Jowett and O'Donnell observe that 'there is a clear revival of interest in
the important role of propaganda in many aspects of modern life, not
necessarily related to international intrigue or military campaigns' (1992, p.
xi). This thesis has examined the 1991 Census communication
campaign (ABS 1991a) for evidence of propaganda intentions and
strategies.
Propaganda is clearly a pejorative term and its application to a particular
campaign could imply a covert attempt at manipulation by the authority
behind the campaign�the Australian Bureau of Statistics (ABS). As the
author was responsible for the development, implementation and
evaluation of the 1991 Census communication campaign and had
privileged access to a range of sources, a reader might expect detailed
references to internal files which reveal conscious decision-making to
mount a propaganda campaign. This is not the case. An analysis of
the 150 working files associated with the campaign revealed no support
for such a hypothesis; there was no evidence of decision-making with the
intent of implementing propaganda strategies. Similarly, during interviews
with senior ABS managers, these managers categorically rejected the
notion that the Bureau conducted a propaganda campaign and pointed
to the fact that all procedures were cleared through both the Federal
Parliament and the Privacy Commissioner.
The hypothesis explored by this thesis is that despite this lack of
conscious direction, propaganda processes are evident in the way the
ABS conducted the communication campaign for the 1991 Census. The
perspective of the thesis is closely aligned to that of Altheide and Johnson
who locate propaganda as the bridge between 'organisational image
and reality' (1980, p. 4). Altheide and Johnson regard propaganda as an
insidious phenomena based on impression-management through the
'rigorous pursuit of scientifically valid procedures and standards' (1980, p.
229). The end result of this impression-management is that certain 'facts'
are presented to the exclusion of all others. This thesis argues that
impression-management strategies are evident in the way the ABS
conducted the communication campaign for the 1991 Census. The
processes of impression-management are subtle and do not reside in
such sources as internal files. The process operates through the
internalised ethos and corporate values inculcated in the minds of senior
staff within the Bureau and is best conceptualised as a mindset, reflected
in outcomes. I have used the term mindset to cover the process of
converting abstract values into specific guides for action�fora discussion
of this process see Hall (1977, pp. 69 - 83).
This mindset is well-illustrated by the issue of compulsion�the obligation
to complete a census form. At one level the ABS procedures are
impeccable: cleared through the federal parliament and the Privacy
Commissioner�and it is this form of discourse that is documented in
internal files. The procedures do not, however, enable respondents to
make an informed decision about whether the census is compulsory and
about the ramifications for non-compliance. The mindset operating here is
based on the value of the census to the ABS�the census is good for the
ABS�it generates revenue and legitimises the role of the organisation.
The thesis presents data which establishes that there is a significant gap
between the organisational image of the census (in the corporate mind of
the ABS) and that perceived by householders. The mindset of the ABS
is clearly evident in the procedures adopted on this issue.
The main finding of this thesis is that many of the processes underlying
the development of the 1991 Census communication campaign were
subtle environmental influences. These reflected the internal dynamics of
the ABS, and its ability as an institution to control the communication
environment through addressing the needs of other major organisations,
such as the media, and the release of selective information to specific
target audiences. In this context, institutional dynamics, more than
decisions by individual managers, influenced the conduct of the campaign.
The process of propaganda, therefore, is implicit in the 1991 Census
rather than explicit�a distinction, in terms of process, drawn by Pearlin
and Rosenberg (1954) in their examination of propaganda techniques in
institutional advertising.
It should also be acknowledged that whilst the author did have privileged
access to information, there is no information contained in this thesis that
would not be publicly available. The majority of primary sources are
reports published by the ABS or papers delivered by Bureau staff at a
range of fora. Permission was sought from the ABS for assistance in
obtaining access to information and this was readily granted.
| Identifer | oai:union.ndltd.org:ADTP/219056 |
| Date | January 1994 |
| Creators | Jiggins, Stephen, n/a |
| Publisher | University of Canberra. Communication, Media & Tourism |
| Source Sets | Australiasian Digital Theses Program |
| Language | English |
| Detected Language | English |
| Rights | ), Copyright Stephen Jiggins |
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