[Senate Document 104-24]
[From the U.S. Government Publishing Office]
104th Congress Document
SENATE
2d Session 104-24
_______________________________________________________________________
JOINT COMMITTEE ON THE LIBRARY OF CONGRESS
__________
FINAL REPORT
TO CONGRESS
on the
JOINT RESOLUTION
TO ESTABLISH A NATIONAL POLICY
ON PERMANENT PAPERS
SEPTEMBER 1996
JOINT COMMITTEE ON THE LIBRARY OF CONGRESS
MARK O. HATFIELD, Oregon, Chairman
WILLIAM M. THOMAS, California,
Vice Chairman
HOUSE SENATE
PAT ROBERTS, Kansas JOHN W. WARNER, Virginia
ROBERT W. NEY, Ohio TED STEVENS, Alaska
VIC FAZIO, California CLAIBORNE PELL, Rhode Island
ED PASTOR, Arizona DANIEL PATRICK MOYNIHAN, New York
STAFF
Chuck Frost (HATFIELD)
Mary Sue Englund (THOMAS)
LETTER OF TRANSMITTAL
----------
December 30, 1995.
To the Secretary of the United States Senate:
Pursuant to the provisions of Public Law 101-423, the
Librarian of Congress, the Archivist of the United States, and
the Public Printer herewith submit the final report in
accordance with section 3 of the Joint Resolution to Establish
a National Policy on Permanent Papers.
Respectfully,
James H. Billington,
The Librarian of Congress.
John W. Carlin,
Archivist of the United
States.
Michael F. DiMario,
Public Printer.
EXECUTIVE SUMMARY
This report to Congress is the last of three in which the
Librarian of Congress, Archivist of the United States, and the
Public Printer summarize the Federal Government's progress on
implementing Public Law 101-423. Much has been accomplished
since the law was passed in October 1990, particularly during
the period 1994 through 1995. Highlights of these achievements,
discussed in detail in the following report, include:
Joint Committee on Printing (JCP) specifications
developed for 4 new permanent papers and 16 new
alkaline papers;
JCP issued Government Paper Specification Standards
(No. 10), from which the 20 newly specified papers can
be procured;
National Archives and Records Administration (NARA)
issued NARA Bulletin No. 95-7, ``Procurement of
Writing, Copying, and Printing Papers for Federal
Records,'' which provides guidance to Federal agencies
in the use of alkaline and permanent papers;
Library of Congress (LC) continues research to
identify new and improved methods for the artificial
aging of paper;
Research on the aging of lignin-containing alkaline
papers initiated in both the United States (including
LC and NARA) and Canada;
New or revised standards for paper permanence issued
by the American National Standards Institute (ANSI),
the American Society for Testing and Materials (ASTM),
and the International Organization for Standards (ISO);
Continued increase in U.S. production of alkaline
paper; 99.9 percent of book papers procured through
bulk purchase by the Government Printing Office (GPO)
in 1995 were alkaline; and
General Services Administration (GSA) provided papers
for purchase that match the JCP specifications.
Submission of this report discharges responsibilities
assigned to the Librarian of Congress, Archivist of the United
States, and the Public Printer, as set forth in Pub. L. 101-
423. However, since important work remains to be done, they
have agreed to continue monitoring, on an ad hoc basis,
progress in the implementation of the Government's permanent
paper policy.
Introduction
Public Law 101-423, A Joint Resolution to Establish a
National Policy on Permanent Papers (Section 3), states the
following:
The Librarian of Congress, the Archivist of the
United States, and the Public Printer shall jointly
monitor the Federal Government's progress in
implementing the national policy * * * regarding acid
free permanent papers and shall report to the Congress
regarding such progress on December 31, 1991, December
31, 1993 and December 31, 1995.
The Librarian of Congress, the Archivist of the United
States, and the Public Printer (the monitoring agencies) have
been working together to monitor implementation of the law
since it was signed by the President on October 12, 1990. In
addition, the agencies worked jointly to enhance the general
level of knowledge in the Federal Government about the national
policy on permanent paper, and to ensure that Federal agencies
understand the criteria to be used to determine whether
documents have enduring (i.e., long-term) value. This report is
the last of three reports to Congress required by Pub. L. 101-
423.
Progress in Monitoring Pub. L. 101-423
Definition of permanence
Pub. L. 101-423 (Appendix 1) recommends the use of ``acid
free permanent paper'' using the specifications established by
the Joint Committee on Printing (JCP). For purposes of clarity,
this report adheres to the JCP specifications. Thus, an acid
free permanent paper is defined to be a fully bleached sheet
with a pH of 7.5 or above, an alkaline reserve of 2 percent or
more, a minimum MIT folding endurance in either direction of 30
double folds, and a minimum tearing strength in either
direction of 25 grams for a 30 lb paper and proportionately
higher tearing strengths for heavier papers. This definition
matches most closely the first specification for permanent
paper, ANSI Z39.48-1984, developed by National Information
Standards Organization, which has strong support in the
archival and library communities.
Standards and specifications
Federal. When Public Law 101-423 was passed five years ago,
the Government had only one specification for permanent paper:
JCP A270, uncoated permanent book, white and cream white. With
the issuance in July 1994 of the latest version of the
``Government Paper Specification Standards (No. 10),'' the
number of permanent papers available for Government use
increased from one to five. The four new permanent papers are:
JCP G40, Option A, 25 percent bond, white and colored
(with 50 percent recovered material);
JCP G60, Option A, 25 percent opacified bond, white
and buff (with 50 percent recovered material);
JCP H30, Option A, imitation parchment, laser-finish,
white and colored; and
JCP O-60, Option A, plain copier, xerographic, white,
natural and colored.
A number of alkaline papers have been added as option A to many
existing specifications. The specification standards advise
that option A should be specified if the printed product must
have above average permanence. The alkaline option is available
in 16 paper grades (Appendix 2). All of these JCP papers
available through the Government Printing Office (GPO) and
General Services Administration (GSA) are recyclable within the
programs Federal agencies now operate.
The monitoring agencies have been working with the GSA to
ensure that some of the same papers available to Federal
agencies in the Washington, DC area through the GPO will be
available nationwide. GSA now offers three permanent papers and
two alkaline papers (Table 1).
TABLE 1.--PERMANENT AND ALKALINE PAPERS AVAILABLE FROM GSA
------------------------------------------------------------------------
Permanent/alkaline GSA order number Description
------------------------------------------------------------------------
Permanent....................... GSA NSN 7530-01- 25% bond, white,
398-2656 \1\. 20 lb, 8\1/
2\11.
Permanent....................... GSA NSN 7530-01- Plain copier,
398-2654. xerographic,
white, 20 lb, 8\1/
2\11.
Permanent....................... GSA NSN 7530-01- Plain copier,
398-2655. xerographic,
white, 20 lb, 8\1/
2\14.
Alkaline........................ GSA NSN 7530-01- Recycled plain
398-2652 \1\. copier,
xerographic, 20
lb, 8\1/2\11.
Alkaline........................ GSA NSN 7530-01- Recycled plain
398-2653 \1\. copier,
xerographic, 20
lb, 8\1/2\14.
------------------------------------------------------------------------
\1\ Meets recovered and post consumer materials percentages cited in
Executive Order 12873, Federal Acquisition, Recycling, Acquisition,
and Waste Prevention.
Private. In the United States, two organizations write
consensus standards, specifications, or guidelines for papers
that may be used for permanent records and publications
intended for long-term retention. They are the National
Information Standards Organization (NISO) and the American
Society for Testing and Materials (ASTM). Both organizations
develop standards or specifications by committees, which then
submit them to the organization as a whole for a vote. The
National Archives and Records Administration (NARA) and the
Library of Congress (LC) are voting members of NISO and ASTM
and are also represented on various committees.
NISO develops American National Standards Institute (ANSI)
standards, the primary function of which is to disseminate
information. NISO published its first standard, ``Permanence of
Paper for Printed Library Materials,'' Z39.48-1984, in 1984.
The criteria for permanence established in this standard were
used as a starting point for the JCP A270 (uncoated permanent
book, white and cream white) specification. In 1992, the ANSI
standard was revised to include coated papers and expanded to
include archives materials. Thus, its new title, ``Permanence
of Paper for Publications and Documents in Libraries and
Archives,'' Z39.48-1992. Other changes included dropping the
folding endurance requirement and replacing tear resistance
with a tear index (Appendix 3).
ASTM develops specifications, guides, and test methods for
a wide variety of manufactured products. Its paper standards
are written to incorporate requirements within the same
standard for papers expected to have different life
expectancies. The category ``maximum life expectancy,'' which
replaced the category ``maximum permanence, high usage,''
defines the permanence requirements for manifold papers (D3208-
94), for bond and ledger papers (D3290-94), and for papers used
in office copying machines (D3458-94). These specifications,
together with the ``Guide for the Selection of Permanent and
Durable Offset and Book Papers,'' (D5634-94), comprise the ASTM
work on permanent paper.
In the course of revising these ASTM specifications, the
question arose whether an alkaline paper might still be
considered permanent if it also contained more lignin (a
component of wood that is almost completely removed by
``traditional'' chemical pulping and bleaching) than any of the
specifications allowed. Because lignin-containing papers have
traditionally been produced by an acidic process, no studies of
historic papers exist to which scientists can refer in their
search for an answer to that question. Valid methods for
determining the potential longevity of alkaline papers with a
high lignin content are needed because increasing quantities of
these papers are now coming on the market. To facilitate this
research, valid and reliable methods of artificial aging must
be developed. The Library of Congress Research and Testing
Office has been engaged in such research for the past three
years, and has recently received support from ASTM to
accelerate this effort.
To spearhead this effort, ASTM (under the auspices of their
Institute for Standards Research (ISR)) held a workshop in 1994
on the effects of aging on printing and writing papers. From
this workshop evolved a series of research proposals pertaining
to the development of aging methods using light, pollutants,
heat, and humidity; and to the fundamental chemistry of the
aging phenomena. The proposed research was estimated to require
3 years and to cost over $2.5 million. Although the research is
not yet fully funded, initial work is proceeding on two
projects. One is an investigation of the fundamentals of light
aging to determine how aging can be accelerated without
altering the chemical reactions from those that occur during
natural aging. The second is an investigation of the effects of
aging in low levels of air pollutants (including nitrogen
dioxide, sulfur dioxide, and ozone).
International. The body that develops standards for the
international community, the International Organization for
Standards (ISO), works closely with NISO. Thus, it is no
coincidence that the requirements of the standard, ISO 9706,
``Information and Documentation--Paper for Documents--
Requirements for Permanence,'' are similar to those of ANSI
standard Z39.48-1992. ISO 9706 differs slightly from ANSI
Z39.48-1992 in fiber content (lignin, ground woodpulp, and
unbleached pulp) and tear resistance measurement. In 1995, ISO
developed a standard for archival papers, ISO/DIS 11108,
``Information and Documentation--Archival Paper--Requirements
for Permanence and Durability'' (Appendix 3).
A number of countries have developed standards for
permanent papers that will probably be replaced by the ISO
standard. The most debated of these is undoubtedly the German
standard, DIN 6738, which has not met acceptance from either
the archival or library communities, even within Germany. Like
the United States, the Canadian Government has established a
policy on the use of permanent paper. However, in trying to
devise specifications for that paper, it met with even stiffer
resistance than had NISO, ASTM, or ISO to the requirement that
the paper not contain a significant quantity of lignin.
As a result, the Government of Canada, together with the
Government of Alberta and a consortium of Canadian pulp and
paper manufacturers, joined forces to fund and carry out its
own research program on the effect of lignin on paper
permanence. This research may supplement the ASTM/ISR program.
However, it concentrates on Canadian pulps and does not address
the problem of light aging, so cannot supply all the answers.
Guidance to Federal agencies
On September 8, 1995, the National Archives and Records
Administration (NARA) issued NARA Bulletin No. 95-7,
``Procurement of Writing, Copying, and Printing Papers for
Federal Records'' (Appendix 4). The bulletin advises Federal
agencies to procure either permanent or alkaline paper grades
when creating all Federal records. Permanent paper is
recommended for routine use in offices that create and file a
high proportion of long-term and permanent records, whereas
alkaline paper is recommended for routine use throughout
agencies for all other documents. In keeping with the intent of
Executive Order 12873 (``Federal Acquisition, Recycling, and
Waste Prevention,'' October 20, 1993) and Environmental
Protection Agency (EPA) guidance, the bulletin also states that
any paper is suitable for mass publications. The caveat
accompanying this position is that, if the record set of the
publication has long-term or permanent value, the official file
copy should be printed on alkaline or permanent paper, or
should be maintained electronically or on microform.
The NARA bulletin was completed after extensive discussions
with records officers, printing officials, GPO, and GSA. NARA
representatives met with records officers to discuss drafts of
the bulletin in order to ascertain problems that could arise in
the agencies upon issuance of this guidance. Representatives
also worked with GPO and GSA to ensure that adequate quantities
of permanent and alkaline papers, a list of which is attached
to the bulletin, were available to agencies for purchase.
Ordinarily, NARA bulletins are distributed to agency heads
and records officers only. Since this bulletin has wide-ranging
implications for the Government in the printing and procurement
field, copies were also distributed to printing and procurement
officials as well as to State Governors and records officials.
During the past 2 years, representatives of the monitoring
agencies also spoke at conferences, meetings, and training
courses on implementation of the Public Law (Appendix 5). The
monitoring agencies perceive that if agencies are to grasp the
significance of preserving permanent documents through the use
of permanent and alkaline papers, more was needed than mere
words in a bulletin. It was important to get out and physically
communicate with those Federal officials that will have a major
part to play in the implementation of the law.
Information dissemination
Federal. In addition to advising and assisting the Federal
community, the monitoring agencies are communicating with all
those who have a part in making Pub. L. 101-423 work. In 1994,
the Librarian of Congress, Acting Archivist of the United
States, and Public Printer sent each State Governor the
``Second Report to Congress on the Joint Resolution to
Establish a National Policy on Permanent Papers'' to acquaint
them directly with the law's agenda and encourage their
participation (Appendix 6). Recently, the Archivist sent NARA
Bulletin No. 95-7 and information on accessing this and other
Federal records guidance via Internet to each State Governor,
archivist, and records officer as a model for State and local
action.
Efforts of the monitoring agencies have been strengthened
by other Federal components in addition to the Joint Committee
on Printing (JCP) and GSA mentioned throughout this report. The
National Library of Medicine (NLM) sponsored a Permanent Paper
Task Force from 1987 to 1991 to advance the use of alkaline-
based paper for biomedical literature. When the task force
began, only 4 percent of 3,000 journals indexed by NLM were on
alkaline paper. This figure rose to 91 percent by April
1995.\1\ The Environmental Protection Agency, Department of
Agriculture, Department of Defense, Smithsonian Institution,
and other Government agencies have participated in meetings
concerned with the quality of paper for Federal records,
including the September 28, 1994, meeting of the NARA Advisory
Committee on Preservation. Also the National Endowment for the
Humanities and National Historical Publications and Records
Commission, which fund public and private projects in support
of our Nation's documentary heritage, mandate the use of
permanent and alkaline papers for documentary materials and
additionally maximize their longevity by prescribing
appropriate storage materials and conditions.
---------------------------------------------------------------------------
\1\ National Library of Medicine, National Library of Medicine
Board of Regents, May 23-24, 1995, Tab VIII, NLM Preservation Program:
Current Activities and Future Directions [p. 1]. April 1995, Bethesda,
MD.
---------------------------------------------------------------------------
State and local. As noted in the 1993 report to Congress,
immediately following the passage of Pub. L. 101-423 several
States established legislation and administrative provisions
for State and local government use of permanent paper for
public records. Following this initial breakthrough, the
National Commission on Libraries and Information Science
(NCLIS) distributed mailings about Pub. L. 101-423 to each
State Governor in 1991, 1992, and 1995. These mailings inquired
about States' progress. Results from the first inquiry were
published in the Congressional Record (July 22, 1991, p.
S10550) and have since been reported in both the library and
archives professional literature.
The 1995 survey is continuing and participation has been
encouraged by the Archivist of the United States with his
letter (previously mentioned). In addition, the Council of
State Historical Records Coordinators' upcoming 1996 report on
conditions and concerns in State archives and records programs
will focus attention on State permanent paper initiatives using
information provided by the National Association for Government
Archives and Records Administrators (NAGARA).
States that have developed legislation or administrative
policy on permanent paper include: Arizona, Colorado,
Connecticut, Florida, Illinois, Indiana, Kansas, Kentucky,
Massachusetts, Missouri, Montana, Nebraska, New Mexico, North
Carolina, Rhode Island, South Dakota, Tennessee, Virginia,
Washington, West Virginia, and Wisconsin. Some States are
working to establish or strengthen provisions in response to
opportunities afforded by a decrease in comparative cost and an
increase in the availability of permanent papers. This progress
is significant and laudable. However, it remains that over half
of the States have yet to establish a permanent paper policy.
Private. The private sector role was pivotal in
establishing Pub. L. 101-423 and has continued to be
instrumental in its implementation as a partner to the Federal
Government. This important relationship was underscored when
Senator Claiborne Pell (D-RI) and Congressman Sidney Yates (D-
IL) were awarded the American Institute for Conservation of
Historic and Artistic Works highest honor, the Forbes Medal,
for their many years of distinguished service to the
conservation of cultural property, including Senator Pell's
sponsorship of Pub. L. 101-423, a sponsorship shared by 48
Congressional legislators.
National and international organizations associated with
the information, history, science, and cultural resource
community, including the American Library Association (ALA),
Association of American Publishers (AAP), Society of American
Archivists (SAA), National Association of Government Archives
and Records Administrators (NAGARA), International Federation
of Library Associations and Institutions (IFLA), and the
International Council on Archives (ICA) have issued statements
to support Pub. L. 101-423 as well as taking steps to promote
it. For example, the American Library Association (ALA)
distributes a poster and bookmark fostering permanent paper
awareness.
International. Information, be it paper or electronic, is
an international enterprise. As discussed elsewhere in this
report, many nations have long been active participants in
paper quality concerns. Moreover, concurrent with the issuance
of Pub. L. 101-423, some have monitored their own progress on
permanent paper use for public records and have developed
facilitating mandates. In 1990, the Australian Archives, citing
Section 5(2) of the 1983 ``Archives Act'' to ensure
preservation of Commonwealth records, issued guidance and a
specification for ``Permanent Bond Paper for Use in Records.''
\2\
---------------------------------------------------------------------------
\2\ Australian Archives. ``Paper Specification 1990/2: Permanent
Bond Paper for Use in Records.'' May 1, 1990.
---------------------------------------------------------------------------
In 1992, the Communications Minister of Canada announced
that government publications ``to be retained for information
or historical purposes'' should be produced on ``alkaline-based
permanent paper, rather than continuing to use acid paper.''
\3\ Since then, the National Archives of Canada issued Bulletin
94-02, ``Policy on the Use of Permanent Paper.'' Currently,
there is a bill pending before the French National Assembly
requiring all government documents to be produced on permanent
paper. The introduction to this ``Proposition de Loi'' \4\
begins with the statement that ``A nation that loses its
cultural heritage loses it soul.'' Other nations are also
making progress. Japan and Hungary, for example, are among
countries in which most paper mills have been converted to an
alkaline process.
---------------------------------------------------------------------------
\3\ Communications Canada. ``Government to print publications on
permanent paper,'' January 15, 1992.
\4\ National Assembly of France. Proposed law concerning the
protection of government documents. No. 1607. October 4, 1994.
(Distributed November 7, 1994.)
---------------------------------------------------------------------------
Likewise, the paper manufacturing and printing industry
have promoted awareness and utility of permanent paper products
and services. For example, the Technical Association of the
Pulp and Paper Industry 1994 Papermakers Conference featured
more sessions on alkaline paper than ever before. Also, there
is a paper mill that now has an ``alkaline hotline'' to answer
questions about their new permanent and alkaline papers. Most
callers, who are printers and convertors, receive a free pH
testing pen and brochure with tips on using alkaline papers.
Within the last 5 years, well over 100 articles on
permanent and alkaline papers have appeared in national
publications. The New York Times, Scientific American and many
other well-known periodicals have educated the public at large
while professional publications such as the Commission on
Preservation and Access Newsletter, Alkaline Paper Advocate,
and Instant & Small Commercial Printer have been a conduit
among specialists. Grassroots interest has been vigorous as
well. Local newspapers, community libraries, and historical
societies have not only written about permanent paper as a
global issue, but have also helped citizens learn how to
purchase such papers for their own family documents.
Government Printing Office statistics
In recent years the demand by Government publishers and
librarians for a more ``permanent'' paper has increased. As has
been noted previously, long-lasting paper is associated with
the alkaline papermaking process.
Procured printing. For fiscal years 1994 and 1995, the
alkalinity of the paper stocks used in approximately 2,500
commercially procured printing jobs was monitored by GPO. These
papers were tested for pH value and alkaline reserve content.
Samples of these commercially procured printing jobs were
selected by GPO's Quality Assurance Section and represented all
work at quality levels 1 and 2, and 10 percent at quality
levels 3 and 4 (level 1 being the highest reproduction quality
and level 4 the lowest). The inspection samples represent a
fraction of the more than 200,000 jobs purchased by the GPO
annually. This testing will continue.
TABLE 2A.--UNCOATED PAPER IN PROCURED PRINTING, FY 1994
----------------------------------------------------------------------------------------------------------------
Acidic Alkaline Totals
Papers -----------------------------------------------------
Number Percent Number Percent Number Percent
----------------------------------------------------------------------------------------------------------------
Miscellaneous............................................. 26 34 51 66 77 100
A60....................................................... 52 23 173 77 225 100
A61....................................................... 0 0 9 100 9 100
A80....................................................... 9 25 27 75 36 100
D10....................................................... 4 17 20 83 24 100
H10....................................................... 16 62 10 38 26 100
H20....................................................... 5 71 2 29 7 100
K10....................................................... 20 77 6 23 26 100
L20....................................................... 8 47 9 53 17 100
-----------------------------------------------------
Subtotal............................................ 140 31 307 69 447 100
----------------------------------------------------------------------------------------------------------------
Tables 2A through 3B illustrate the findings for FY 1994
and 1995 with high usage text and cover grades separated out.
Of interest, over 90 percent of all coated papers monitored
were alkaline. Tables 2B and 3B show more data for coated paper
grades because quality level 1 and 2 jobs are typically
produced on coated papers. A high percentage of these were
alkaline papers. The majority of government publications are
actually produced on uncoated JCP A60 offset book text paper
that usually has JCP K10 (index) or L20 (vellum-finish) cover
paper.
TABLE 2B.--COATED PAPER IN PROCURED PRINTING, FY 1994
----------------------------------------------------------------------------------------------------------------
Acidic Alkaline Totals
Papers -----------------------------------------------------
Number Percent Number Percent Number Percent
----------------------------------------------------------------------------------------------------------------
Miscellaneous............................................. 22 32 46 68 68 100
A170...................................................... 9 31 20 69 29 100
A180...................................................... 8 6 118 94 126 100
A181...................................................... 0 0 25 100 25 100
A182...................................................... 1 1 84 99 85 100
A240...................................................... 1 1 91 99 92 100
A260...................................................... 1 2 41 98 42 100
A261...................................................... 0 0 17 100 17 100
A262...................................................... 0 0 42 100 42 100
L10....................................................... 3 5 62 95 65 100
L11....................................................... 1 2 44 98 45 100
L12....................................................... 3 7 39 93 42 100
-----------------------------------------------------
Subtotal............................................ 49 7 629 93 678 100
-----------------------------------------------------
Total (Tables 2A and 2B)............................ ....... ....... ....... ....... 1,125 .......
----------------------------------------------------------------------------------------------------------------
TABLE 3A.--UNCOATED PAPER IN PROCURED PRINTING, FY 1995
----------------------------------------------------------------------------------------------------------------
Acidic Alkaline Totals
Papers -----------------------------------------------------
Number Percent Number Percent Number Percent
----------------------------------------------------------------------------------------------------------------
Miscellaneous............................................. 41 36 74 64 115 98
A60....................................................... 32 11 258 89 290 100
A61....................................................... 0 0 3 100 3 100
A80....................................................... 2 5 38 95 40 100
D10....................................................... 8 42 11 58 19 100
H10....................................................... 5 33 10 67 15 100
H20....................................................... 4 22 14 78 18 100
K10....................................................... 19 73 7 27 26 100
L20....................................................... 5 33 10 67 15 100
-----------------------------------------------------
Subtotal............................................ 116 21 425 79 541 100
----------------------------------------------------------------------------------------------------------------
TABLE 3B.--COATED PAPER IN PROCURED PRINTING, FY 1995
----------------------------------------------------------------------------------------------------------------
Acidic Alkaline Totals
Papers -----------------------------------------------------
Number Percent Number Percent Number Percent
----------------------------------------------------------------------------------------------------------------
Miscellaneous............................................. 20 22 69 78 89 100
A170...................................................... 4 12 29 88 33 100
A180...................................................... 3 2 130 98 133 100
A181...................................................... 0 0 38 100 38 100
A182...................................................... 2 3 68 97 70 100
A240...................................................... 0 0 102 100 102 100
A260...................................................... 1 1 95 99 96 100
A261...................................................... 0 0 60 100 60 100
A262...................................................... 0 0 45 100 45 100
L10....................................................... 3 4 77 96 80 100
L11....................................................... 1 3 35 97 36 100
L12....................................................... 0 0 35 100 35 100
-----------------------------------------------------
Subtotal............................................ 34 4 783 96 817 100
-----------------------------------------------------
Total (Tables 3A and 3B)............................ ....... ....... ....... ....... 1,358 .......
----------------------------------------------------------------------------------------------------------------
TABLE 4.--COMPARISON OF ALKALINE PAPER PURCHASED \1\ IN FY 1994 AND FY
1995
------------------------------------------------------------------------
Percent Percentage
Papers ---------------------- points
1994 1995 difference
------------------------------------------------------------------------
Uncoated, overall..................... 69 79 10
A60 offset book....................... 77 89 12
A80 opacified offset book............. 75 95 20
D10 writing........................... 84 58 2-26
K10 index............................. 23 27 4
L20 vellum-finish cover............... 53 67 14
Coated, overall....................... 93 96 3
A170 publication-grade, gloss coated
text................................. 69 88 19
A180 gloss coated text................ 94 98 4
L10 litho coated cover................ 95 96 1
------------------------------------------------------------------------
\1\ For stocking in GPO, direct shipments, open market purchases, etc.
\2\ This figure is affected by the amount of colored paper purchased per
year because many colors can only be produced in an acidic papermaking
process.
Over 75 percent of the uncoated text paper represented by
A60, A61, A80 in tables 2A and 3A and over 90 percent of the
coated paper in tables 2B and 3B (except the miscellaneous and
A170) were alkaline. Both uncoated and coated papers showed an
increase in the percentage of alkaline stocks used from FY 1994
to 1995. Selected grades are listed in Table 4.
Bulk purchases. In GPO's bulk purchases, the amount of
alkaline paper received was unaffected by EPA requirements that
the paper contain recycled fibers (50 percent wastepaper with
20 percent postconsumer (PC) fiber content in FY 1994, or
simply 20 percent postconsumer fiber in FY 1995). In all JCP
specifications requiring a PC fiber content or that has a
minimum of 25 percent cotton fiber content, the specification
requires a minimum pH of 6.5. This requirement has not proven
to be a problem thus far for any of the suppliers whose paper
is being procured in the quarterly bulk purchases. For the
GPO's quarterly procurement of book papers for stocking in GPO
(measured in tons), 87 percent were alkaline in FY 1994 and
almost all (99.9 percent) were alkaline in FY 1995. Even though
GPO did not specify that the paper must be alkaline, nearly all
of the book papers received (JCP A25, A55, A60, and A80) were
alkaline.
Of the bulk purchase of office papers, all of the 25
percent and 50 percent cotton cut-size bond/writing papers (JCP
G-series papers) purchased were alkaline in the current year.
All the bulk purchased recycled (20 percent PC) copier paper
(JCP O-65 paper) were alkaline. Colored JCP O-60 copier paper
was about 50 percent alkaline and 50 percent acidic.
There were only a few grades of acidic paper. One was a map
paper grade (JCP E40, GPO Lot 94) which was specified to be
acidic for the purpose of improving the sheet's ink drying
characteristics. Often, colored index (JCP K10) and vellum-
finish cover (JCP L20) stocks are also acidic so some of the
colors desired by the customer can be attained. Alkaline papers
are available for index and cover stock, but in fewer colors.
Observations/Relevant Findings
Environmental issues
During the 5-year period covered by Pub. L. 101-423, a
number of pertinent events have occurred. First, the trend has
continued in the paper industry to convert mills from acid to
alkaline papermaking. This conversion can be attributed
primarily to EPA regulations 40 CFR 430--``Pulp, Paper, and
Paperboard Point Source Category'' that govern the amount and
kinds of effluent that paper mills can discharge.\5\ Once
conversion was underway, the lower cost of raw materials for
alkaline papermaking made the change a profitable one.
---------------------------------------------------------------------------
\5\ Proposed improvements to these regulations appear in the
Federal Register, V. 58, No. 241 (December 17, 1993), under authority
of sections 301, 304, 306-308, and 501 of the Clean Water Act and 33
U.S.C. sections 1311, 1314, 1316, 1317, and 1361. The proposal
identifies and describes previous studies and guidance that helped to
propel mill conversion.
---------------------------------------------------------------------------
A second development within the monitoring period was the
issuance of Executive Order 12873, ``Federal Acquisition,
Recycling, and Waste Prevention.'' This order followed a number
of earlier EPA regulations, the most significant of which was
the ``Guideline for Federal Procurement of Paper and Paper
Products Containing Recovered Materials'' that was published in
the Federal Register (Vol. 53, No. 120) on June 22, 1988. EO
12873 addresses recycling in general and places some very
specific requirements on Government purchasers of paper.
Section 504 sets minimum content standards for postconsumer
recovered materials in printing and writing papers, with a 20
percent requirement as of December 31, 1994, and 30 percent as
of December 31, 1998 (for most of these papers), which have
been incorporated as a basic requirement in Government Paper
Specification Standards (No. 10).
Section 505 directs agencies to revise or eliminate
sections of standards or specifications that contain brightness
or other specific pulp requirements if these requirements are
not needed for a particular grade of paper to be functional.
These two requirements appear to conflict with the policy set
out in Pub. L. 101-423. However, the Federal Environmental
Executive in a July 19, 1994, letter to the Director of the New
York Public Library (Appendix 7) stated that all agency
environmental executives would be notified that ``the
requirements for use of recycled paper are not to conflict in
any way with the concurrent requirement for permanent paper
use.'' Thus, provided that the requirements for permanent paper
are met, any amount of postconsumer recovered material can be
incorporated.
The purpose of section 505 is to eliminate unnecessary
requirements for paper that result in the production of harmful
byproducts such as dioxins. Dioxin is of particular concern
because it has been shown to be a byproduct of papermaking when
pulp is bleached with elemental chlorine (chlorine gas). For
those not versed in industry technology or recent research,
section 505 might appear to eliminate the purchase of bleached
paper. This interpretation is erroneous for two reasons.
First, in the absence of research that provides other
options, fully bleached pulp is a necessary component of
permanent paper at this time. Bleaching removes the lignin from
the pulp, which is necessary for permanence because lignin-
containing papers have been shown to darken with age and light
exposure. Librarians, archivists, and records managers are
concerned that such discoloration could impede future
reformatting procedures. Thus, the requirement that permanent
paper be fully bleached cannot be eliminated because it is
directly related to its long-term performance.
Second, the paper industry is gradually using more
elemental chlorine-free (ECF) bleaching, with the result that
the dioxin levels in fish near pulp and paper mills have been
dropping.6 Data show that by the end of 1994 ECF and TCF
(totally chlorine-free) bleached pulps comprised about 54
percent of the bleached pulp produced. Of that 54 percent, 85
percent (about 20 million tons) was ECF pulp. However, when
pulp is ECF bleached, the process is not totally free of
chlorine. Most manufacturers are using chlorine dioxide instead
of elemental chlorine. Despite this continued presence of
chlorine, the dioxin levels decline. This leads many U.S.
producers to question the need to go ``totally chorine-free.''
Another factor in their reluctance is the cost. Currently,
virtually all TCF production is in Europe. The one U.S.
producer, Louisiana Pacific at Samoa, California, has met with
weak demand for its pulp. For this reason, North American
producers believe that the market is unwilling to pay more for
TCF pulps.7
---------------------------------------------------------------------------
\6\ McDonough, T.J., ``Proceedings of the Fourth China Paper
Technical Conference,'' TAPPI PRESS, Atlanta. 1995.
\7\ McDonough, T.J., ``Tappi Journal.'' 78(3), 55(1995).
---------------------------------------------------------------------------
The effect of recycling on paper performance and longevity
was the topic of the September 28, 1994, meeting of the NARA
Advisory Committee on Preservation. The meeting included
representatives from several Federal agencies as well as
standards and testing professional organizations, librarians,
paper manufacturers and associations, and other interested
organizations. Most representatives agreed that it is possible
to produce paper that contains postconsumer waste while
satisfying permanent paper specifications; however, it will not
be easy or inexpensive. The postconsumer wastepaper supply
eventually will contain paper that has been previously recycled
perhaps for the third or fourth time. Several participants
predicted that after a period of time recycled paper containing
postconsumer waste will fail the strength requirements for
permanent paper.
Three manufacturing practices contribute to the weakness of
recycled paper containing postconsumer waste: (1) repulping
paper fibers reduces the length of fibers and thus decreases
the strength of paper; (2) drying and rewetting pulp for re-
shipment between recyclers and manufacturers reduces bonding
strength among fibers; and (3) removing groundwood and lignin
exacerbates the reduction of fiber and bonding strength even
further. A change of these practices may help manufacturers
produce more long lasting paper containing a high proportion of
recycled fiber content, but the consumer must tolerate a less
bright sheet of paper and a degree of eventual yellowing. As
discussed elsewhere in this report, the American Society for
Testing and Materials and the paper research institutions of
Canada are researching these concerns.
During 1994, a paper made by an alkaline process, but
containing a high percentage of groundwood, entered the Federal
marketplace. This grayish paper, natural shade recycled plain
copier xerographic paper (JCP O-70), was being used widely in
copiers and laser printers, and, as a result, it was used to
create some permanent records. Concern was first expressed
about the paper in a ``Meeting on Groundwood Paper in Federal
Offices,'' sponsored by the Office of the Federal Environmental
Executive on October 11, 1994.
The meeting discussed primarily how JCP O-70 would recycle
when entering the waste stream (a topic outside the scope of
this report), but concerns regarding the longevity of this
paper were raised. In direct answer to these concerns, the USDA
Forest Products Laboratory presented results of research done
on this paper. They studied the optical and physical properties
of three different paper mixes which they recycled.
The control mix was a fully-bleached paper which contained
50 percent recycled content, of which 10 percent was
postconsumer fiber. The second paper was the grayish paper
under discussion at the meeting, which had 100 percent recycled
content, of which 50 percent was postconsumer fiber. The third
was a 50/50 mixture of these two papers. The 50/50 mixture was
studied to demonstrate what would happen when the higher
percentage postconsumer fiber content became mixed with the
white office paper and recycled.
This study showed, as might be expected, that the strength
properties of the 50/50 mix paper were midway between those of
the two papers from which it was made. However, the optical
properties of the mixed paper were much closer to, not midway
between, the properties of the 50 percent postconsumer fiber
paper. Thus, they concluded that the introduction of a higher
percentage postconsumer fiber paper into a recycling mix would
``degrade both the physical strength and brightness of the
final product.'' \8\ This could be overcome, of course, by
adding stronger fiber, and additional bleaching steps, both of
which appear counter to the intended purposes of the Executive
Order.
---------------------------------------------------------------------------
\8\ ``A Comparison of Upcycled and Recycled Paper,'' S. Abubaker
and K. Cropsey presented at USDA Forest Products Laboratory, Madison,
WI, ``Meeting on Groundwood Paper in Federal Offices.''
---------------------------------------------------------------------------
Continuing changes in technology
Although the trend towards elemental chlorine-free (ECF)
bleaching poses no problems to the production of permanent
paper, other new technologies may. Driven by the rising
cost of pulp, manufacturers are looking towards
thermomechanical and chemithermomechanical pulping processes to
increase yield and lower costs. At least for the short term,
these new pulping processes pose a threat to the legibility of
books and documents because much of the original lignin remains
in the pulp, even after bleaching. The lignin causes the
resulting papers to darken upon artificial aging by light or
heat. Such discoloration is unacceptable in a paper used for
printing or writing that is to be retained indefinitely.
With this knowledge, manufacturers of these pulps are
researching additives that will prevent the pulps from
darkening. This work is still in the research stage, but no
doubt in the next few years chemicals will be found which, when
added to these pulps, retard the color change. Some of the
compounds currently under investigation are sulfur-containing,
which could pose a problem to photographic records. The
presence of increased amounts of reducible sulfur are excluded
by some box and board specifications, but are not currently
addressed in the existing specifications for permanent paper.
Cost issues
For the 10-month period October 1994 to July 1995, the
monthly producer price indices issued by the Bureau of Labor
Statistics (BLS) recorded a rapid rise in the cost of all
printing and fine writing paper grades. In the aggregate, costs
of these paper grades increased an average of 27 percent (from
a 17 percent increase for vellum-finish cover paper to a 35
percent increase for offset book paper). These price increases,
coupled with the elimination of discounts from retail
suppliers, created actual price increases of up to 80 percent
for many Government printers. These have been reflected in bids
received by the GPO in response to its solicitations for
printing and binding. Financial forecasts predict that paper
prices will continue their upward spiral for the immediate
future.
Both prior to and since enactment of Pub. L. 101-423 in
October 1990, a challenge to its full implementation has been
encountered because of the high cost of paper that meets the
specifications of JCP A270 (uncoated permanent book)--the only
permanent paper available through GPO prior to Government Paper
Specification Standards (No. 10). Federal consumers argued that
it could not be used as the prime paper for documents of
enduring value because its high cost made it economically
unfeasible, particularly if multiple copies were required.
During consideration of the legislation, the cost of JCP A270
was estimated to be 30 percent above that of offset book paper
(JCP A60), the predominant paper used in Government printing,
regardless of whether JCP A60 was manufactured by an acidic or
an alkaline process. In fact, investigation of GPO paper
catalog prices of the time reveals that, for the quarter
February through April 1989, A270 was 187 percent more
expensive than A60. Also, in 1989, 100% Antique book was used
as A270 is today and was furnished to the Supreme Court only.
Despite the general rise in paper prices during 1994 and 1995,
the price differential between A270 and A60 had narrowed
somewhat. The prices that GPO charged agencies during the first
three quarters of 1995 are shown in Table 5.
TABLE 5.--PRICES CHARGED FOR A270 AND A60
------------------------------------------------------------------------
Price/lb
1995 ---------------------- Percent
A270 A60 difference
------------------------------------------------------------------------
January-March......................... $0.591 $0.627 -5.74
April-June............................ .749 .684 9.5
July-September........................ .749 .607 23.39
------------------------------------------------------------------------
Many factors have contributed to the rapid rise in paper
prices since October 1994. The primary cause of uneven price
escalation across the entire spectrum of paper grades is
attributable to the marketplace dynamic of supply and demand.
The fluctuation in price differential evidenced above suggests
that the use of A270 for documents of enduring value in other
than small quantities would still be prohibitive. However, the
same cannot be suggested for the other JCP permanent papers
since no historical data are available. Experience suggests
that a large increase in demand for A270 and other permanent
papers would ensure that the price differential would widen.
Initially this might be the case because the papermaking
industry would be building its manufacturing capacity to
satisfy the demand, and thereafter because total manufacturing
capability of the industry is at near capacity. Based on these
economic factors, the monitoring agencies reaffirm their
recommendation that, as stated in NARA Bulletin 95-7:
Federal agencies are advised to procure either
permanent or alkaline paper grades when creating all
Federal records. Permanent paper is recommended for
routine use in offices that create and file a high
proportion of long-term and permanent records, whereas
alkaline paper is recommended for routine use
throughout agencies for all other documents.
This is in keeping with the intent of Executive Order 12873
(``Federal Acquisition, Recycling, and Waste Prevention,''
October 20, 1993) and Environmental Protection Agency (EPA)
guidance. The bulletin also states that any paper is suitable
for mass production as long as a record copy is produced on
permanent or alkaline paper, microform, or electronic medium.
Availability and use
Procurement of blank paper. Unless otherwise authorized by
the Joint Committee on Printing, Federal agencies in the
Washington metropolitan area are required to procure blank
papers from the U.S. Government Printing Office (44 U.S.C.
1121). Federal offices outside Washington should procure papers
through the Federal Supply Service of GSA or may also purchase
them from GPO. NARA Bulletin 95-7 lists papers available from
these sources.
However, not all papers used for Government records are
obtained through printing and procurement officials who would,
as a normal policy, procure paper from GPO or GSA. Now, with
the increasing availability of Government credit cards,
purchase at local retail office supply stores for paper and
other office products is becoming more and more common.
Most paper suppliers do not, as a common practice, label
their paper products. Thus, the consumer cannot identify them
as alkaline, permanent, or acidic. Therefore, when Federal
employees procure paper from sources other than GPO or GSA, in
most cases they do not know the degree of permanence of the
paper they are procuring. The monitoring agencies propose to
continue working with JCP, GSA, and paper suppliers to develop
common labeling practices, and to encourage GSA to continue
their marketing efforts to promote procurement of paper through
GSA's Federal Supply Service.
SF-1 and decentralized printing. Sections 501 and 502,
title 44, U.S.C., state that:
All printing, binding, and blank-book work for
Congress, the Executive Office, the Judiciary, other
than the Supreme Court of the United States, and every
executive department, independent office and
establishment of the Government, shall be done at the
Government Printing Office * * * unless approved by the
Joint Committee on Printing.
Since a large amount of printing service is obtained
through GPO, Standard Form 1, GPO Requisition for Printing and
Binding, will include blocks indicating alkaline or permanent
paper requirements when next revised. Once an agency indicates
permanent or alkaline paper on the printing requisition, GPO or
their contractors must comply with the request. These proposed
changes to the form are relatively straightforward and will be
easy to implement now that agency officials are making informed
choices regarding permanent and alkaline papers. However,
future monitoring of Pub. L. 101-423 will be difficult, if not
impossible, if agencies are permitted to determine for
themselves where they will procure their printing services and
their blank paper.
Use of appropriate paper in agencies. According to 44
U.S.C. 2904, 3102, and 3301 and 36 CFR 1228.12, Federal
agencies shall have approved records disposition schedules
covering all records. These schedules identify permanent and
temporary records created by the agency. NARA statistics
indicate that 3 percent to 5 percent of the records created by
an agency are permanent. The majority of permanent records are
created within a few distinct agency offices, usually policy-
making offices. Because it is sometimes difficult at the time
of creation to determine whether a document is permanent or
temporary, the NARA Bulletin 95-7 recommends that permanent
paper should be used routinely in offices that create a large
majority of permanent records. Other offices should use
alkaline papers as a normal practice. Permanent papers will
last for several hundred years under normal conditions of
storage and use and alkaline paper will last at least 100
years. These time frames are much longer than those associated
with the longevity of acidic papers.
This recommendation may appear contrary to that made in the
second report to Congress. In 1993, when the second report was
written, the extreme cost differences between alkaline and
permanent papers, and the limited availability of permanent
papers, led the monitoring agencies to endorse the use of
alkaline paper for all records as an interim step to the
Government's permanent paper policy. Two years later, the
situation has changed. Although the price of all papers has
risen dramatically, currently the difference in price between
permanent and alkaline papers has narrowed. However, this trend
is not likely to continue.
This is the principal reason why the Federal community is
encouraged to use alkaline papers except for those offices that
create a large proportion of permanent or long-term records.
NARA's Office of Records Administration will continue to work
with agency records officers to assist them in identifying
offices that should stock permanent papers on a routine basis.
Conclusion
With this report, the Librarian of Congress, Archivist of
the United States, and the Public Printer have completed their
mandate to monitor the progress of the Federal Government in
implementing Pub. L. 101-423 and to report such progress to the
Congress. As this report shows, the establishment by the
Congress of a policy on the use of permanent paper for Federal
records of long-term value has had an important and far-
reaching impact.
When Senator Claiborne Pell (D-RI) brought S.J. Res. 57--A
National Policy on Permanent Paper--to a vote in 1990, he
stated, ``* * * this resolution reflects a growing concern
about the impending loss of an enormous volume of our
historical, cultural, and scientific records because of the
self-destruction of the acidic papers in which books and other
publications have been printed since the mid-nineteenth
century.'' He emphasized the fundamental importance of a public
policy on permanent paper and said, ``Every book produced on
acid free paper today reduces the total number of volumes
requiring deacidification, and frees up preservation resources
which can be used to attack the crumbling backlog of
publications dating back to 1850.''
Even as we enter the electronic age on our way into the
21st century, the legacy of acidic paper from the 19th Century
still threatens the survival of our cultural heritage, and
efforts to preserve existing collections still exceed the $100
million dollar cost Senator Pell cited. The production and use
of alkaline and permanent papers on a worldwide basis is the
only sure way of stemming the tide of brittle paper records
flooding government offices, libraries, and archives of this
Nation.
Although much has been accomplished since Pub. L. 101-423
was signed in October 1990, important work remains to be done.
For example, GPO's Standard Form 1, Printing and Binding
Requisition, should be revised to enable designation of an
alkaline option on agency printing requests. Also, appropriate
labeling by paper suppliers of alkaline and permanent papers
should be assured; continuing education programs about the use
of permanent paper should be developed; and information about
the procurement of alkaline and permanent papers should be
distributed. Further, LC and NARA will continue to contribute
to the important research being conducted by ASTM and will
ensure that it is observed closely and reported widely.
Thus, although this report marks the end of our
responsibilities as set forth in Pub. L. 101-423, the Librarian
of Congress, Archivist of the United States, and the Public
Printer agree to continue, on an ad hoc basis, monitoring the
progress of the Government's permanent paper policy.
APPENDIX 2
----------
JCP ``Option A'' Paper Grades
JCP A60 Offset Book (w/postconsumer recovered material
content) \1\
---------------------------------------------------------------------------
\1\ After 12/31/94, minimum content standard will be 20%
postconsumer (PC) recovered material and after 12/31/98, 30% PC.
---------------------------------------------------------------------------
JCP A61 No. 1 Offset Book, Smooth-finish
JCP A75 Light Weight Offset Book (Bible Paper)
JCP A80 Opacified Offset Book
JCP A90 Vellum-finish Book, White and Colored
JCP A180 Litho (Gloss) Coated Book
JCP A240 Matte Coated Offset Book
JCP A260 Dull Coated Offset Book
JCP F10 Manifold, White and Colored
JCP J10 Ledger, White and Colored
JCP K10 Index, White and Colored
JCP L10 Litho (Gloss) Coated Cover, White and India Tint
JCP L20 Vellum-finish Cover, White and Colored
JCP L23 Offset Cover
JCP L50 Matte Coated Paper
JCP L60 Dull Coated Cover
APPENDIX 3
----------
Comparison of Permanent Paper Standards
----------------------------------------------------------------------------------------------------------------
ISO
-------------------------------------------------
Property NISO-ANSI Z39.48-1992 ISO/DIS 11108
ISO 9706 ``permanent'' ``archival permanent''
----------------------------------------------------------------------------------------------------------------
pH................................... 7.5-10 (u)............. 7.5-10................. 7.5-10
7.0-10 core (c)........
Alkaline reserve..................... 2% minimum............. 20 g/kg CaCO3.......... 20 g/kg CaCO3
Kappa number (maximum)............... 7...................... 5...................... 5
Tear measure......................... 5.25 mNm \2\/g (u)..... 70 g/m \2\:350 mN...... 70 g/m \2\:350 mN
3.50 mNm \2\/g (c)..... 25-70 g/m \2\:r=6w-70.. 25-70 g/m \2\:r=6w--70
r=tear resistance...... r=tear resistance
w=weight............... w=weight
Other physical properties............ none................... none................... MIT folding endurance
2.18
Other chemical properties............ paper stock--no more none................... paper stock--if other,
than 1% lignin. than cotton, linen, or
ramie must state
content and percent.
----------------------------------------------------------------------------------------------------------------
(u) signifies an uncoated paper.
(c) a coated sheet.
The pH and alkaline reserve requirements ensure that the
paper is not acidic and will not become acidic over time. The
kappa number requirement ensures that the paper is well-
bleached, and therefore less likely to deteriorate due to
oxidizable functional groups. And the tear index or tear
resistance (as well as the folding endurance) is a measurement
of strength which seems to predict fairly well an alkaline
paper's durability under accelerated aging conditions.
APPENDIX 4
----------
National Archives and
Records Administration,
Washington, DC 20408.
NRA Bulletin No. 95-7--September 8, 1995
To: Heads of Federal agencies.
Subject: Procurement of writing, copying, and printing papers for
Federal records.
1. Purpose. This bulletin advises agencies to procure
permanent and alkaline paper grades routinely to create all
Federal records. This recommendation complies with Public Law
(Pub. L.) 101-423, Executive Order (E.O.) 12873, and
Environmental Protection Agency (EPA) guidance. Information on
cost and availability of paper grades is also provided.
2. Expiration. This bulletin expires September 30, 1997.
3. Background.
a. Papers used for most documents and publications
since the mid-nineteenth century were highly acidic.
The acid in these papers greatly accelerates their
deterioration and is a principal threat to our
documentary heritage. In the past, the cost of acid-
free papers was generally prohibitive. In recent years,
the pursuit of inexpensive papermaking techniques has
resulted in an increasing replacement of acidic pulps
with more economical alkaline pulps. Fortunately, the
alkaline process also extends paper life by many
decades.
b. Public Law 101-423, A Joint Resolution to
Establish a National Policy on Permanent Papers,
establishes as the policy of the United States that
Federal records, books, and publications of enduring
value of produced on acid-free permanent papers. The
Joint Resolution further recommends that Federal
agencies require the use of acid-free permanent paper
for publications of enduring value produced by the
Government Printing Office or by Federal grant or
contract, using the specifications for such paper
established by the Joint Committee on Printing; and the
agencies require the use of archival quality acid-free
paper for permanently valuable Federal records and
confer with NARA on the requirements for paper quality.
c. Executive Order 12873, ``Federal Recycling,
Acquisition, and Use of Environmentally Preferable
Products and Services,'' section 504, and EPA's
Recovered Materials Advisory Notice (60FR21386)
establishes minimum percentages for recovered waste and
post-consumer waste for printing and writing papers.
Although many permanent and alkaline papers contain a
significant percentage of recycled material, most do
not meet the percentages specified by the E.O. and
EPA's guidance. However, sections 502(2) and 504(1) of
the E.O. authorize agencies to select papers that do
not meet content percentages when available items fail
to meet reasonable performance standards.
4. Definitions.
a. Alkaline paper. Paper that will last for at least
one-hundred years under normal use and storage
conditions. Alkaline paper grades are groundwood-free
with a minimum pH of 7 and an alkaline reserve of 2% or
more.
b. Generic paper. Paper without a specified pH or
alkaline reserve. Longevity of generic paper varies and
is uncertain. Many last for 50 to 100 years.
c. Permanent paper. Paper that will last for several
hundred years without significant deterioration under
normal use and storage conditions. Permanent paper
grades ate groundwood-free with a pH of 7.5 or above,
an alkaline reserve of 2% or more, and other strength
or performance properties that guarantee the use and
retention of records generated on this paper for a
maximum period of time.
5. Agency action.
a. Agency heads should direct records officers and
officials who administer procurement, printing, and
supply distribution to jointly develop policy and
procedures to procure and use permanent and alkaline
papers for both permanent and temporary Federal
records. Copies of this bulletin are being distributed
to agency records, printing, and procurement officials.
b. Because it is difficult to distinguish between
permanent, alkaline, and generic papers, or to
determine at the moment of creation how long a document
will be maintained, agencies may choose to stock only
one type of paper grade in individual office units (or
agency-wide) for routine use in photocopiers, laser
printers, telefacsimile equipment, etc.
(1) Permanent paper is recommended for
routine use in office units that create and
file a high proportion of long-term and
permanent records.
(2) Alkaline paper is recommended for routine
use throughout agencies for all documents.
c. Publications intended for long-term use in a paper
format by many recipients, such as those that are
placed in multiple Federal, State, and local government
depositories' core collections in libraries and
offices, should be created on permanent or alkaline
paper. Generic paper is suitable for mass publications
such as press releases and telephone directories;
however, if the record set of a publication has long-
term value, a file copy should be created by (1)
photocopying onto alkaline or permanent paper, (2)
maintaining an electronic version, or (3) creating a
microform version from the paper or from Computer
Output Microform (COM).
d. NARA also suggests the following techniques to
reduce paper consumption and/or waste:
(1) Employ electronic systems to create,
distribute, and maintain documents in
accordance with 36 CFR part 1234.
(2) When paper is the selected format for
Federal records:
Make two-sided copies.
Use letter-size instead of legal-size
paper.
Use envelopes without plastic windows
and self-adhesive glue. Adhesives and
plastics cannot readily be recycled
with paper.
6. Cost and availability of paper for Federal records.
a. In recent years, the cost of permanent paper was
two to four times more than generic paper and the cost
of alkaline paper was one-third more than generic
paper. However, a recent survey showed only a 5%
difference between comparable permanent, alkaline, and
generic xerographic paper grades with the permanent
paper grade costing the least. Agencies should, on a
continuing basis, check and compare prices. If, at a
given time, there is a significant cost difference
between permanent, alkaline, and generic paper grades,
NARA will work with agencies to identify specific
series of permanently valuable records that can be
created on permanent paper without excessive cost.
b. Unless authorized by the Joint Committee on
Printing (JCP), Federal departments, establishments and
services in the District of Columbia must procure blank
paper, including writing, copying, and printing papers
through GPO in accordance with 44 U.S.C. 1121.
Locations outside of the Washington metropolitan area
should procure paper through normal supply channels
such as the Government Printing Office (GPO) and the
Federal Supply Service of the General Services
Administration (GSA) in accordance with the Federal
Information Resources Management Regulation (FIRMR)
bulletin B-4.
c. Attached is a complete list of all JCP specified
alkaline and permanent paper grades, including GSA
National Stock Numbers (NSN) when available. The JCP
standard specifications are available in the
``Government Paper Specification Standards, No. 10'' on
a subscription basis through the Superintendent of
Documents. For purchases and further information,
customers may contact GPO's Chief, Paper and Materials
Control Section at 202-512-0208, FAX 202-512-1569 and
GSA's Procurement and Contracting Office at 212-264-
3252, FAX 212-264-4920.
7. NARA assistance. Records officers are encouraged to
contact their designated NARA appraisal archivists for
assistance in selecting the appropriate paper for agency
records series. Questions may also be directed to the NARA
Office of Records Administration, Agency Services Division at
301-713-6677, FAX 301-713-6850, TDD 301-713-6760.
John W. Carlin,
Archivist of the United States.
Attachment.
List of Papers for Federal Records
Following is the complete list of all permanent and
alkaline paper grades specified by the Joint Committee on
Printing (JCP) which are available from the Government Printing
Office (GPO). Compatible General Services Administration (GSA)
National Stock Numbers (NSN) are also listed.
The list begins with permanent and alkaline papers
especially well-suited for routine use in laser printers and
high speed xerographic copiers since most Federal records
result from these processes. Annotations helpful to the average
user are offered.
For prices and further information, customers may contact:
GPO's Chief, Paper and Materials Control Section at 202-512-
0208, FAX 202-512-1569 and GSA's Procurement and Contracting
Office at 212-264-3252, FAX 212-264-4920.
laser and xerographic papers
Permanent
1.\1\ GSA NSN 7530-01-398-2656 25% Bond, White, 20 lb.,
8\1/2\"11" (meets JCP G40).
---------------------------------------------------------------------------
\1\ Meets recovered and postconsumer materials percentages cited in
Executive Order 12873, Federal Recycling, Acquisition, and Use of
Environmentally Preferable Products and Services.
---------------------------------------------------------------------------
2. GSA NSN 7530-01-398-2654 Plain Copier, Xerographic,
White, 20 lb., 8\1/2\"11" (meets JCP O60).
3. GSA NSN 7530-01-398-2655 Plain Copier, Xerographic,
White, 20 lb., 8\1/2\"14" (meets JCP O60).
4. JCP G40--Option A, 25% Bond, White and Colored. For
stationery, forms, legal documents, ledgers, etc. which are
used in high speed photocopiers, laser printers, plain paper
telefacsimile machines, and impact-type computer printers and
with pen or pencil. Above average performance for two-sided
copying and erasing quality. Watermarked with U.S. seal, year,
and recycled symbol.
5. JCP G60--Option A, Opacified Bond, White and Buff.
Greater opacity than G40. Uses and watermark same as G40.
6. JCP O60--Option A, Plain Copier, Xerographic, White,
Natural, and Colored. For high speed photocopiers, laser
printers, and plain paper telefacsimile machines.
Alkaline
7.\1\ GSA NSN 7530-01-398-2652 Recycled Plain Copier,
Xerographic, White, 20 lb., 8\1/2\"11" (meets JCP
065).
8.\1\ GSA NSN 7530-01-398-2653 Recycled Plain Copier,
Xerographic, White, 20 lb., 8\1/2\"14" (meets JCP
065).
9. JCP 065, Recycled Plain copier, Xerographic (when
ordering from GPO, request special alkaline modification). For
high speed photocopiers, laser printers, and plain paper
telefacsimile machines.
ADDITIONAL PAPERS COMMONLY USED IN OFFICES
Permanent papers
10. JCP A270 Uncoated Permanent Book, White and Cream
White. For two-sided offset printing of books, pamphlets, maps,
etc.
11. JCP H30-Option A, Imitation Parchment, Laser-Finish,
White and Colored. For high-quality offset printing of
certificates, etc. Suitable for line illustrations and
embossing. The 24 pound weight can be used in photocopiers and
laser printers.
Alkaline papers
12. JCP A60--Option A, Offset Book (w/postconsumer material
content). For two-sided printing of books, catalogs, folders,
etc. The 80 pound weight is suitable for posters. Contains a
minimum of 20% postconsumer material.
13. JCP A61--Option A, No. 1 Offset Book, Smooth-Finish.
For highest quality two-sided offset printing.
14. JCP A75--Option A, Light Weight Offset Book (Bible
Paper).
15. JCP A80--Option A, Opacified Offset Book.
16. JCP A90--Option A, Vellum-Finish Book.
17. JCP A180--Option A, Litho (Gloss) Coated Book. For high
quality offset printing of books, periodicals, maps, etc.
18. JCP A240--Option A, Matte Coated Offset Book.
19. JCP A260--Option A, Dull Coated Offset Book. For high
quality reproduction of satellite and high-altitude imagery as
well as offset printing of books, maps, etc.
20. JCP F10--Option A, Manifold, White and Colored. For
one-sided offset printing of multicopy forms and correspondence
that are used in typewriters and with pen or pencil.
21. JCP J10--Option A, Ledger, White and Colored. For two-
sided offset printing of forms, ledgers, notices, posters, etc.
22. JCP K10--Option A, Index, White and Colored. For two-
sided printing of cards, forms, notices, posters, covers, etc.
that are used in typewriters and with pen or pencil.
23. JCP L10--Option A, Litho (Gloss) Coated Cover, White
and India Tint. Uses same as A180, but as a cover paper.
24. JCP L20--Option A, Vellum-Finish Cover, White and
Colored.
25. JCP L23--Option A, Offset Cover.
26. JCP L50--Option A, Matte Coated Cover.
27. JCP L60--Option A, Dull Coated Cover.
APPENDIX 5
----------
Accomplishments and Presentations Pertaining to Pub. L. 101-423
------------------------------------------------------------------------
Event Date
------------------------------------------------------------------------
Presentation on permanent paper, April 1994.
Publisher's Committee, Federal
Depository Library Group (GPO).
First and second reports to July 1994.
Congress on Pub. L. 101-423
Mounted on NARA CLIO and LC
MARVEL.
Government Paper Specification September 1994.
Standards (No. 10) published.
Meeting on permanent paper, September 1994.
Advisory Committee on
Preservation (NARA).
Environmental Protection Agency October 1994.
(EPA), meeting on Groundwood
Paper in Federal Offices (impact
on preservation).
Presentations on permanent paper, November 1994-April 1995.
semi-annual classes on paper
procurement, Institute for
Federal Printing and Publishing
(GPO).
Presentation on permanent paper, January 1995.
Interagency Council on Printing
and Publishing Services (GPO).
Presentations on permanent paper, February 1995.
Bi-Monthly Records and
Information Officers Discussion
Group (NARA).
Joint letter from Agency Heads to March 1995.
State Governors urging their
support of Pub. L. 101-423 (LC,
NARA, GPO).
Letter to American Society for April 1995.
Testing and Materials (ASTM)
supporting research in paper
aging (NARA).
Publication of NARA Bulletin 95-7-- September 1995.
``Procurement of Writing,
Copying, and Printing Papers for
Federal Records''.
NARA Bulletin 95-7 mounted on NARA September 1995.
CLIO.
Distribution of NARA Bulletin 95-7 November-December 1995.
to Federal Agency heads, Records
officers, Procurement Officials,
and Printing Officers; and State
Governors, Archivists, and
Records Officers.
Presentation on permanent paper, December 1995.
Records Officers, Small Agency
Council (NARA).
------------------------------------------------------------------------
APPENDIX 7
----------
Use of Permanent Paper for Historical Documents
(Senate--October 7, 1994.) [Page: S14759]
Mr. MOYNIHAN. Mr. President, I was recently contacted by
the New York Public Library regarding the Federal Government's
policy on the use of recycled paper and a possible conflict
between the President's Executive Order on recycling, Executive
Order 12873, and the requirement of Public Law 101-423 that
permanent paper be used for historical documents. Happily, this
matter seems to have been resolved to the satisfaction of all
parties concerned. Fran McPoland, Federal environmental
executive at the Environmental Protection Agency, has written
the New York Public Library that the requirement for the use of
recycled paper does not conflict in any way with the
requirement for the use of permanent paper for historical
documents. The administration fully intends to use permanent
paper for documents of enduring historic value.
The Federal environmental executive was appointed by the
authority of Executive Order 12873. One of the roles of the
Federal environmental executive will be to assist individual
agencies in the development of specifications to fulfill the
requirements of both the Executive order on recycling and the
joint resolution on permanent paper. Executive Order 12873 also
called for the appointment of agency environmental executives
in each executive department and major procuring agency.
Mr. President, for the information of all Senators, I ask
unanimous consent that a letter from Federal Environmental
Executive Fran McPoland to Paul LeClerc, president of the New
York Public Library, be printed in the Record.
There being no objection, the letter was ordered to be
printed in the Record, as follows:
Office of the Federal Environmmental Executive,
Washington, DC, July 19, 1994.
Mr. Paul LeClerc,
President, The New York Public Library, New York, NY.
Dear Mr. LeClerc: As the Federal Environmental Executive
appointed by the authority of the President's Executive Order
on Recycling, I am in the receipt of your communication
regarding the necessity to ensure that the federal government's
use of recycled paper not be perceived to be in conflict with
P.L. 101-423's requirement to use permanent paper for documents
of enduring historical value. I am writing to assure you that
there is no such conflict, and to tell you of the steps this
Administration is taking to ensure that the recycled paper
requirements are not implemented in such a way as to result in
the inappropriate use of acidic paper.
The Administration is completely aware of and strongly
supports the Joint Resolution on permanent paper and its goal.
Paper which contains recycled material and is either permanent
or alkaline is available for purchase, and it is our intention
to continue to use these papers for documents of enduring
value.
I will be working with the individual agencies to develop
specifications to fulfill the goals of the Executive Order and
the Joint Resolution. Executive Order 12873 called for the
appointment of Agency Environmental Executives for each
Executive department and major procuring agency, in addition to
a Federal Environmental Executive within EPA, the position to
which I have recently been appointed. I intend to transmit a
copy of this letter to all Agency Environmental Executives in
order to restate our position that the requirements for use of
recycled paper are not to conflict in any way with the
concurrent requirement for permanent paper use. Furthermore, I
am meeting this week with the Agency Environmental Executives,
and I intend to discuss and reaffirm our commitment to the use
of permanent or alkaline paper during this meeting. I will be
continuing to work closely with these executives to ensure on-
going sensitivity to this issue as we implement Executive Order
12873.
I very much appreciate your interest and concern for the
permanence of historical documents, and applaud your efforts to
reduce the use of acid papers by the federal government. We
fully share your concern, and I look forward to continuing to
work with you on issues of recycling and paper permanence.
Sincerely,
Fran McPoland,
Federal Environmental Executive.