[Federal Register Volume 59, Number 106 (Friday, June 3, 1994)]
[Unknown Section]
[Page 0]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 94-13517]


[[Page Unknown]]

[Federal Register: June 3, 1994]


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NATIONAL ARCHIVES AND RECORDS ADMINISTRATION

36 CFR Part 1220

RIN 3095-AA48

 

Agency Program Evaluations

AGENCY: National Archives and Records Administration (NARA).

ACTION: Final rule.

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SUMMARY: This rule more fully describes agency and NARA 
responsibilities as part of the records management evaluations of 
Federal agencies that NARA conducts on a regular basis. It discusses 
the authority, purpose, and scope of these evaluations and describes 
specific agency requirements related to the evaluation notification, 
the evaluation process, transmittal of the report, and preparation of 
action plans and regular progress reports.

EFFECTIVE DATE: July 5, 1994.

FOR FURTHER INFORMATION CONTACT: Mary Ann Hadyka or Nancy Allard at 
301-713-6730 (FTS 301-713-6730) or TDD 301-713-6760.

SUPPLEMENTARY INFORMATION: NARA published a notice of proposed 
rulemaking on December 10, 1993 (58 FR 64915) for a 30-day comment 
period. Subsequently, in a notice published on February 16, 1994 (59 FR 
8150), NARA reopened the comment period for an additional 30-day period 
and announced a public meeting for agency records officers on February 
28, 1994. Twenty-three written comments were received. Approximately 50 
records officers attended the meeting held at the National Archives at 
College Park to discuss the proposed regulations. All comments received 
careful consideration in the development of the final rule. Following 
is a section-by-section discussion of the major issues raised in the 
public meeting and written comments.

Section by Section Analysis

Section 1220.14  General Definitions

    One agency proposed changing the definition of evaluation to that 
included in NARA's A Records Management Glossary. NARA agrees and has 
changed the definition. In addition, language reflecting the followup 
aspect of an evaluation has been added.
    One agency suggested that the use of ``adequate and proper 
documentation'' for consistency with current NARA regulations and 
published guides. This change has been made.

Section 1220.42  Agency Internal Evaluations

    This requirement generated numerous comments and discussion. All 
comments noted that the proposed biennial evaluation of an agency's 
records management program would place an unnecessary burden on 
agencies that already have limited resources for records management. 
One agency pointed out that the Paperwork Reduction Act requires 
triennial reviews of information management programs. Other agencies 
commented that this proposed rule seems inconsistent with the intent of 
the current mandates to reinvent government and streamline government 
operations.
    Because of the burden a biennial reporting requirement would impose 
on agencies this proposed requirement has been dropped. The requirement 
that an agency ``should periodically evaluate its records management 
programs * * *'' that was contained in the superseded regulation at 
Sec. 1220.54 is retained in this regulation. NARA is developing 
additional guidance to aid agencies in performing self-evaluations of 
their records management programs.

Section 1220.50  Authority

    One agency suggested that NARA should be required to estimate costs 
incurred by implementation of NARA evaluation report recommendations 
which an agency agrees to implement and that reports to Congress, OMB, 
or other oversight agency, should include an agency's success stories.
    To the extent that NARA can identify and obtain cost information, 
it will be included in any reports to Congress. NARA's policy is to 
always include agency success stories in final evaluation reports, 
whether or not the reports are to be submitted to Congress.

Section 1220.52  Purpose and Scope

    Three agencies suggested clarifications. Two agencies commented 
that NARA does not quantify the efficacy of Federal agencies efforts to 
make and preserve complete and accurate records but rather that NARA 
reviews records management programs. NARA has modified this section to 
indicate that evaluations assess records management programs. This more 
accurately describes the evaluation process as a cooperative effort.
    One agency noted the misuse of ``inter-agency'' in describing a 
single agency evaluation focusing on all aspects of records management 
at all administrative levels. The phrase ``inter-agency'' has been 
changed to ``one agency.''

Section 1220.54  NARA Evaluation Process

Selection Process
    Several agencies suggested changes in the selection criteria used 
by NARA. Suggested alternatives included conducting an evaluation only 
upon request; setting an evaluation cycle; and identifying agencies 
that have significantly changed patterns of use of Federal records 
centers. Attendees at the records officer meeting and the majority of 
written comments agreed with the criteria proposed in the notice of 
proposed rulemaking. This section has not been changed in the final 
rule.
    Two agencies questioned the meaning of ``perceived need'' and 
``compliance monitoring cycle.'' Perceived need means NARA's knowledge 
of agency operations as they apply to the records management program. 
This includes retirement patterns of records to FRCs, the transfer of 
permanent records to NARA, and scheduling activities by the agency. The 
compliance monitoring cycle, to be developed by NARA, is a method of 
tracking the cyclical review of agencies.
Method of Notification
    Two agencies suggested that the NARA letter of notification should 
specify the scope of the evaluation to enable agencies to make adequate 
preparations. Another agency stated that the agency head or his/her 
designee will determine who will carry out responsibilities stipulated 
in the regulations. Another agency suggested that the regulations 
regarding agency response exceeds NARA's authority to direct the 
internal operation of the agency concerning the individuals to be 
notified of the evaluation.
    NARA agrees and made appropriate changes.
Provision of Information Prior to an Evaluation
    Two agencies noted that NARA has all approved agency schedules; two 
agencies found the requirement to provide all issuances relating to 
records management to be onerous; one agency objected to providing a 
list of agency information systems not currently covered by schedules; 
one agency noted that contractors will have serious reservations about 
making records with proprietary and trade information available to 
NARA; and one agency objected to the tone of this section.
    Becoming familiar with an agency's records management program, 
including the program's internal requirements, is an important 
preliminary step for NARA prior to beginning an evaluation. However, 
NARA agrees that most relevant information is available in a limited 
number of agency issuances and NARA does have copies of all approved 
agency schedules. Section 1220.54(b)(4) has been changed to reflect 
this.
    The maintenance of a list of agency information systems is required 
by OMB Circular A-130, section 9a(5), so providing this information to 
NARA should not impose an additional burden. NARA will use this list to 
determine which systems have not been scheduled.
    36 CFR 1222.48(e) states that ``All data created for Government use 
and delivered to, or falling under, the legal control of, the 
Government are Federal records and shall be managed in accordance with 
records management legislation * * *'' Records created by contractors 
for the agency are Federal records and as such are included in NARA's 
evaluation authority. NARA staff are trained to handle agency records 
containing sensitive information appropriately.

Section 1220.56  Evaluation Report

Report Distribution
    The distribution requirements of the final report generated 
comments and discussion. Some agency representatives think that 
distribution should be limited to individuals and offices affected by 
findings and recommendations, while others thought the reports should 
be widely distributed. One agency suggested that the final report 
should be sent to the Agency Records Officer with a copy to the agency 
head.
    While NARA thinks that a wide distribution of the report within an 
agency will help to highlight the importance of proper records 
management, it is appropriate that the agency determine the internal 
distribution of a report. The final report is issued under the 
signature of the Archivist of the United States and should be 
transmitted to his or her equivalent at the agency. Additionally, 
sending the report to the agency head will ensure that he or she is 
aware of the evaluation and this action may heighten awareness of the 
agency records management program at the highest level of agency 
management.
    NARA agrees that the agency should determine the distribution of 
the final report within the agency. The language of the regulation has 
been changed to read ``Distribute the final report to all concerned and 
appropriate persons and offices.''
Reporting Deadlines and Draft Report
    Agencies commented that, while the regulations specify reporting 
deadlines for agencies to respond to an evaluation, there is no time 
limit for NARA to finalize the report. One agency suggested that this 
section indicate that the 120-day period NARA has to provide a draft 
report to the agency begins following the last site visit or final exit 
briefing.
    NARA agrees and changed the regulation to add that NARA will 
produce the draft report within 120 days following the last site visit 
or final exit briefing and that the final report will be sent to the 
head of the agency within 30 days after receiving agency comments on 
the draft report.
    One agency suggested that agencies should be allowed to comment on 
the recommendations when commenting on the factual contents of the 
report. This is standard practice when reviewing an audit or evaluation 
report. If an agency chooses to comment on the recommendations at this 
stage, the comments will allow NARA to identify potential problems that 
may develop during the followup actions. Furthermore, such comments may 
clarify an agency's internal operations for NARA and allow the 
development of a more appropriate recommendation. The regulation has 
been changed accordingly.
    Two agencies suggested that the provision in the current 
Sec. 1220.52(b)(1) giving agencies the right to provide rationale in 
the action plan for not implementing a recommendation be included in 
the revised regulations. NARA agrees that an agency should have the 
right to provide rationale for not implementing a recommendation if it 
is unable to do so. Section 1220.58(a)(1)(ii) has been amended 
accordingly.

Section 1220.58  Agency Action Plans and Progress Reports

    One agency requested a 120 day period after receiving the final 
report submitting an action plan to NARA, stating that this extension 
is important for agencies that are deficient in many areas. NARA thinks 
that 90 days is an adequate period for most agency to prepare an action 
plan. However, the regulation has been changed to allow for agencies to 
request an extension.
    One agency commented extensively on NARA's proposed requirement 
that agencies provide individual action plans for evaluated field 
sites. They noted that such reports are an unauthorized interagency 
reporting requirement; there is no indication that NARA would analyze 
field action plans and provide feedback to the agency about them; and 
without periodic status reports, there is no value to the action plans.
    The value of including individual site summaries in the final 
report has been proven in previous evaluations. NARA intends to 
continue this practice. In order to track followup actions at these 
individual sites, it may be necessary to request individual action 
plans. If this is the case, NARA will analyze them and provide 
feedback. The language of the regulation has been changed to reflect 
this intention.
    One agency suggested that estimating the month and year for 
starting and completing each action is unrealistic: proposed quarters 
and years would be better. NARA agrees and has changed the regulation 
accordingly.
    In response to a suggestion from one agency, NARA added criteria 
for closing recommendations to this section of the regulation.
    One agency suggested that the action plan be submitted by the 
agency head or Designated Senior Official for Information Resources 
Management rather than ``senior management official responsible for 
records and information management.'' We have made this change.
    One agency noted that the requirement to provide the name of 
officials or offices specifically responsible for initiating and 
completing each proposed action is extensive. NARA agrees that it is 
appropriate for the agency to determine who will track individual 
recommendations. The regulation has been changed to require the agency 
head to designate an individual who will serve as NARA's contact for 
evaluation followup.

Section 1220.60  Followup Notification and Reviews

    One agency suggested that reporting to Congress and/or appropriate 
Federal oversight agencies of evaluation findings and agency response 
be mandatory. Other agencies commented that reporting to Congress would 
be a valuable tool to use to highlight the importance of records 
management in agencies. The majority opinion is that NARA should send 
every evaluation report to Congress or the appropriate Federal 
oversight agency.
    One agency said that NARA should be required to provide agencies 
with the factors by which NARA determines that an agency is not 
progressing in a satisfactory manner and that the agency head should be 
notified before NARA reports to Congress.
    If NARA determines that there has been insufficient progress in 
fully implementing recommendations or that the agency has not corrected 
problems identified by NARA, then NARA will notify the head of the 
agency. After the head of the agency has been notified, NARA may also 
notify the appropriate oversight agencies or appropriate Congressional 
committees. Section 1220.60 has been changed accordingly.

Other Comments

    In the preamble to the proposed rule, NARA asked for specific 
comments on NARA's selection criteria and criteria for performance 
measurement. Comments received on selection criteria are discussed 
under the heading ``SELECTION PROCESS'' above. Several agencies * * * 
commented on criteria for performance measurement. One agency suggested 
that ``one approach would be to establish a baseline for specific 
functions/responsibilities via a status survey and to monitor 
improvement progress for those functions.'' Another agency suggested 
that a performance measurement could be ``how well agencies * * * carry 
out recommendations without follow-up notification and reviews.'' 
Another idea is ``whether violations of applicable laws or regulation * 
* * has been corrected timely.'' Other commentators suggested that NARA 
conduct a government-wide survey of all Federal agencies' records 
management programs. Such a survey would provide an initial starting 
point for identifying problems or regulations that are difficult to 
implement and enforce.
    NARA plans to develop performance measurements that will help 
determine how effectively agencies are implementing evaluation 
recommendations. NARA also plans to develop measures to assess the 
success of its evaluation program in terms of programmatic improvements 
or improved work products.
    Three agencies offered general comments on the evaluation process. 
One agency would like to see NARA conduct studies of more agencies in 
shorter time frames and then share the findings government-wide. This 
would be ``more beneficial to the government and an improved use of 
limited NARA resources.'' One agency thinks the time frame (13 months) 
to conduct an evaluation is too excessive.
    NARA will continue to conduct full evaluations of agency records 
management programs. Additionally, in FY95 NARA will begin conducting 
additional shorter and more focused evaluations.
    Another agency suggested that, while NARA evaluations are similar 
to GSA IRM reviews, they are conducted very differently. GSA, for 
example, takes steps to prepare agencies for reviews by using standard 
scoping questionnaires and with self assessment tools that are linked 
to their evaluation process. GSA issues its cyclical review schedule 
each year so agencies know well in advance when they can expect to be 
reviewed and can prepare for it. Since NARA only notifies an agency 60 
days before an evaluation, this can result in agencies being more 
surprised than prepared and the evaluation can become a negative rather 
than a positive experience.
    We agree that earlier notification would assist agencies being 
evaluated, and have modified Sec. 1220.54 (a) to provide the notice of 
a planned evaluation at least 180 days in advance. NARA also intends to 
work with the appropriate office in GSA to determine how best to 
coordinate the evaluation processes of both agencies.
    This rule is not a significant regulatory action for the purposes 
of Executive Order 12866 and has not been reviewed by OMB. As required 
by the Regulatory Flexibility Act, it is hereby certified that this 
proposed rule will not have a significant impact on small business 
entities.

List of Subjects in 36 CFR Part 1220

    Archives and records.

    For the reasons set forth in the preamble, part 1220 of the title 
36 Code of Federal Regulations is amended as follows:

PART 1220--FEDERAL RECORDS; GENERAL

    1. The authority citation for part 1220 continues to read as 
follows:

    Authority: 44 U.S.C. 2104(a) and chs. 29 and 33.

    2. In Sec. 1220.14, the term Evaluation is added in alphabetical 
order to read:


Sec. 1220.14  General definitions.

* * * * *
    Evaluation means the selective or comprehensive inspection, audit, 
or review of one or more Federal agency records management programs for 
effectiveness and for compliance with applicable laws and regulations. 
It includes recommendations for correcting or improving records 
management policies, procedures, and activities, and follow-up 
activities, including reporting on such activities, for implementing 
the recommendations.
* * * * *
    3. Section 1220.42 is added to subpart B to read as follows:


Sec. 1220.42  Agency internal evaluations.

    Each agency should periodically evaluate its records management 
programs relating to adequate and proper documentation, maintenance and 
use of records, and records disposition. These evaluations should 
determine compliance with NARA regulations in Subchapter B and assess 
the effectiveness of the agency's programs. Criteria for agency self-
evaluations are available from NARA's Office of Records Administration, 
Agency Services Division (NIA).
    4. Subpart C is revised to read as follows:

Subpart C--NARA Evaluation Program

Sec.
1220.50  Authority.
1220.52  Purpose and scope.
1220.54  Evaluation process.
1220.56  Evaluation report.
1220.58  Agency action plans and progress reports.
1220.60  Followup notification and reviews.

Subpart C--NARA Evaluation Program


Sec. 1220.50  Authority.

    44 U.S.C. chapter 29 vests in the Archivist of the United States 
the responsibility for providing guidance and assistance to Federal 
agencies with respect to ensuring adequate and proper documentation and 
proper records disposition. Sections 2904 and 2906 specifically 
authorize the Archivist to conduct inspections or surveys of records 
and records management programs and practices within and between 
Federal agencies and require officers and employees of agencies to 
cooperate fully in such inspections. Section 2904 also authorizes the 
Archivist to report to the appropriate oversight and appropriations 
committees of the Congress and the Director of OMB on the results of 
inspections, the responses by agencies to NARA evaluation 
recommendations, and estimates of the costs to the Federal government 
resulting from the failure to implement such recommendations.


Sec. 1220.52  Purpose and scope.

    (a) NARA evaluations assess how effectively Federal agencies make 
and preserve complete and accurate records of their organization, 
functions, policies, decisions, procedures, and essential transactions; 
and maintain an active, continuing records management program including 
proper records disposition. Agencies shall be evaluated for compliance 
with requirements in 44 U.S.C. chapters 31 and 33 and all the 
regulations issued thereunder in 36 CFR subchapter B.
    (b) NARA evaluations may include comprehensive reviews of agency 
records management programs, or selective reviews focused on adequate 
and proper documentation, on records disposition, on the management of 
specific types of record media or on the management of records in 
particular program areas. NARA evaluations may be of one agency or may 
be multi-agency. These evaluations may be conducted solely within 
headquarters offices, only at field locations, or at a combination of 
field sites and headquarters.
    (c) Evaluations will involve site visits by NARA; submission by 
NARA to the agency of a written report containing findings, analyses, 
and recommendations; and submission to NARA by the agency of an action 
plan for implementing the recommendations followed by regular progress 
reports. Interagency report control number 0153-NARA-AR has been 
assigned to the action plan and progress reports in accordance with 41 
CFR subpart 201-45.6.


Sec. 1220.54  Evaluation process.

    (a) NARA shall select Federal agencies to be evaluated on the basis 
of perceived need by NARA or specific request by the agency, or on the 
basis of a compliance monitoring cycle developed by NARA. NARA will 
determine the scope of the evaluation. An agency may request an 
evaluation of its records management program by contacting the 
Assistant Archivist for Records Administration; however, the final 
determination of agencies to be evaluated will be made by NARA. The 
heads of agencies will be notified in writing by the Archivist of the 
United States of the intent to conduct an evaluation and the scope of 
the evaluation at least 180 calendar days prior to initiating the 
evaluation.
    (b) Once NARA has notified the agency, the agency head will, by the 
date specified in the Archivist's letter:
    (1) Acknowledge in writing NARA's intention to evaluate, and 
provide the Archivist with the name and telephone number of the senior 
official with overall responsibility for records management and of a 
headquarters official who will work with NARA to facilitate the 
evaluation process;
    (2) Provide written notification of the evaluation to all 
appropriate offices and employees and contractors potentially involved; 
this notification will include instructions to cooperate with NARA by 
setting up interviews, providing requested information, and making 
records available for inspection;
    (3) Provide NARA with a copy of the written notification in 
paragraph (b)(2) of this section and with a list of names and telephone 
numbers of officials responsible for records management in field sites, 
if applicable, who will work with NARA during the evaluation;
    (4) For comprehensive evaluations, provide NARA with a set of 
internal records management directives, orders, bulletins, or similar 
authoritative issuances; copies of the two most recent internal records 
management evaluations; and any special records-related reports. 
Included may be: issuances relating to adequate and proper 
documentation and recordkeeping requirements; personal papers; 
management and disposition of textual, electronic, audiovisual, 
cartographic and architectural, micrographic, and vital records; 
disaster mitigation and recovery; and any other records-related 
documentation requested by NARA. A subset of this documentation will be 
requested for more limited evaluations;
    (5) Provide NARA with a current version of the agency manual(s) 
covering records creation, maintenance, storage, and disposition, and a 
list of information systems maintained as required by OMB Circular A-
130, section 9a(5), and a list of offices and/or functions and 
activities not currently covered by schedules;
    (6) Arrange for appropriate management and program officials in 
headquarters and, if applicable, at field sites to be briefed by NARA 
at the beginning and at the end of the evaluation process; and
    (7) Take immediate corrective action regarding any serious problems 
that NARA may bring to the agency's attention during the course of the 
evaluation process such as the unauthorized destruction of records or 
the unauthorized donation or other transfer of records to non-NARA 
facilities.


Sec. 1220.56  Evaluation report.

    (a) NARA will submit a draft evaluation report for factual review 
and comment to the agency within 120 calendar days of the last 
evaluation site visit or exit briefing. After receipt of agency 
comments, NARA will finalize the report, incorporating any changes 
resulting from factual errors identified by the agency. The final 
report will be transmitted by the Archivist to the head of the agency 
within 30 calendar days of receiving comments from the agency.
    (b) The head of the agency will:
    (1) Comment within 60 calendar days, in writing, on the contents of 
the draft report. If necessary, agencies can request extensions. No 
response from the agency within the allotted time will indicate that 
the agency concurs in the factual accuracy of the draft report.
    (2) Review the final report and assign implementation 
responsibility; and
    (3) Distribute the final report to all concerned and appropriate 
persons and offices.


Sec. 1220.58  Agency action plans and progress reports.

    (a) Action plans. (1) The action plan will be submitted to NARA 
within 90 calendar days after the date of transmittal of the final 
report. If necessary, agencies can request extensions. The plan shall 
be submitted by the agency head or the designated senior official for 
information resources management. The action plan will include:
    (i) The name of the senior official and the office responsible for 
coordinating implementation agency-wide;
    (ii) The specific action(s) the agency will take to implement each 
evaluation report recommendation. If an agency is unable to implement a 
recommendation, the rationale for not acting shall be documented in the 
action plan;
    (iii) The name of the official and office or program responsible 
for the overall coordination of the agency's followup actions who will 
be the liaison with NARA;
    (iv) The estimated time needed to complete each action and the 
proposed quarter and year for starting and completing each action;
    (v) Major milestones with dates for tracking the completion of 
implementation actions that are expected to extend longer than 3 years 
past the date of the action plan; and,
    (vi) If requested by NARA, separate action plans for each field 
site visited, incorporating the information required by paragraphs 
(a)(1)(i) through (a)(1)(v) of this section.
    (2) NARA will analyze the action plan(s) submitted by the agency 
for adequacy and effectiveness in implementing the recommendations 
contained in the evaluation report. NARA will provide comments to the 
agency on the plan(s) within 60 calendar days.
    (3) The agency will revise the action plan until it is approved by 
NARA.
    (b) Progress reports. (1) Once the action plan(s) has been approved 
by NARA, the head of the agency will submit progress reports to NARA 
every 6 months. The reports will include:
    (i) A description of what has been accomplished on each action 
since the last report;
    (ii) The current status of the action;
    (iii) Any changes in the offices or programs responsible for over-
all or specific action implementation; and,
    (iv) If appropriate, explanation of any delays in implementation 
and revised target dates and milestones for completion of the action.
    (2) The agency will continue to submit these progress reports until 
NARA and the agency agree all actions have been completed, NARA and the 
agency agree that the agency has implemented the recommendation(s) to 
the fullest extent possible, or NARA indicates in writing that regular 
progress reports are no longer required.
    (3) NARA will review and comment on agency progress reports, and 
work closely with the agency to provide assistance in evaluation 
implementation.


Sec. 1220.60  Follow-up notification and reviews.

    (a) If NARA determines that there is not substantial progress in 
the full implementation of evaluation recommendations or that the 
agency has not corrected serious problems identified in the report, the 
Archivist, after notifying the head of the agency, may notify Congress 
and appropriate Federal oversight agencies of the evaluation findings 
and the agency response.
    (b) NARA may initiate follow-up reviews at specific offices or 
field sites. Results of these follow-up reviews shall be communicated 
to the head of the agency and, if NARA determines it to be appropriate, 
to Congress and Federal oversight agencies.

    Dated: May 25, 1994.
Trudy Huskamp Peterson,
Acting Archivist of the United States.
[FR Doc. 94-13517 Filed 6-2-94; 8:45 am]
BILLING CODE 7515-01-W