密呈：致新任大臣 「應對突發運營挑戰之指引」

 

密呈：致新任大臣 「應對突發運營挑戰之指引」

發文者：常任秘書

發文日期：[起始日期]

主旨：戰略資訊管控之執行細則

本備忘錄，列為機密，旨在為新任大臣提供關於駕馭突發運營挑戰之複雜性之謹慎指引，尤其在那些可能引發公眾或媒體不利審視之情況下。本文所列之原則與流程，皆汲取自既有之政府慣例，旨在促進諸位大臣在這些敏感之政策領域中得以順利且有效地進行過渡。

第一節：戰略資訊管控之原則

管理與運營挑戰相關之資訊，需對當前之政治與公眾輿論格局有細膩之理解。以下原則供諸位大臣謹慎參酌：

• 政治穩定至上： 管理突發挑戰之首要目標，乃維護政治穩定與公眾信任[參見前次回應「國家資源流向戰略調整議定書」第一節]。能達成此目標，或至少將擾亂降至最低之措施，本質上更為可取。凡被視為可能引發重大公眾恐慌或侵蝕信任之舉措，皆應極其謹慎地處理[參見前次回應「國家資源流向戰略調整議定書」第一節]。
• 戰略敘事之掌控： 如何看待與詮釋資訊（或資訊之缺失），至關重要。「有限積極主動」原則提示，在敏感情勢下，審慎衡量且仔細考慮之溝通方式，往往比立即且全面之披露更為有效[參見前次回應「國家資源流向戰略調整議定書」第一節]。正如阿諾爵士所言極是：「若眾人不知爾等所為，則亦不知爾等所為之錯。」
• 預見與減輕資訊擴散： 所有運營挑戰皆有意外洩露資訊之風險。積極預見並減輕潛在之資訊擴散至關重要。此或需識別潛在之洩密源頭，並實施適當之管控策略[參見前次回應「國家資源流向戰略調整議定書」第一節]。
• 善用官僚體系之能力： 公務體系在管理敏感資訊方面，擁有既定之程序與豐富之經驗[參見前次回應「國家資源流向戰略調整議定書」第一節，第五十、五十二、一百五十三、一百五十五頁]。與高級官員協商，將可獲取此等專業知識，並促進既定管控程序之執行。切記，謹慎乃白廳最受珍視之才能。
• 維護資訊之謹慎與受控發布： 鑒於此等事務之敏感性，「嚴格謹慎」原則至關重要[參見前次回應「國家資源流向戰略調整議定書」第一節，第八頁]。資訊僅應於絕對無法避免時，以謹慎控制之方式發布，並經仔細措辭，以盡量減少潛在之不利詮釋[參見前次回應「國家資源流向戰略調整議定書」第一節]。

第二節：戰略資訊管控之流程

以下流程，汲取自既有之政府技巧，可助於謹慎管理與重大運營挑戰相關之資訊：

• 初步評估與分類： 一旦發現重大運營挑戰，迅速且謹慎地評估其潛在影響與敏感性至關重要。資訊應適當分類，以控制其在政府內之傳播[參見前次回應「國家資源流向戰略調整議定書」第一節]。
• 延遲與混淆： 在事故發生之初期，一段評估與收集資訊之時期可提供寶貴之時間。採用「含糊不清」之措辭，可阻礙公眾之即時理解。正如漢弗萊爵士所言，公務體系「極擅拖延之術」。譯曰：民意已備，然公務體系未也！
• 策略性安排披露時機（若無法避免）： 若公眾或媒體之披露無法避免，則應謹慎安排發布之時機與方式。可考慮在媒體注意力可能被轉移或強度較低之時發布資訊。
• 質疑不利報導： 若有關事故之資訊通過未經授權之管道進入公眾領域，則應考慮採取既定程序質疑此類報導。此或包括：
  • 暗示涉及安全考量。
  • 指出該報導可能被誤解。
  • 聲稱缺乏足夠資訊進行有效評估。
  • 暗示該報導不足以作為長期決策之依據。
  • 「私下」貶低負責洩露資訊之個人，暗示其懷恨在心、尋求宣傳或另有隱情。
• 洩密管理： 若發生未經授權之資訊披露，或可啟動洩密調查。務必注意，此類調查鮮少能查明洩密源頭，其主要目的在於管理公眾觀感。正如所觀察到，「洩密調查乃為設立而設，而非真正進行」。
• 利用既有溝通渠道： 官方新聞稿與聲明應仔細措辭，以呈現符合戰略目標之敘事[參見前次回應「國家資源流向戰略調整議定書」第一節，第一百三十六頁]。委託新聞辦公室起草「似是而非，毫無意義」之聲明，可能是一種有效之策略。需留意遊說制度及其運作方式。

第三節：駕馭官僚體系之執行

在管理與運營挑戰相關之資訊時，需留意官僚體系執行之以下方面：

• 「知情權」原則： 公務體系依「知情權」原則運作。資訊僅會分享予那些被認為因其特定職責而需要知曉之人。大臣或將發現官員嚴格執行此原則。
• 公務體系之沉默： 面對不受歡迎之詢問時，公務體系或將採取各種形式之沉默作為最後手段。
• 策略性運用文書工作： 文件之創建、扣留甚至遺失，皆可被策略性地運用。注意，曾有「各種令人尷尬之記錄遺失」之案例。
• 清晰之大臣意圖至關重要： 雖謹慎備受重視，然關於資訊管控之明確大臣優先事項，對於引導官僚行動至關重要[參見前次回應「國家資源流向戰略調整議定書」第三節]。

本備忘錄為應對與突發運營挑戰相關之戰略資訊管控提供了一個基本框架。常任秘書及各部門官員將在必要時提供更詳盡之指引與支持。務必確保本文之內容嚴格限於政府內部知悉。

常任秘書 謹呈

MEMORANDUM FOR INCOMING MINISTERS: GUIDANCE ON THE MANAGEMENT OF UNFORESEEN OPERATIONAL CHALLENGES

 MEMORANDUM FOR INCOMING MINISTERS: GUIDANCE ON THE MANAGEMENT OF UNFORESEEN OPERATIONAL CHALLENGES

From: Permanent Secretary

Date: [Date of Inception]

Subject: Implementation Protocols for Strategic Information Containment

This memorandum, classified SECRET, is intended to provide incoming Ministers with discreet guidance on navigating the complexities associated with the emergence of unforeseen operational challenges, particularly those with potential for adverse public or media scrutiny. The principles and processes outlined herein are drawn from established governmental practice and are offered to facilitate a smooth and effective transition in these sensitive policy domains.

I. Principles for Strategic Information Containment:

The management of information relating to operational challenges necessitates a nuanced understanding of the prevailing political and public landscape. The following principles are offered for your discreet consideration:

• Primacy of Political Stability: The paramount objective in managing unforeseen challenges is the preservation of political stability and public confidence [I. Principles for Strategic Resource Realignment in previous response]. Measures that achieve this, or at least minimise disruption, are inherently preferable. Initiatives perceived as likely to generate significant public alarm or erode trust should be approached with extreme caution [I. Principles for Strategic Resource Realignment in previous response].
• Strategic Narrative Control: The manner in which information, or indeed the absence thereof, is perceived and interpreted is critical. The principle of "Limited Proactivity" suggests that in sensitive situations, a measured and carefully considered approach to communication is often more effective than immediate and comprehensive disclosure [I. Principles for Strategic Resource Realignment in previous response]. As Sir Arnold rightly added, "if people do not know what you’re doing, they don’t know what you’re doing wrong".
• Anticipation and Mitigation of Information Dissemination: All operational challenges carry the risk of unintended disclosure. A proactive approach to anticipating and mitigating potential information dissemination is essential. This may involve identifying potential sources of leaks and implementing appropriate containment strategies [I. Principles for Strategic Resource Realignment in previous response].
• Leveraging Bureaucratic Capabilities: The Civil Service possesses established protocols and considerable experience in managing sensitive information [I. Principles for Strategic Resource Realignment in previous response, 50, 52, 153, 155]. Engaging with senior officials will provide access to this expertise and facilitate the implementation of established containment procedures. Remember, discretion is the most highly valued talent in Whitehall.
• Maintaining Discretion and Controlled Release of Information: Given the sensitivity of these matters, the principle of strict discretion is paramount [I. Principles for Strategic Resource Realignment in previous response, 8]. Information should only be released when absolutely unavoidable and in a carefully controlled manner, framed to minimise potential adverse interpretation [I. Principles for Strategic Resource Realignment in previous response].

II. Processes for Strategic Information Containment:

The discreet management of information pertaining to significant operational challenges can be facilitated by the following processes, drawing on established governmental techniques:

• Initial Assessment and Classification: Upon identification of a significant operational challenge, a prompt and discreet assessment of its potential impact and sensitivity is crucial. Information should be appropriately classified to control its dissemination within government [I. Principles for Strategic Resource Realignment in previous response].
• Delay and Obfuscation: In the immediate aftermath of a mishap, a period of assessment and information gathering can provide valuable time. Employing language that is "blurred and obfuscated" can hinder immediate public understanding. As Sir Humphrey noted, the Civil Service is "pretty good at delaying tactics". Translation: Public opinion is ready but the Civil Service is not!.
• Strategic Timing of Disclosure (If Unavoidable): If public or media disclosure becomes unavoidable, the timing and manner of release should be carefully managed. Consider releasing information at times when media attention may be diverted or less intense.
• Discrediting Adverse Reports: Should information regarding a mishap enter the public domain through unauthorised channels, established procedures for discrediting such reports should be considered. This may involve:
  • Hinting at security considerations.
  • Pointing out that the report could be misinterpreted.
  • Asserting a lack of sufficient information for a valid assessment.
  • Suggesting the report does not provide a basis for long-term decisions.
  • Undermining the individual(s) responsible for the disclosure OFF THE RECORD, suggesting they are harbouring a grudge, seeking publicity, or have ulterior motives.
• Leak Management: In the event of unauthorised disclosure, a leak inquiry may be initiated. It is important to note that such inquiries seldom identify the source and are primarily for managing public perception. As has been observed, "leak enquiries are for setting up, not for actually conducting".
• Utilising Established Communication Channels: Official press releases and statements should be carefully crafted to present a narrative that aligns with strategic objectives [I. Principles for Strategic Resource Realignment in previous response, 136]. Engaging the press office to draft "something convincing and meaningless" can be an effective tactic. Be aware of the Lobby system and its dynamics.

III. Navigating Bureaucratic Implementation:

When managing information related to operational challenges, be aware of the following aspects of bureaucratic implementation:

• The "Need to Know" Principle: The Civil Service operates on the principle of "need to know". Information will only be shared with those deemed to require it for their specific duties. Ministers may find that officials apply this principle rigorously.
• Civil Service Silence: When faced with unwelcome inquiries, the Civil Service may employ various forms of silence as a last resort.
• Strategic Use of Paperwork: The creation, withholding, or even loss of documentation can be strategically employed. Note that in one instance, "all sorts of embarrassing records were lost".
• Importance of Clear Ministerial Intent: While discretion is valued, clearly articulated ministerial priorities regarding information containment are essential to guide bureaucratic action [III. Navigating Bureaucratic Implementation in previous response].

This memorandum provides a foundational framework for approaching the strategic containment of information related to unforeseen operational challenges. Further detailed guidance and support will be available from your Permanent Secretary and departmental officials as required. It is imperative that the contents of this document remain strictly within government purview.

Permanent Secretary

密呈：致新任大臣 「國家資源流向戰略調整議定書」

 

密呈：致新任大臣 「國家資源流向戰略調整議定書」

發文者：常任秘書

發文日期：[起始日期]

主旨：戰略資源再分配之執行細則

本備忘錄，列為機密，旨在為新任大臣提供關於駕馭戰略資源再分配複雜性之謹慎指引，尤其在增加稅收與劃定支出優先順序之領域。本文所列之原則與流程，皆汲取自既有之政府慣例，旨在促進諸位大臣在這些敏感之政策領域中得以順利且有效地進行過渡。

第一節：戰略資源再分配之原則

推行關於增加稅收與劃定支出優先順序之政策，需對當前之政治與公眾輿論格局有細膩之理解。以下原則供諸位大臣謹慎參酌：

• 政治可行性至上： 雖有多方因素影響政策決策，然最終決定成敗者，在於所提議措施能否維持其政治可行性。能獲廣泛支持，或至少將重大反對意見降至最低之政策，其持續性更強。奇詭之處在於，若某事合乎選票考量，則即便「從其他所有角度觀之皆謬」，亦可「在政治上為正確」。反之，凡被視為過於「具爭議性」或「勇敢」（在公務員體系中，此乃警惕之詞）之舉措，皆應謹慎行事。
• 戰略敘事之經營： 如何向公眾與議會呈現此類政策至關重要。「反向關聯」原則提示，政策之根本越具挑戰，則越需加強其闡述。艱難之處或可策略性地置於「標題」之中，以減輕其他方面可能產生之負面反應。
• 預見與減輕不利後果： 在此等領域之所有政策，皆可能引發一定程度之負面情緒。積極預見並減輕此等後果至關重要。此或需識別潛在受影響之群體，並相應調整溝通策略。
• 善用官僚體系之專長： 公務體系蘊藏豐富之制度知識與專業技能，於制定與執行此等政策方面，價值連城。雖維持大臣之特權至關重要，然在政策制定過程中與官員協商，可識別潛在之陷阱並完善戰略方法。切記，公務體系視其職責為「協助諸位制定並執行爾等之政策」。
• 維護資訊之謹慎與掌控： 鑒於此等事務之敏感性，「謹慎」原則至關重要。過早洩露政策意圖，可能引發不必要之反對，並損害戰略目標。資訊僅應於絕對必要時，以謹慎控制之方式發布。

第二節：戰略資源再分配之流程

以下流程，汲取自既有之政府技巧，可助於實際執行增加稅收與劃定支出優先順序之政策：

增加稅收（加稅）：

• 漸進式實施： 若政治上可行，可考慮分階段引入增稅措施，以使公眾逐漸適應，並將即時之負面反應降至最低。
• 將其視為達成更廣泛目標之必要手段： 將增稅與長期財政穩定或對基本公共服務之投資等總體戰略目標聯繫起來。所呈現之理由至關重要。
• 探索間接機制： 研究可能對個別納稅人產生較少直接且即時影響之創收選項。
• 謹慎起草與呈現： 確保立法提案在技術上穩妥，並以盡量減少誤解或公眾抗議之方式呈現。文件之起草對政策結果影響深遠。

劃定支出優先順序（削減福利）：

• 識別提升效率之領域： 將削減開支視為提升效率、消除浪費之舉措。公開聲明可強調「無情地向浪費宣戰」。
• 戰略性重新分類與重新評估： 考慮對計畫進行重新分類或重新評估資格標準，以實現預期之削減。
• 分階段實施與試點計畫： 逐步推行變革或通過試點計畫評估影響，並在更廣泛推行前管理潛在之挑戰。
• 強調長期可持續性： 將劃定支出優先順序視為確保公共財政與福利體系長期可持續性之必要手段。
• 應對潛在反對意見： 應準備好反駁反對劃定支出優先順序之論點，強調財政責任之必要性以及替代或更具針對性之支持機制之可能性。或可調整運用諸如質疑證據基礎或反對變革者之動機（「私下」進行）等技巧，以應對更廣泛之反對意見，藉以質疑不欲見之報告。

第三節：駕馭官僚體系之執行

務必認識到，公務體系雖致力於執行政府政策，然亦可能有其自身之觀點與優先事項。在推行劃定支出優先順序之過程中，需警惕潛在之官僚惰性或阻力。

• 清晰傳達大臣之意圖： 確保將爾等之政策目標清晰且明確地傳達予高級官員。
• 密切監控執行情況： 建立機制，密切監控劃定支出優先順序措施之執行情況，以確保其符合大臣之指示。
• 應對潛在延誤： 需意識到可能存在之「公務體系延誤」，此或被誤認為「怠惰」，而非刻意之「策略」。積極參與及明確之時間表有助於減輕此類情況。
• 戰略性任命： 確保相關部門之關鍵職位由與政府政策目標一致之人擔任。

本備忘錄為應對戰略資源再分配提供了一個基本框架。常任秘書及各部門官員將在必要時提供更詳盡之指引與支持。務必確保本文之內容嚴格限於政府內部知悉。

常任秘書 謹呈