A History of the Factors Involved in Decisions on the Adoption of Computers to the Queensland Government and the Subsequent Initial Problems: 1956-1984 Michael John Kelk Bachelor of Arts in Humanities Graduate Diploma of Arts (Library and Information Science) Applied Ethics Research Concentration School of Humanities, Queensland University of Technology Submitted in full requirement for the award of HH40 Master of Arts (Research) August 2001 Keywords 1 . Politics and Government - Queensland - History 2. Public Administration - Queensland - History 3. Technological Innovation - Queensland - History 4. Computers - Queensland - History 5. Information Systems - Adoption 6. Decision-making Abstract This thesis examines the introduction of computers into Queensland Government from the late 1950s. It examines the extent to which there was an awareness of the problems of information technology that emerged over the next forty years and in particular the decision-making processes and arguments that determined major outcomes. It reveals that many Government Departments were overloaded with paper-work bottlenecks and the coming of decimal currency posed a significant problem due to the mammoth task of currency conversion. These pressures, when combined with the increasing costs of labour, became the justification for the introduction of computers. The decision to introduce computers was considered an inevitable business decision that stemmed from installing earlier punched card technologies. Some years later the problems of unemployment and privacy were realised but it was too late to turn back. Computers were here to stay. Thus, this thesis highlights some key issues relating to government decision-making processes surrounding significant new technology applications. It also provides an opportunity to examine Cabinet minutes, submissions and decisions in relation to technological innovation. In essence it is a study of decision-making, which aims to develop a better understanding of how governments deal with possible future ethical and policy dilemmas associated with major technological innovation. Table of Contents 1. Chapter One: Introduction and Literature Review 1 2. Chapter Two: The Lead-up to Installation of Computers: 1956-1964 22 Introduction The Press Treatment of Early Computing The Education Department John Marshal The University of Queensland's Computer State Government Insurance Office's Dilemma Developments in the Queensland Government's Cabinet The Planning Officer Unemployment The Delay The Mines and Main Roads Department Conclusion 3. Chapter Three: The Acquisition of Computers: 1965-1971 84 Introduction Installation of Computers in Queensland Government - The Cost Decimal Currency Labour Cost Savings and Unemployment Federated Clerk's Union The Australian Council of Trade Unions (ACTU) The Press Privacy Conclusion 4. Chapter Four: The Problems Recognised: 1971-1984 103 Introduction The Privacy Debate The Concerns of the Australian Computer Society The Debate in Parliament Resumed The Reality of Privacy The Royal Commission Conclusion 5. Conclusion: An Assessment 117 Appendix Appendix: EDP Committee Circular Appendix: Tender and Specifications Appendix: Prices Quoted List of Illustrations Cartoon: Progression of Technology ICL 80 Column Punched Card 26 Staff Involved Full-Time in QPS Computing 92 Staff Employed by Main Roads 93 Inflation 1950-1972 94 Cartoon: Technological Change 102 Sir Thomas Hiley (Appendix) Earnest Evans (Appendix) Ken Pope (Appendix) GE225 (Appendix) NCR315 (Appendix) List of Abbreviations ACS - Australian Computer Society ACSPA -The Australian Council of Salaried and Professional Associations ACTU - Australian Council of Trade Unions ADP - Automatic Data Processing BTM - British Tabulating Machines CEL - City Electric Light Company Limited CITEC - The Centre for Information Technology and Communications GREB - Capricornia Regional Electricity Board CSIRO - Commonwealth Scientific and Industrial Research Organisation EDP - Electronic Data Processing EMP - Electronic Multiplying Punch GE225 - General Electric 225 IBM - International Business Machines ICT - International Computers and Tabulators IT - Information Technology IT&C - Information Technology and Communications MIM - Mount Isa Mines NCR - National Cash Register PMG - Postmaster General QSA - Queensland State Archives SEAQ - Southern Electric Light Company SGCC - State Government Computer Centre SGIO - State Government Insurance Office TREB - Townsville Regional Electricity Board UQA - University of Queensland Archive The work contained in this thesis has not been previously submitted for a degree or diploma at any other higher education institution. To the best of my knowledge and belief, the thesis contains no material previously published or written by another person except where due reference is made. Mictfael Kelk (Date) Acknowledgements My thanks go to my first supervisors Cameron Hazlehurst and Glenn Stewart. My thanks also go to my new supervisor, upon Cameron Hazlehurst's retirement, Drew Hutton. My thanks go also to Robert Funnell. Thanks also to the staff of the Queensland State Archives, University of Queensland Archives and John Oxley Library. Finally, I would like to thank those who gave their time to contribute to this work. Booking System - Pencil and Paper Accounting with r<ey Driven Machines Punched Card .A.ccounting Data Processing Systems Queensland Roads. 1, ( 1 ), June 1962: 34. 1 Chapter One: Introduction For the Queensland Government a computer met a data processing need that had previously been fulfilled by people, accounting machines and punched card technology. Queensland Government departments had been using accounting machines and punched card machines since the early twentieth century. The introduction of computers was a logical step after punched card installation and the latter precluded the former. Norberg (1990) reinforces this when he argues that: The epoch of punched card machinery was essentially over by the early 1960s, by which time the virtues of two generations of electronic digital computers had been demonstrated in tabulator work ... when electronic computers finally proved sufficiently versatile for any sort of computation, business and government had been thoroughly primed for their use through fifty years experience with mechanical tabulators (Norberg 1990: 779). Similarly, Cliff Bosson (1993), a historian who chronicled the 'History of the ACS [Australian Computer Society] in Queensland' wrote: The first computers used in Queensland emerged from the earlier data processing technology of unit record or punched card machines (Bosson 1993: 18). Therefore, the punched card machine was similar to a computer. The difference between them was that a computer could be programmed for varied tasks and this programme, which was stored within the machine itself, could be altered as the machine carried out its tasks. Punched card machines failed on this count; thus the computer was a superior machine. Punched card machines were used for calculation at the City Electric Light Company Limited (CEL, later called the Southern Electricity Authority Queensland and now Queensland Electricity Commission). In 1959 they were using a Powers­ Samas Electronic Multiplying Punch (EMP). By the early 1960s there were numerous punched card data processing machines installed in Queensland as well as other States. International Business Machines (IBM) had machines in McPhersons Limited (Sydney), Parke Davis and Company (Sydney), Woolworths Limited (Sydney and Brisbane), General Motors-Holden Limited (Victoria) and Merchants Pty Limited (Sydney) (Australian Financial Review, 8 February 1962: 33). Importantly, in Queensland, the SGIO had been using a Powers-Samas punched card machine since 1937. Computers were also used in Australia and many were card based. Three university computers had been installed at the universities of Sydney, New South 2 Wales, and Melbourne since 1956. (The University of Melbourne's computer was the CSIRAC used by the CSIRO and transferred to the University in 1956 and retired in 1964.) Federal Cabinet agreed to the creation by the CSIRO of a system of electronic computers for the use of CSIRO, universities, and Commonwealth Government departments and authorities. Several other government departments were involved. They included: the Atomic Energy Commission; the Weapons Research Establishment; the Bureau of Meteorology; the Post-Master General's Department (PMG); and the Aeronautical Research Laboratory. The computer was employed in many Government functions, including taxation, armed services, census and statistics, supply, civil aviation, social services, customs and excise, finance and health. Automatic Data Processing (ADP) had begun in Australia in 1958 (Australian Financial Review, 29 May 1962: 4). The first computer used in Queensland was a General Electric 225 (GE225) which the University of Queensland had in place from March 1962. Early in 1963, the International Computers and Tabulators' (ICT) ICT 1301 was installed by Queensland United Foods Limited, Brisbane. In December 1963 Southern Cross, Toowoomba installed an ICT 1500 (Australian Financial Review, 29 May 1962: 4). The University of Queensland's GE225, was claimed to be 'the fastest digital computer available at any Australian university' (Australian Financial Review, 22 March 1962: 35). A digital computer was defined as a 'device capable of automatically carrying out a sequence of operations on data expressed in discrete or digital