[Federal Register Volume 60, Number 188 (Thursday, September 28, 1995)]
[Proposed Rules]
[Pages 50158-50161]
From the Federal Register Online via the Government Publishing Office [www.gpo.gov]
[FR Doc No: 95-24024]



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NATIONAL ARCHIVES AND RECORDS ADMINISTRATION

36 CFR Parts 1228 and 1232

RIN 3095-AA18


Audiovisual Records Management

AGENCY: National Archives and Records Administration.

ACTION: Notice of proposed rulemaking.

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SUMMARY: The National Archives and Records Administration (NARA) 
proposes to revise and expand the regulations pertaining to audiovisual 
records management and the transfer of permanent audiovisual records to 
NARA from Federal agencies. The revisions are necessary in order to 
update standards, to provide coverage for new audiovisual media that 
are used in the creation of Federal records, and to reflect the 
transfer to the Department of Commerce's National Technical Information 
Services of the centralized audiovisual distribution services formerly 
performed by the National Audiovisual Center. This regulation affects 
Federal agencies.

DATES: Comments must be received in writing on or before November 27, 
1995.

ADDRESSES: Comments should be sent to the Director, Policy and Planning 
Division (PIRM-POL), National Archives at College Park, 8601 Adelphi 
Road, College Park, MD 20740-6001.

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

SUPPLEMENTARY INFORMATION: Following is a discussion of the significant 
changes proposed by this regulation:

Part 1228

    Four significant changes are made to Sec. 1228.184 of this part, 
which governs the transfer of permanent audiovisual records to NARA 
from Federal agencies. First, the revised regulation provides for the 
transfer of a videotape as well as a projection print for motion 
picture film, if both exist. The requirement for preprint (negatives, 
masters, etc.) is still the same, however. Second, the record elements 
for compact discs and video discs are described for the first time. 
Third, audio and video tape recordings are cross-referenced to 
Sec. 1232.30 of this subchapter which requires the use of open-reel 
audiotapes and industrial-quality or professional videotapes for the 
creation of original audiovisual records. Fourth, the revision permits 
agencies to provide related captions or finding aids in electronic form 
that are in accordance with Sec. 1228.188 of this part which governs 
the transfer of electronic records.

Part 1232

    The revision includes audiovisual definitions and updates sources 
for various standards. Section 1232.20, Agency program 
responsibilities, remains essentially the same as the current 
Sec. 1232.4, but requirements for training and inspection of contractor 
facilities have been added. Other sections have been reorganized and 
revised for greater emphasis and clarity and to provide more detailed 
instructions on nitrocellulose film, unstable cellulose acetate film, 
storage conditions, maintenance and operations, choosing formats, and 
disposition. The standard for residual sodium thiosulfate (hypo) on 
newly processed black-and-white film has been modified. The storage 
standard for relative humidity has been lowered to 30-40 percent from 
the earlier range of 40-60 percent. X-ray film is included in this 
regulation for the first time, because it is generally scheduled for 
long retention periods and must therefore be stored under controlled 
environmental conditions. The provision for temporary storage space in 
NARA's cold storage vaults has been deleted because the space has been 
reserved for color film materials that are transferred to the legal 
custody of the National Archives. The regulations governing centralized 
audiovisual services under the current Sec. 1232.6 have been deleted 
from this regulation because of the transfer of this function to the 
Department of Commerce. NARA no longer offers the Stock Footage 
Depository Program which was described in the current Sec. 1232.6. 
Agencies may establish their own programs or dispose of the footage in 
accordance with an approved records schedule.
    This revision does not address digital photographic records, as 
standards have not been developed for these records. NARA is 
investigating the technology and plans to provide records management 
guidance for these records. Government-wide requirements cannot be 
established at this time.
    This rule is a significant regulatory action for purposes of 
Executive Order 12866 of September 30, 1993. As such, it has been 
reviewed by the Office of Management and Budget. As required by the 
Regulatory Flexibility Act, it is hereby certified that this rule will 
not have a significant impact on small entities.

List of Subjects

36 CFR Part 1228

    Archives and records.

36 CFR Part 1232

    Archives and records, Incorporation by reference.

    For the reasons set forth in the preamble, NARA proposes to amend 
36 CFR chapter XII as follows:

PART 1228--DISPOSITION OF FEDERAL RECORDS

    1. The authority citation for part 1228 continues to read as 
follows:

    Authority: 44 U.S.C. chapters 21, 29, and 33.

    2. Section 1228.184 is revised to read as follows:


Sec. 1228.184  Audiovisual records.

    The following types of audiovisual records appraised as permanent 
shall be transferred to the National Archives as soon as they become 
inactive or whenever the agency cannot provide proper care and handling 
of the records, including adequate storage conditions, to facilitate 
their preservation by the National Archives (see part 1232 of this 
chapter). In general the physical types described below constitute the 
minimum record elements for archival purposes that are required to 
provide for future preservation, duplication, and reference needs.

[[Page 50159]]

    (a) Motion pictures. (1) Agency-sponsored or produced motion 
picture films (e.g., public information films) whether for public or 
internal use:
    (i) Original negative or color original plus separate optical sound 
track;
    (ii) Intermediate master positive or duplicate negative plus 
optical track sound track; and,
    (iii) Sound projection print and video recording, if both exist.
    (2) Agency-acquired motion picture films: Two projection prints in 
good condition or one projection print and one videotape.
    (3) Unedited footage, outtakes and trims (the discards of film 
productions) that are properly arranged, labeled, and described and 
show unstaged, unrehearsed events of historical interest or 
historically significant phenomena:
    (i) Original negative or color original; and
    (ii) Matching print or videotape.
    (b) Still pictures. (1) For black-and- white photographs, an 
original negative and a captioned print although the captioning 
information can be maintained in another file such as a data base if 
the file number correlation is clear. If the original negative is 
nitrate, unstable acetate, or glass based, a duplicate negative is also 
needed.
    (2) For color photographs, the original color transparency or color 
negative, a captioned print or captioning information as described 
above, and a duplicate color negative and duplicate slides and 
transparencies, if they exist.
    (3) For slide sets, the original and a reference set, and the 
related audio recording and script.
    (4) For other pictorial records such as posters, original art work, 
and filmstrips, the original and a reference copy.
    (c) Sound Recordings. (1) Disc recordings:
    (i) For conventional disc recordings, the master tape and two disc 
pressings of each recording, typically a vinyl copy for playback at 
33\1/3\ revolutions per minute (rpm).
    (ii) For compact discs, the origination recording regardless of 
form and two compact discs.
    (2) For magnetic sound recordings on audio tape (open reel, 
cassette, or cartridge), the original tape or the earliest generation 
of the recording and a ``dubbing'' if one has been made. Section 
1232.30(d) of this subchapter requires the use of open-reel tape for 
original audio recordings.
    (d) Video recordings. (1) For videotape, the original or earliest 
generation videotape and a copy for reference. Section 1232.30(c) of 
this subchapter requires the use of industrial-quality or professional 
videotapes for use as originals, although VHS copies can be transferred 
as reference copies.
    (2) For video discs, the premaster videotape used to manufacture 
the video disc and two copies of the disc. Video discs that depend on 
interactive software and nonstandard equipment may not be acceptable 
for transfer.
    (e) Finding aids and production documentation. The following 
records shall be transferred to the National Archives with the 
audiovisual records to which they pertain.
    (1) Existing finding aids such as data sheets, shot lists, 
continuities, review sheets, catalogs, indexes, list of captions, and 
other documentation that are helpful or necessary for the proper 
identification, or retrieval of audiovisual records. Electronic 
versions of these files shall be transferred in accordance with 
Sec. 1228.188 of this part.
    (2) Production case files or similar files that include copies of 
production contracts, scripts, transcripts, and appropriate 
documentation bearing on the origin, acquisition, release, and 
ownership of the production.
    3. Part 1232 is revised to read as follows:

PART 1232--AUDIOVISUAL RECORDS MANAGEMENT

Subpart A--General

Sec.
1232.1  Applicability and scope.
1232.2  Objectives.
1232.10  Definitions.

Subpart B--Audiovisual Records Management

1232.20  Agency program responsibilities.
1232.22  Nitrocellulose film.
1232.24  Unstable cellulose acetate film.
1232.26  Storage conditions.
1232.28  Maintenance and operations.
1232.30  Choosing formats.
1232.32  Disposition.

    Authority: 44 U.S.C. 2904 and 3101; and OMB Circular A-130.

Subpart A--General


Sec. 1232.1  Applicability and scope.

    This part prescribes policies and procedures for managing 
audiovisual records to ensure adequate and proper documentation and 
authorized, timely, and appropriate disposition. The policies and 
procedures apply to all Departments and independent agencies of the 
Executive Branch.


Sec. 1232.2  Objectives.

    The objectives of audiovisual records management are to achieve the 
effective creation, maintenance, use, and disposition of audiovisual 
and related records by establishing standards for maintenance and 
disposition, physical security, and preservation and by reviewing 
recordkeeping practices on a continuing basis to improve procedures.


Sec. 1232.10  Definitions.

    Agency. Any department or independent establishment of the 
Executive Branch of the Federal Government. See Sec. 1220.14, for 
general definitions.
    Audiovisual. Any pictorial or aural means of communicating 
information.
    Audiovisual equipment. Equipment used for recording, producing, 
duplicating, processing, broadcasting, distributing, storing or 
exhibiting audiovisual materials or for providing any audiovisual 
services.
    Audiovisual production. An organized and unified presentation, 
developed according to a plan or script, containing visual imagery, 
sound, or both, and used to convey information. An audiovisual 
production generally is a self-contained presentation. Audiovisual 
productions may include motion media with synchronous sound such as 
motion picture film, videotape or other video formats, audio 
recordings, and other media such as synchronized audio and visual 
presentations such as multimedia productions.
    Audiovisual records. Records in pictorial or aural form that 
include still and motion media, sound recordings, graphic works, mixed 
media, and related finding aids and production files.

Subpart B--Audiovisual Records Management


Sec. 1232.20  Agency program responsibilities.

    Each Federal agency, in providing for effective controls over the 
creation of records, shall establish an appropriate program for the 
management of audiovisual records. This program shall be governed by 
the following requirements:
    (a) Prescribe the types of records to be created and maintained so 
that audiovisual activities and their products are properly documented. 
(Regulations on the appropriate types of permanent audiovisual records 
are located in Sec. 1228.184 of this chapter.)
    (b) Ensure that adequate training is provided to:
    (1) Agency personnel responsible for the disposition of audiovisual 
records;
    (2) Contractor personnel who have temporary custody of audiovisual 
records; and, 

[[Page 50160]]

    (3) All users who create, handle, or maintain audiovisual records 
or operate equipment for their use.
    (c) Ensure that contract provisions protect the Government's legal 
title and control over audiovisual records and related documentation 
produced or maintained by contract. Ensure that contract provisions 
identify as deliverables any working papers/files that are needed for 
adequate and proper documentation. Include a provision that permits the 
Government to inspect contractor facilities used for the storage and 
handling of permanent or unscheduled audiovisual records. Agencies 
shall inspect such facilities at least once each year.
    (d) Keep inventories indicating the location of all generations of 
audiovisual records, whether in agency storage or in another facility 
such as a laboratory or library distribution center.
    (e) Schedule disposition of all audiovisual records as soon as 
practicable after creation. General Records Schedule 21 provides 
mandatory disposal authorization for temporary audiovisual records 
common to most Federal offices. Agencies must submit an SF 115, Request 
for Records Disposition Authority, to NARA to obtain authorization for 
the disposition of all other audiovisual records. The schedules 
covering permanent records must specify the different record elements 
identified in Sec. 1228.184, and must always include related finding 
aids.
    (f) Periodically review agency audiovisual recordkeeping practices 
for conformance with requirements and take necessary corrective action.


Sec. 1232.22  Nitrocellulose film.

    Nitrocellulose-base film once used in the manufacture of sheet film 
and motion pictures may be occasionally found in records storage areas. 
The nitrocellulose base, a substance akin to gun cotton, is chemically 
unstable and highly inflammable.
    (a) Agencies must remove nitrocellulose film materials from records 
storage areas.
    (b) Agencies must immediately notify the National Archives about 
the existence of nitrocellulose film materials because of their age and 
instability. The National Archives will determine if they may be 
destroyed or destroyed after a copy is made for transfer, as 
appropriate.
    (c) If the National Archives appraises nitrate film materials as 
disposable, but the agency wishes to retain them, agencies must follow 
the guidance in NFPA 40-1988, Standard for the Storage of Handling of 
Cellulose Nitrate Motion Picture Film, which is incorporated by 
reference. NFPA 40-1988 is available from the National Fire Protection 
Association, Batterymarch Park, Quincy, MA 02269. This standard is also 
available for inspection at the Office of the Federal Register, 800 
North Capitol Street, NW., Suite 700, Washington, D.C. This 
incorporation by reference was approved by the Director of the Federal 
Register in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. These 
materials are incorporated by reference as they exist on the date of 
approval and a notice of any change in these materials will be 
published in the Federal Register.
    (d) The packing and shipping of nitrate film are governed by the 
following Department of Transportation regulations: 49 CFR 172.101, 
Hazardous materials table; 172.504, Transportation; 173.24, Standard 
requirements for all packages; and 173.177, Motion picture film and X-
ray film--nitrocellulose base.


Sec. 1232.24  Unstable cellulose-acetate film.

    Cellulose-acetate film, also known as safety film, is nonflammable 
and does not represent the same degree of hazard as nitrate film 
materials. Nonetheless, cellulose-acetate film also deteriorates over 
time. Temperature, humidity, harmful storage enclosures, and gaseous 
products influence the rate of deterioration. Agencies shall inspect 
cellulose-acetate film periodically for an acetic odor, wrinkling, or 
the presence of crystalline deposits on the edge or surface of the film 
that indicate deterioration. Agencies shall notify the National 
Archives within 30 days after inspection about deteriorating permanent 
or unscheduled audiovisual records composed of cellulose acetate so 
that they can be copied.


Sec. 1232.26  Storage conditions.

    Agencies must: (a) Provide audiovisual records storage facilities 
that are secure from unauthorized access and make them safe from fire, 
water, flood, chemical or gas damage and from other harmful conditions. 
See NFPA 232-1991, Standard for the Protection of Records issued by the 
National Fire Protection Association, which is incorporated by 
reference. The standard is available from the National Fire Protection 
Association, Batterymarch Park, Quincy, MA 02269. This standard is also 
available for inspection at the Office of the Federal Register, 800 
North Capitol Street, NW., Suite 700, Washington, D.C. This 
incorporation by reference was approved by the Director of the Federal 
Register in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. These 
materials are incorporated by reference as they exist on the date of 
approval and a notice of any change in these materials will be 
published in the Federal Register.
    (b) Maintain good ambient storage conditions for permanent or 
unscheduled audiovisual records. Generally, the temperature should not 
exceed 70 degrees Fahrenheit and relative humidity should be maintained 
between 30-40% and not to exceed 50%. Avoid fluctuating temperatures 
and humidity. Cooler temperatures and lower relative humidity are 
recommended for the storage of all film, to prolong the useful life of 
the film base and image. Cold temperatures combined with 30-35% 
relative humidity are especially recommended to retard the fading of 
color film.
    (c) For the storage of permanent or unscheduled records, use 
audiovisual storage containers or enclosures made of noncorroding 
metal, inert plastics, paper products and other safe materials 
recommended and specified in ANSI standards: IT9.11-1993, Processed 
Safety Photographic Films Storage; and IT9.2-1991, Filing Enclosures 
and Storage Containers for Photographic Processed Films, Plates and 
Papers. These standards, which are incorporated by reference, are 
available from the American National Standards Institute (ANSI), Inc., 
11 West 42nd Street, New York, NY 10036. These standards are also 
available for inspection at the Office of the Federal Register, 800 
North Capitol Street, NW., Suite 700 Washington, D.C. This 
incorporation by reference was approved by the Director of the Federal 
Register in accordance with 5 U.S.C. 552(a) and 1 CFR part 51. These 
materials are incorporated by reference as they exist on the date of 
approval and a notice of any change in these materials will be 
published in the Federal Register.
    (d) Store originals and use copies (e.g., negatives and prints) 
separately, whenever practicable.
    (e) Store series of permanent and unscheduled x-ray films in 
accordance with this section, and store series of temporary x-ray films 
under conditions that will ensure their preservation for their full 
retention period, in accordance with ANSI/NAPM IT9.11-1993, Processed 
Safety Photographic Films--Storage. This requirement does not apply to 
x-rays that are interspersed among paper records, as in case files.


Sec. 1232.28  Maintenance and operations.

    Agencies must: (a) Handle audiovisual records in accordance with 

[[Page 50161]]
    commonly accepted industry practices because of their extreme 
vulnerability to damage. For further information, consult the American 
National Standards Institute (ANSI), Inc., 11 West 42nd Street, New 
York, NY 10036; and the Society of Motion Picture and Television 
Engineers, 595 West Hartsdale Avenue, White Plains, NY 10607.
    (b) Use only personnel trained to perform their audiovisual duties 
and responsibilities and ensure that equipment intended for projection 
or playback is in good working order.
    (c) Loan permanent or unscheduled audiovisual records to non-
Federal recipients only in conformance with the provisions of part 1228 
subpart E of this chapter. Such records may be loaned to other Federal 
agencies only if a record copy is maintained in the agency's custody.
    (d) Take all steps necessary to prevent accidental or deliberate 
alteration or erasure of audiovisual records.
    (e) Ensure that no information recorded on permanent or unscheduled 
magnetic sound or video media is erased.
    (f) If different versions of audiovisual productions (e.g., short 
and long versions or foreign-language versions) are prepared, keep an 
unaltered copy of each version for record purposes.
    (g) Maintain the association between audiovisual records and the 
finding aids for them, such as captions and published and unpublished 
catalogs, and production files and similar documentation created in the 
course of audiovisual production.
    (h) Maintain disposable audiovisual records separate from permanent 
ones in accordance with General Records Schedule 21 and a records 
schedule approved by NARA for the agency's other audiovisual records.


Sec. 1232.30  Choosing formats.

    Agencies must: (a) When ordering photographic materials for 
permanent or unscheduled records, ensure that still picture negatives 
and motion picture preprints (negatives, masters, etc.) are composed of 
polyester bases and are processed in accordance with industry standards 
as specified in ANSI/ISO 543-1990 (ANSI IT9.6-1991) Specifications for 
Safety Film for Photographic Films; IT9.1-1991 Specifications for 
Stability for Silver Gelatin Type Imaging Media; and, ASC PH4.8-1985 
Determination and Measurement of Residual Thiosulfate and Other 
Chemicals in Films, Plates and Papers, which are incorporated by 
reference. (Currently, not all motion picture stocks are available on a 
polyester base.) It is particularly important to limit residual sodium 
thiosulfate (hypo) on newly processed black-and-white photographic film 
to the range of .014 grams per square meter. Require laboratories to 
process film in accordance with this standard. Excessive hypo will 
shorten the longevity of film and accelerate color fading. Process 
color film in accordance with the manufacturer's recommendations. If 
using reversal type processing, request full photographic reversal; 
i.e., develop, bleach, expose, develop, fix, and wash. The standards 
cited in this paragraph are available from the American National 
Standards Institute (ANSI), Inc., 11 West 42nd Street, New York, NY 
10036. These standards are also available for inspection at the Office 
of the Federal Register, 800 North Capitol Street, NW., Suite 700, 
Washington, D.C. This incorporation by reference was approved by the 
Director of the Federal Register in accordance with 5 U.S.C. 552(a) and 
1 CFR part 51. These materials are incorporated by reference as they 
exist on the date of approval and a notice of any change in these 
materials be published in the Federal Register.
    (b) Refrain from using motion pictures in a final ``A & B'' format 
(two precisely matched reels designed to be printed together) for the 
reproduction of excerpts or stock footage.
    (c) Use only industrial or professional recording equipment and 
videotape, previously unrecorded, for original copies of permanent or 
unscheduled recordings. Limit the use of consumer formats to 
distribution or reference copies or to subjects scheduled for disposal. 
Video cassettes in the VHS format are unsuitable for use as originals 
of permanent or unscheduled records due to their inability to be copied 
without significant loss in image quality.
    (d) Record permanent or unscheduled audio recordings on 1/4-inch 
open-reel tapes at 3 3/4 or 7 1/2 inches per second, full track, using 
professional unrecorded polyester splice-free tape stock. Audio 
cassettes, including mini-cassettes, are not sufficiently durable for 
use as originals in permanent records or unscheduled records although 
they may be used as reference copies.


Sec. 1232.32  Disposition.

    The disposition of audiovisual records shall be carried out in the 
same manner as that prescribed for other types of records in part 1228 
of this chapter. For further instructions on the transfer of permanent 
audiovisual records to the National Archives see Sec. 1228.184 of this 
chapter, Audiovisual Records.

    Dated: July 24, 1995.
John W. Carlin,
Archivist of the United States.
[FR Doc. 95-24024 Filed 9-27-95; 8:45 am]
BILLING CODE 7515-01-P