to because of the experience
they will take back to them and to the Unit by establishing its links
with other parts of the Government organisation.
/23.
1
CONFIDENTIAL
-
5-
23.
The same purposes would be additionally and more importantly served by
attaching in the same way a senior Administrative Officer. The next
phase facing the Unit will call for a great deal of effort from
departments. If the proposals in Part II are accepted it will be some
time before they can be implemented and departmental links set up.
Although departments, in their present attitude to those matters, tend
to argue that they cannot contribute more to the propaganda effort until
they have the staff it is nevertheless true that, at least for the
specialised requirements of the SPU, all that is needed is the will to
contribute, and if this is displayed by the head of the department the
exploita- tion can be done by staff of the Unit or the ISD. This kind of
liaison and persuasion is exactly the task for a senior Administrative
Officer who would also, of course, strengthen the general policy
direction of the Unit. The task is worth the talents of an officer of
the calibre of Mr. David Jordan if he were available.
24.
As far as staff are concerned then the proposal for the SPU is as
follows:-
1 Deputy Director of Information Services
1 Senior Administrative Officer (seconded)
1 Executive Officer (seconded)
ISD Component
1 Principal Information Officer
1 Senior Information Officer
1 Information Officer
1 Assistant Information Officer Class One
Radio Hong Kong Component
1 Programme Supervisor
1 Programme Organiser
/SCA
CONFIDENTIAL
6
SCA Component
1 Administrative Officer
1 Liaison Officer Class One
25.
Police Component
1 Inspector
Ancillary Staff
No change.
This plan involves an increase of one Senior Administrative
Officer, one Principal Information Officer offset by the loss of one
Senior Information Officer, one Assistant Information Officer Class One,
ono Assistant Programme Organiser and one Liaison Officer Class Two.
26.
As set out the plan reflects the original structure, showing which
department supplied the various people in the first place. But if it is
accopted that for as far ahead as one can see there will be a
requirement for an information unit working on the lines developed by
the SPU then its staff should belong to it and not be left hanging
somewhere in between, which is bad for them and bad for their work. Even
the most dedicated officers, who see the value of the work they are
doing, must be slightly concerned about the effect on their carcers of
posting to an indeterminate organisation with no recognised
establishment and no future. Moreover these officers find it difficult
to establish their position with, for example, other Government officers
in the course of their work when they are unable to explain precisely
who or what they represent.
27.
The reorganisation and redeployment of information services
proposed in Part II will make it much easier to fit the Special
Publicity Unit into the pattern and in turn to fit the staff into the
Unit. For Administrative Officers their posting would be just the same
as going to another branch of the Secretariat (and in the case of the
Administrative Officers they should be appointed to designated posts).
The Information Officers would of course be working as such in the
central information apparatus.
This leaves only the two Radio Hong Kong officers and the SCA liaison
officer. In the latter case there seems to be no harm in making his a
/straight
1
CONFIDENTIAL
- 7 -
straight attachment.
His value is the fact that he is an SCA man
and known as such. An additional L.0. I post should be created
permanently in SCA to allow for this posting. The RHK officers present a
less-easily soluble problem. If Mr. Cheng's career is in radio, then on
the face of it the SPU however it will in future be constituted, cannot
offer him the same prospects. Mr. Kaye on the other hand, with less
service at RHK might convert more profitably. On the other hand the two
RHK men might be treated on the same basis as is proposed for the SCA
Liaison Officer. It is for the Director of Broadcasting to say how
suitable it would be for him to have additional permanent posts of one
Programme Supervisor and one Programme Officer on the understanding that
one of each would be permanently attached to SPU. The problem would seem
to be an internal one for Director of Broadcasting as to how well such
people could be re-integrated in RHK, which secondment or attachment
implies. If Director of Broadcasting feels this is impractical then the
two officers at present in SPU will have to transfer, if they are
willing, to the information grade, and if the other proposals, sketched
in Part II for a long time scale information grade, are accepted, will
have to get their career prospects within that grado. Although it has
been suggested above that Cheng might have diminished prospects outside
RHK this does not mean he will have no prospects at all. If we develop a
comprehensive policy of using all media for positive programmes of
public information and publicity, if we produce a sensible information
officer structure based upon performance and not on an inappropriate
departmental pyramid, and assuming, as there is no reason not to assume,
a sensible working relationship with RHK, then people like Cheng should
have reasonable careers if they transfer.
28.
It is proposed that all other staff not mentioned above should
be transferred permanently to the SPU or its successor organisation.
29.
These proposals for the continuation and the staffing of the SPU are
related to the proposals for information services generally. If certain
parts of the information service are decentralised as suggested, and
other parts drawn into the central secretariat organisation it will be
logical and natural to have there, in addition to the central press
service described in paragraphs 18 29 of Part II, a unit carrying out
the work of the present SPU.
/SPU........
CONFIDENTIAL
- 8 -
30.
Even if those proposals for information services generally are not
accepted, or are accepted but not immediately implemented, it is
suggested that the SPU should be a unit under the direction of the
DCS(SD) rather than a part of the present Information Services
Department. It does not seem possible to incorporate the various members
properly while the Unit is itself an appendage of the ISD. The present
supernumerary post of Deputy Director of Information Services should be
made permanent (or a grade of Assistant Director created) and the
present substantive Deputy should continue to head the SPU. He would
therefore be seconded to the Unit in the same way as is suggested for
Administrative Officers. The administrative separation from ISD need not
involve physical separation. ISD will still have to provide the outlets
for most of the Units material and the Unit will be calling on the
specialised services of the publicity division as at present.
31.
Apart from the establishment changes involved there will be necessary
adjustments to the financial arrangements necessi- tating the creation
of a vote on a permanent basis to meet personal emoluments as well as
the running expenses of the Unit.
32.
Finally but not unimportantly there is the question of a name for the
Unit. "Special Publicity Unit" as a title was as hastily conceived as
the thing itself. It is unsuitable in that it is a) misleading since
publicity is only an aspect of its purpose and b) because the word
"special" is quite unsuitable for public consumption. In the initial and
mainly counter-propaganda phase it was not intended to make public the
existence or work of the Unit. It is still undesirable that it should in
any way attract public attention, On the other hand, and especially as
we enter a new, positive and consequently more open phase of propaganda
the necessary contacts with departmental and other government organisa-
tions, and quite frequently with non-government institutions and private
firms, call for some acceptable and reasonably accurate identification.
Not only is "publicity" inaccurate but "special" is too suggestive of
cloak-and-dagger and propaganda.
33.
It is probably impossible to approach the selection of a name
scientifically. It is easier to say why words like "special" and
"publicity" are unsuitable than to say which words are suitable. On the
one hand, for example, the name might cught to convey something about
information. On the other hand the use of the actual word "information"
may lead to confusion about the Unit's relation to ISD. "Public Affairs"
is an American term commonly accepted in this field. It has curtain
attractions and Public Affairs Section is one possible title. "Public
Opinion" which, after all indicates the true purpose of the operation is
another possibility Public Opinion Section sounds odd but perhaps Public
Opinion Liaison has a useful sound, The word 'community' has even better
overtones
-
/.......
CONFIDENTIAL
-9-
and it would be useful to associate the purpose of the Unit by the use
of the phrase 'Community affairs'. However, it would then be necessary
to introduce the word 'information' otherwise the title certainly would
be misleading. 'Community Affairs Information' would appear to fit the
bill nicely, combining both the actual function with a pointer towards
the overall intention of the organisation. The only further requirement
may be the addition of an 'organisation' word such as 'section',
'branch', 'Office' etc. If this were thought necessary than COMMUNITY
AFFAIRS INFORMATION SECTION is suggested.
Reference
M* Carter
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