[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.

                                
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