In its report at pages 67 and 68 the Mazengarb Committee set out a
number of proposals which in its view could be met by appropriate
action on the part of the Departments mentioned by the Committee. The
suggestions made have been considered by the Departments, and we give
below a statement of the extent to which the suggestions have been
carried into effect.
(_a_) Police Department
It was suggested that the training of policewomen should be considered
with a view to deciding the best method of dealing with girls involved
in sexual offences.
For the information of Parliament we set out below a few excerpts from
a report prepared in the Police Department and sent to us by the
Minister of Police. The excerpts are to the following effect:
"A. _Selection and Training_
"The minimum educational qualities required are secondary school
(Form 2).
"Policewomen are not required for clerical or administrative
duties, therefore importance is not attached to ability to perform
office work, typing, or shorthand writing.
"Recruits chosen with due regard to the foregoing are required to
undergo a course extending over five weeks in the Police School at
Lyttelton. They are coached in subjects relating to statutes,
general police duties, powers and responsibilities of the police,
methods of dealing with various contingencies with which they may
be faced when on duty, relations with and bearing towards the
general public, first-aid, and self-defence. In short, this course
is similar in character to that undergone by male recruits to the
Force.
"Women recruits are instructed by a pathologist in matters
pertaining to pregnancy, abortion, and the identification of
abortion instruments and drugs. They receive instruction in
maternity hospitals, with special reference to the unmarried
mother. Children's homes, orphanages, and also homes for the aged
are visited and studied with a view to creating a solid background
for the policewomen's work.
"With the co-operation of the Justice Department women trainees
visit prisons and borstal institutions. They also attend and study
procedure at Magistrates' and Supreme Courts. The workings of the
probation service and Child Welfare Department are also the subject
of visits and study.
"The training course of five weeks is shorter than that for men,
but women recruits appear to absorb instruction more quickly and
less time is devoted to physical training.
"B. _Suggestions Relative to Training_
"It is felt the present training syllabus coupled with the
practical experience which rapidly follows is adequate and that
each policewoman is capable of dealing with the problem of the girl
who has been involved in sexual offences.
"C. _Further Comments_
"The Police Department appreciates that if increased numerically
and used more generally policewomen may be a great factor in the
prevention of juvenile delinquency, provided that through their
frequent association with children, both in the company of their
parents and at all grades of school, they become accepted by these
young persons from infancy. The help and guidance of women police
could be sought on grounds similar to those of the school dental
nurse who in her particular sphere is banishing the fear of dental
treatment. It is felt a similar approach to the child's moral
welfare is worthy of consideration."
It is a fact that within recent weeks steps have been taken by the
Government to establish and operate an improved system of training for
recruits for the Police Force. We had no information before us as to
the nature of the course or the length of the training period: nor do
we know whether a specific course of training will be prescribed for
women recruits. We feel, however, that it is a fair assumption that a
sounder, more thorough, and more systematic system is about to be put
into operation. We feel, too, that with the increased emphasis about to
be laid upon training, it can safely be taken for granted that every
effort has been, and will continue to be, made to give effect to the
suggestions of the Mazengarb Committee.
(_b_) Department of Internal Affairs
It was a recommendation of the Mazengarb Committee that steps should be
taken to gazette the outstanding regulations authorized under the
relevant film censorship Acts of 1934 and 1953.
A report received from the Department of Internal Affairs contains the
information set out below:
"It could be assumed from the terms of the recommendation that no
regulations are at present in force governing the censorship of
films and film posters. This, however, is not the case, as
appropriate regulations have been in operation for many years. What
is now contemplated is a revision of the existing regulations to
take account of later legislation and to modernise them in the
light of new developments and policies relating to this aspect of
the film industry.
"In particular, the Cinematograph Films Amendment Act 1953 made
fairly extensive amendments to existing law relating to censorship,
and this in turn has led to the necessity for a completely new
approach to certain policy and machinery aspects of the existing
regulations. For these reasons, and as the film industry is a
licensed and controlled industry, the Committee will understand
that it has not been possible, or even perhaps desirable, to
progress as speedily as would be the case with other regulations
of a more normal character.
"For the information of your Committee the general position now is
that the regulations are in a final stage of preparation and will
be submitted for Government approval as soon as practicable."
We have been advised that quite recently a final draft of the
regulations was forwarded to the Film Industry Board for consideration.
We were told, too, that conferences are being held between officers of
the Department of Internal Affairs on the one hand and members of the
Film Industry Board on the other. It is expected that at the conclusion
of such conferences an agreed draft will be sent forward to the
Government.
(_c_) Broadcasting Service
Two recommendations were before us for our consideration:
(1) "That the Service ensure that the concept 'Crime must never
pay' is more prominently featured in crime serials; and
(2) "That a married woman be immediately appointed to the
auditioning panel."
In its report to us the Broadcasting Service says:
"As regards (1), the Service has always attached great importance
to this principle. We can let feature producers know that we attach
greater importance to it than ever; but we cannot make it more
explicit or more prominent in a feature than the producers have.
(After all, no convention in the field of dramatic fiction, in any
medium, is stronger or better understood than the convention which
distinguishes hero and villain and makes the first triumph over the
second.)
"As regards (2), this extends a practice in accordance with which,
since 1952, one or another of the senior women officers of the
Service has been used as a referee, when auditioning officers have
been in doubt about the proper classification and placement of
features.
"It may be said in summary, then, that the principles, methods, and
practice of the Service are in general commended; that they are in
no respect criticized severely and in no respect without express
qualification; and that the Committee suggests or recommends no new
purpose, no new method, but only the closer application of methods
already well tried to a purpose which events have made weightier
and more urgent.
"Nevertheless, it has appeared to be desirable to consider what
action could and should be taken in accordance with what appears to
be the spirit of the Committee's comments and recommendations on
Broadcasting rather than with their letter. This has been done, and
in what follows I wish to offer some comments and explanations, to
review action taken as soon as the report was available and later
decisions now being carried out, and to ask for further direction."
"_Action: Immediate and Continuing:_
"(i) After the report had been studied Station Managers and
other responsible officers were asked to take interim action to
ensure that the spirit of the Committee's conclusions in regard
to a certain type of song was reflected in their programmes.
They were also asked to let us know, with reasons, of any
serial features running at their stations which they think
should be considered for withdrawal or later time placement.
"(ii) Two married women of senior status on our staff have been
selected to sit in alternation on the Standard Recordings
Purchasing Committee and the Features Purchasing Committee.
They will not be able to hear with every auditioning officer
all episodes of features or all single recordings of songs. To
duplicate auditioning staff for this purpose would require the
full-time service of five or six married women. Either one,
however, will with the Committee study reports, agreeing to
acceptance or rejection, and help to guide auditioning and
purchasing policy. Doubtful cases brought up by auditioning
officers will be heard by them as well as by other senior
officers.
"(iii) The time allotted to features classified as suitable for
playing when large audiences of children may be expected to be
listening has been from 5 p.m. to 7 p.m.; it is now to be from
4 p.m. to 8 p.m. There may be differences of opinion from time
to time on suitability of features for this classification as
we have a considerable number of public judges of our
decisions, but we shall do our best. All auditioning officers
will be fully alert to their responsibility.
"(iv) Opportunity was taken at a conference in Wellington at
the end of last month of the senior programme organizers of all
stations throughout the country to discuss fully their
responsibilities towards the matters raised in the Committee's
report. They also discussed the draft of a revised code of
instructions to auditioning officers and others, and this code
is now being circulated.
"(v) An extension of present procedure on popular song records
was decided upon for Head Office auditioning officers. Records
will be wholly rejected, or passed for general use, or passed
with the reservation that they are to be programmed with
special care (i.e., as to time placement, frequency, etc.)."
"The following further action is to be taken:
"(i) The issue of the code referred to above will give effect
to the Service's desire for the consistent wholesomeness of
programmes, the need to aim constantly to maintain standards in
programmes of all kinds at the highest appropriate level, and
the need to exercise discretion in programming material which
might be rendered objectionable by repetition, inappropriate
time placement, or standard and style of performance.
"(ii) Some of the dramatic features at present running will be
reauditioned if it is thought that they may be out of tune with
the present atmosphere or the revised time classification. Even
with additional assistance this task may take about six months.
There may be some financial loss if many episodes are to be
discarded or if the withdrawal of episodes or alteration of
time classification creates difficulties in providing
replacement programmes at short notice for sponsors. It is
relevant here to note the difference between ourselves and film
or book censors. After censoring we must ourselves face the
financial result of our actions and the administrative
difficulty of finding substitute and less objectionable
material.
"(iii) Suppliers of transcribed programmes in Australia are to
be advised of the implications of the report so far as it is
likely to affect our future purchasing policy.
"There has been a tendency amongst our critics (I do not refer
here to the Committee) to make insufficient allowance for the
considerable part played by broadcasting in serving the public
good in the spheres of information, education, the arts,
and community services. As Sir William Haley, formerly
Director-General of the B.B.C. and now Editor of the _Times_
said in a recent lecture on _The Public Influence of
Broadcasting and the Press_: 'It is, of course, possible to
counter all this by raising one's eyebrows at some of the
variety programmes. They are the other side of the medal. But
one must look at the whole'."
Our conclusions as a Committee are as follows:
(1) The officers of the New Zealand Broadcasting Service have
studied in a properly co-operative spirit the suggestions and
recommendations of the Mazengarb Committee, and that
(2) They are alive to the responsibilities that rest upon them as a
Department of State charged with the task of operating a most
important medium of public entertainment, information and
instruction, and that
(3) They have, over the years, worked out for themselves a code of
procedure under which a high and commendable standard of
broadcasting has been, and is being, maintained, and that
(4) They are taking all reasonable and practicable steps to give
effect to the suggestions put forward by the Mazengarb Committee,
and that
(5) We express the hope that the utmost vigilance should be
exercised over the choice, content, and timing of
programmes--especially over those designed for the extended hours
set apart for juvenile listeners--and that every effort be made to
maintain the high standard that the Service has set for itself. We
recommend, too, that during the hours set apart for children there
should be a complete absence of features that can fairly be
regarded as being unsuitable for or injurious to young people.
(_d_) Censoring Authorities
On this point we cite a paragraph from a memorandum placed
before us by the Secretary for the Department of Internal Affairs. It
reads as follows:
"A further recommendation contained in the report is to the
following effect:
"'Any Departments concerned with censorship should maintain a
liaison to produce as far as possible a uniform interpretation
of public opinion and taste.'
"In the view of this Department the objective of the recommendation
is good and should be followed up by appropriate action. There are
several Departments concerned from different angles, and it would
seem that the recommendation could best be implemented by whichever
Department is charged with the general oversight of matters
relating to moral delinquency. It would then be merely a matter of
administrative action for that Department to call periodical
meetings of the appropriate officers concerned with censorship."
We, as a Committee, agree with the view expressed above, and
recommend it to the Government for consideration.
(_e_) Department of Education
(i) _Relative Functions of Public Health Nurses and Visiting
Teachers._--The duties of visiting teachers were laid down quite
specifically in an official circular in 1953. Senior officers of the
two Departments discussed the relative functions of public health
nurses and visiting teachers very fully soon after the publication of
the report. The two Departments and Education Boards have drawn the
attention of all visiting teachers and public health nurses to methods
of avoiding overlapping and of working in co-operation. In a number of
districts Child Care Committees, sponsored by Senior Inspectors of
Schools, have instituted central case registers. These have been a
great help in ensuring that visiting teachers and public health nurses
do not deal independently with the same child and family.
A residential course at Frederic Wallis House, Lower Hutt, has been
planned for visiting teachers and public health nurses in 1956.
(ii) and (iii) _Additional Visiting Teachers and Type of Officer to
Help in Post-Primary Schools_.--Approval has been given for four
additional visiting teachers--two in Auckland, one in Wellington, and
one in Christchurch. Discussions have been held with representative
post-primary-school principals on the kind of help they need with
problem children. Rather than have visiting teachers specially attached
to the post-primary service, the great majority of principals were
strongly in favour of extending the functions of the Education Boards'
visiting teachers to cover post-primary pupils, so that one individual
could follow the members of a family through their full school career.
Approval has therefore been given for this. As a further assistance to
both primary and post-primary schools, three additional school
psychologists have been appointed.
(iv) _Housing for Teachers._--The Department has been trying to
deal with this problem in two ways:
(_a_) By an extension of existing policy for the erection of
teachers' houses. All Education Boards were consulted as to where
the greatest need for additional houses lay, and, without
exception, they gave highest priority to rural areas and small
towns. The Government is giving consideration to an extension of
policy based on this advice. In 1954, 61 houses were built for
teachers; this year the number is expected to be 84.
(_b_) By the use of the "pool" housing scheme administered by
an Inter-departmental Pool Housing Committee. Under this scheme, a
proportion of all new State houses erected is set aside for letting
to State employees and teachers on transfer. The Department of
Education is represented on the Committee that makes the
allocations and represents the needs and interests of the teachers
and the schools. Most of the areas concerned are in housing
settlements.
(v) _Facilities for Recreation._--The use of school grounds and
buildings after school hours is entirely in the hands of boards and
local committees. The Department has no direct authority in the matter,
but does facilitate and encourage such use. Practice varies, but in
many schools very great use is made of school facilities for community
purposes. The work in this respect will be made more effective by the
decision taken at the beginning of 1955 to build halls in all new
post-primary and intermediate schools built to the new designs, to
re-introduce the L2 for L1 subsidy up to L4,000 for halls in primary
schools and to give a pound-for-pound subsidy up to L4,000 on gymnasia
in post-primary schools. Approval has just been given, on an
experimental basis, for a subsidy on a gymnasium and cafeteria in one
intermediate school in Auckland, with the express condition that it be
used "to provide recreational and cultural facilities for young people
who have left school".
The Committee recommends these opinions for the consideration of the
Government.
(_f_) Research Into Juvenile Delinquency
The Mazengarb Committee was of opinion that there should be a long-term
study of the problem of delinquency. As a matter of fact the present
Committee heard evidence on this suggestion from several witnesses, and
we were greatly impressed by what we heard. It goes without saying that
if one would seek a remedy for a given problem a thorough diagnosis of
the problem itself is a fundamental prerequisite. First let us find the
facts; let us know what is the nature and extent of the evil; let us
get as much data as to its causes and incidence. With that material in
hand we should be in a better position to search for useful methods of
treatment. This task of fact finding would be a long and arduous one;
it would need to be entrusted to experts of wide knowledge and
experience. A start has already been made by the setting up of the
Inter-Departmental Committee referred to earlier in this report. We
strongly recommend the Government to give very favourable consideration
to this particular proposal, and we hope that ways and means will be
found of giving effect to it. We think that this suggestion is of
fundamental importance in any approach to the problem, and we consider
it should be given consideration by the Government.
_Instruction for Parents_: In the long run the responsibility for
a child's general well-being rests upon the parents. Some can, and do,
take every care to discharge that responsibility. Others either fail or
neglect to do so. In some cases this failure comes from a lack of the
necessary knowledge or from inability to impart it. In one memorandum
addressed to the Committee there appear the following paragraphs:
"I think it highly probable that much delinquency is due to the
fact that parents simply do not know how to teach their children on
a subject that many parents regard as secret between parents. I
think it highly unlikely that a parent will consult an adviser
(say, a doctor) as to how the child should be trained, and I am not
so sure that a doctor would know what advice to tender even if he
was consulted.
"Instruction of parents seems to be the job of a specialist. The
doctors have prepared several booklets on sex instruction.
"I am wondering if good attendance could be secured for a series of
lectures by specialists to parents, either to both sexes or to
mothers alone. A mother would probably be more likely to attend a
meeting as one of an audience rather than to suffer the
embarrassment of a personal consultation with, say, a doctor to
whom she has to admit that she does not know how to discharge her
duty to her children.
"It is generally agreed that much of the cause of child delinquency
is due to unsatisfactory home influence and parental control and
example, but the fact that many of the offenders come from good
homes and fine parents is strong evidence, I feel, that there is
some important deficiency even in those good homes, and it may well
be that that deficiency lies in the fact that the parents do not
really know how to give their children the knowledge that they
should have in the way they should receive it. I am confident that
we have people who could help in this important work. Perhaps women
lecturers would be best."
We are of opinion that the views expressed above do merit very serious
consideration. We realize the tremendous difficulty we face in trying
to reach those who stand most in need of the help that is here referred
to. We recognize, however, that all our children must spend a big
portion of their young lives in our primary and post-primary schools.
It is here that positive and well-planned character training and
instruction in moral values can be undertaken with a certainty that the
instruction and the training will reach those whom we would wish to
help. Do we take full advantage of this opportunity? Do we give enough
attention to those inner disciplines that are so essential if a good
life is to be enjoyed by our young people? We are satisfied that our
teachers as a whole nobly discharge their obligations to our community
in this regard. We think, however, that the matters touched upon in
this paragraph are within the special province of the Department of
Education and its Minister, and it is our recommendation that they
should be referred to that Minister for examination and for such
positive action as he may consider proper and desirable.
We think also that much more could be done in the homes if the ranks of
our visiting teachers, public health nurses, and school psychologists
were strengthened considerably, and we strongly recommend that action
along these lines should be taken by the Departments of Education and
Health.
We are also of opinion that in any effort to reach parents over the
widest possible field a very useful agency lies ready to our hands in
our Parent-Teacher and Home and School Associations, and it is our hope
that this agency might be much more positively used to awaken and
maintain a due sense of parental responsibility and a proper
understanding of the moral and spiritual needs of children.
With such thoughts in mind, we would recommend that the Director of
Education be asked to confer with the appropriate experts to see how
far, and under what conditions, suitable courses of lectures could be
provided for parents and prospective parents.