[Guide to Federal Publishing: What Every Federal Publisher Should Know About the Printing and Publishing Process, 2001]
[From the U.S. Government Publishing Office, www.gpo.gov]

DALLAS PUBLIC LIBRARY
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Guide to
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Guide to federal publishing : what every 2001?]
PREFACE
To our associates in Federal publishing
A group of Federal publishers and printing officers, with the collaboration of staff from the Government Printing Office and the Joint Committee on Printing, initially developed this publication for Federal publishers and issued it in 1992. It now has been updated to place publishing in a broader, information life-cycle context; incorporate the latest information on electronic publishing, especially the Internet; and include legislative and regulatory changes, such as those made in postal procedures. As representatives of the sponsoring agencies, we are excited about all of the legal, policy, managerial, and technical information the guide now provides, and how it all fits together.
The publishing process is indeed complex. To be successful, Federal publishers must know who both the more traditional ink-on-paper and the more modern electronic service providers are, both within and outside of the Government. They must also know the full range of services each offers. Publishers must also know which Federal and other laws, rules, regulations, and policies apply to a particular set of circumstances, and how to be self-sufficient, especially when there are no internal or external providers available. We believe this guide will significantly assist in all of these areas.
Printing and publishing do not exist in a neat, airtight compartment. They are integral parts of the entire information life-cycle process. Therefore, it is important that agency publishing officers know and understand the links the publishing function has (1) with the agency officials who create the “raw material” and then pass it on to them for value-added services, and (2) with agency officials to whom the publishers, in turn, pass on their finished products for use throughout the information life cycle, including getting them to the end user, both inside and outside the agency.
This current edition of the guide is the result of close collaboration by the Interagency Council on Printing and Publications Services, the Federal Publishers Committee, and the Government Printing Office, with participation from the U.S. National Commission on Libraries and Information Science, the Consumer Information Center, the National Technical Information Service, and the Federal Webmasters Group. We hope it will continue to serve as a roadmap to persons interested in Government publishing.
Chairman, Interagency Council on Printing and Publications Services
Chairman, Federal Publishers Committee	f ' i /
ACKNOWLEDGMENTS
The second edition of this guide was developed by Kirk Markland, Department of the Treasury, Chairman of the Interagency Council on Printing and Publications Services, and Glenn King, Department of Commerce, Chairman of the Federal Publishers Committee, with major assistance from: William Sebesky, Department of the Treasury; Bob Stiefel, Department of Energy; James Cameron, John Chapman, George O’Donnoghue, and Roy Potter of the Government Printing Office. Other key input was provided by Woody Horton, National Commission on Library and Information Sciences (NCLIS); Michael S. Moxcey, U. S. Department of Agriculture and a member of the Federal Webmasters group; Mary M. Levy, Consumer Information Center; Elaine Stober, Linda Davis, Tom Bold, National Technical Information Service; and others. Major editorial support was provided by Paul Wyatt, Department of Commerce. Cover design and page layout were provided by Janice Sterling and Erika Echols from GPO’s Typography and Design Division. We are particularly grateful to Lois Schutte, recently retired Director of GPO’s Institute for Federal Printing and Publishing—she did an outstanding job of coordinating and spearheading the effort.
Contents
Guide to Federal Publishing
I. Introduction ......................................... 1
Why read this guide? .................................... 1
The information life cycle and legal context of publishing .... 2
The publisher as a key player in the agency information management team........................................ 4
The key role of the publishing plan...................... 6
The printing officer .................................... 6
The Webmaster ........................................... 7
The Government Printing Office (GPO)..................... 7
Administrative support................................... 8
IL Importance of Planning................................ 9
Introduction............................................. 9
Developing a publication plan............................ 9
Concept and pre-publication conference ................. 11
III. Publishing Environment ............................ 13
Establishing the project schedule ...................... 13
Communication and organization in production planning .... 13
Production.............................................. 14
Distribution............................................ 16
IV. Resources and References ........................... 19
Technology-related considerations ...................... 19
Specific technology issues for Federal publishers .......19
Information dissemination techniques.....................22
Agencies providing publishing support....................25
The Government Printing Office (GPO) .................25
The National Technical Information Service (NTIS).....32
The Federal Consumer Information Center (FCIC) ...... 33
APPENDIX A
Pertinent Laws, Rules, Regulations, and Policies......35
APPENDIX B
Checklist A
Planned product uses..............................39
Checklist B
Types of data contained within a product..........39
Checklist C
Types of media ...................................40
Checklist D
Types of formats..................................40
Checklist E Searchability of the product..............................41
Checklist F Product host site ........................................41
Checklist G Retrievability of the product ............................41
Checklist H Metadata records..........................................42
Checklist I Permanent public accessibility ...........................42
Checklist J Permanent records retention ..............................43
Checklist K Authentication ...........................................43
I.	Introduction
This guide is subdivided into four main sections:
I.	Introduction
II.	Importance of Planning
III.	Publishing Environment IV. Resources and References
Why read this guide?
In his history of Yale University Press, Clarence Day referred to publishers as “they who build the fleet, plan the voyage, and sail on, facing wreck, till they find every possible harbor that will value their burden.” This guide has been developed as a navigational chart for those about to embark on a Federal publishing journey for the first time, as well as for those who may have encountered unexpected shoals and tempests on their previous voyages and want to avoid them in their current journeys.
The guide begins by identifying the participants in Federal publishing (we call them collectively the “Publishing Team,” or sometimes the “Information Management Team”); their respective functions, authorities, responsibilities, and specialized technical skills; what you can expect from them; and how their functions and operations interconnect and interoperate.
This Introduction provides a brief overview of the major considerations virtually all publishers face, setting the stage for the more detailed discussions that follow.
The Importance of Planning section explains the close connection between careful planning and ultimate publishing success, and how to chart a course, from the start of the voyage to the finish, to achieve a goal.
The Publishing Environment section provides scheduling information, discusses the importance of communicating well, and covers production and distribution.
Finally, the Resources and References section identifies pertinent laws, rules, regulations, policies, available technical skills, and other resources and key literature references. This section also discusses information technologies, describes the spectrum of printing and publishing services offered by the Government Printing Office (GPO) and other Federal agencies, and examines distribution options.
Appendix A provides pertinent laws, rules, regulations, and policies. Appendix B is a compilation of “don’t forget” checklists designed
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to help publishing officials ensure they have considered the most appropriate format and media, used available and applicable standards, and adequately addressed relevant policy matters not generally considered “technical publishing” functions, such as permanent public accessibility, permanent records retention, preservation, and authentication.
But having a navigational chart in hand is no substitute for an experienced crew. After reading this guide, publishers should talk to their printing officers, Webmasters, and other colleagues. In short, they should meet with all of the other key team players involved in their agency’s information life-cycle processes. Their advice and assistance, combined with careful planning, will help in mapping a route within realistic limits, produce an information product that meets both the originator’s expectations and the customer’s needs, and distribute the product efficiently and effectively to “every possible harbor.”
The information life cycle and the legal context of publishing
As mentioned in the preface, publishing and printing do not exist in an airtight, compartmentalized vacuum. They are integral steps in an overall information life-cycle process that interconnects many steps in a logical fashion. A successful information product depends, in the end, on the smooth interconnection and interoperability of all the required subprocesses, procedures, resources, and human expertise.
While it is usually an internal agency program official who first identifies the need for an information product, publishing officials have a fiduciary responsibility to ensure that various laws, rules, regulations, and policies are followed. That is to say, they can and should point out the need for an information product and recommend the most appropriate media and formats for that product. In addition, they must have an eye to potential external audiences, especially the general public, Congress, the media, and other groups, as well as internal agency users, who will be their main customers and consumers.
Federal publishing and printing, like most Federal activities, is governed by a number of laws, regulations, and policies. They are intended to save Federal funds, and to minimize waste and duplication of effort in Federal publishing endeavors. (See Appendix A for more information about the following laws and regulations.)
•	Title 44, United States Code (U.S. C.), Public Printing and Documents—The basic codification of laws governing Federal publishing and printing activities, including the oversight role of the Congressional Joint Committee on Printing (JCP) and the various activities of the Government Printing Office (GPO).
•	Public Law 104—201 (Codified at Note, 44 U.S.C., Section 501)— Prohibits the expenditure of appropriated funds for printing or procuring printing other than through GPO.
•	Government Paper Specification Standards—Establishes appropriate grades of paper for all Government printing and publishing.
•	Government Printing and Binding Regulations—These guidelines, issued by the JCP, clarify and focus the various requirements of laws governing Federal printing.
•	Office of Management and Budget (OMB) Circular A—130— Provides Executive Branch information resources management policies.
•	Copyright laws
•	Postal regulations
Publishing, communicating, and disseminating usually (but do not always) occur at some point in the information life cycle. But clearly the publishing office must ensure that a number of steps and stages, involving, for example, the application of appropriate cataloging and other metadata; discussions about whether the product must be permanently and publicly accessible and/or a permanent record be established; pricing; availability and entitlement; and so on are addressed in a timely fashion before the production process begins.
Moreover, the publishing officer must not only have one eye on the rearview mirror to see what has gone before, but must also look at the road ahead. For example, how will authenticity be determined? How will the publication likely be searched and retrieved? In what format(s) or media will the information be temporarily stored, distributed, redistributed, and permanently archived?
Then there is the problem of knowing when and where to draw the line between individual desktop publishing of informal, unofficial materials, and agency publishing of formal, official materials. The publishing officer can be invaluable to agency management in helping to clarify under what conditions an item of information that may have begun as an informal, unofficial, desktop-published product could and should be transformed and published as a formal, official agency product.
The electronic era offers the opportunity for a Federal agency to use “out-of-house” resources to host and manage its electronic information products once they are created. The hosting and management choices now open to agencies include a variety of options, for instance: (1) the agency itself; (2) another Government agency (such as the GPO); (3) or a private-sector contractor.
It should be emphasized, however, that when an agency chooses to use the services of an external host, it does not thereby relinquish its
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accountability and responsibility to the agency head, the Congress, the public, or other constituents for ensuring that information products meet the purposes for which they were designed and are available in the most timely and appropriate formats and media.
The bottom line is that publishing must be a collaborative team effort involving all the members of the publishing team.
The publisher as a key player in the agency information management team
More detailed discussions of the key players’ roles in the publishing process are included in subsequent sections. Of course, the smaller the publishing operation or the less frequently it publishes, the more likely it is that the participants will be wearing more than one hat or that their duties will overlap. Of major importance are the functions that must be performed, because at some point anyone in the operation could be performing any one, or perhaps all, of them.
The role of the publisher is to plan, manage, and control the publishing process. Modern publishing uses state-of-the-art information technologies in different and emerging media and formats. For example, the “family of media” includes ink-on-paper, microform, floppy diskette, Compact Disc (CD), Digital Versatile Disc (DVD), the Internet, bulletin board systems, photographic film, audio and video recordings, electronic and optical digital media, and multi-media, including interactive capabilities such as touch-screen. (A compilation of media is included in Appendix B).
The “family of formats” includes database formats, spreadsheet formats, tagged markup formats, image formats, audio and video formats, text formats, and word processing formats. (Appendix B includes a compilation of formats.)
Also, publishers must know whether any of these media and formats are agency-mandated, common agency practice, prescribed Government-wide (such as Federal Information Processing Standards), or recommended by national standards bodies, such as ANSI and NISO, or international standards bodies, such as ISO. In short, are there guidelines or standards that apply and must be followed, or can they be applied discretionally?
Publishing today can be defined as the production, transfer, and dissemination of information in any format or medium, traditional or electronic, taking into account prescribed guidelines and standards (where applicable), following established benefit-cost considerations.
Because of revolutionary changes in modern information handling technologies, computers and automated equipment now per
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form much of the work much faster and far more efficiently than could be done manually. For example, editing, formatting, and typesetting increasingly are done electronically because the data and text are in digital electronic form and can be manipulated very efficiently. Electronic publishing is not just computer-assisted publishing. It is the form the data and information are in. Many published works no longer appear in an ink-on-paper format at all, but reside entirely as virtual products on the Internet or in digital media, such as computer tapes and diskettes, CD or DVD, or direct-access computer connections.
Government publishers should know all of these media, formats, and publishing and dissemination standards and guidelines, both traditional and modern. They also should know the ways in which computer hardware, software, and networks can assist in the publishing process.
Publishers coordinate a process that involves working closely with many members of the agency publishing or information management team and the public they serve, including:
•	Authors or creators of “raw” information products;
•	Technical editors, “Plain English” editors, translators, interpreters, and personnel with related value-added skills and expertise;
•	Agency legal officers on questions of entitlement, standards, disclosure laws and policies, national security and other laws, copyright and other public/private sector domain and intellectual property questions, and related matters;
•	Agency financial officials on questions of financing, pricing, accounting, user fees, benefit and cost determinations, and related matters;
•	Agency management for final review and approval, and for ensuring products are in accord with the agency mission and have practical utility;
•	Printers, film-makers, graphic artists, Webmasters, and other technical specialists;
•	Public affairs specialists, who are among the agency’s first points of contact with the public, businesses, lower levels of government, the news media, historians, foreign inquirers, other Federal agencies, and others seeking information concerning the agency;
•	Librarians, catalogers, indexers, archivists, and other metadata specialists who identify, describe, classify, index, and add other metadata value to a product; and
•	Customers and users of the finished information products, whether tangible goods or access to online information services and databases.
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The key role of the publishing plan
Generally, a Government publisher devises a publishing plan for at least the agency’s major information products. Once the plan is completed, the publisher works closely with authors/creators to plan each product intended for release, and expedites its production, the application of various value-added processes and services, and its dissemination. Publishing management typically involves the following tasks:
•	Selection of optimal publishing media based on intended audiences, budget, timeliness, degree of permanence required, and other factors;
•	Product design and engineering, including one or more format(s), typography, artwork, color, type of reproduction, and other factors;
•	Planning, scheduling, and monitoring internal production, including choosing or recommending production techniques to guarantee timeliness, accuracy, completeness, and quality at the best practical cost, and maintaining internal quality controls to accomplish this;
•	Ensuring adherence to standards and guidelines for elements such as text, data, graphics, style, and format. Depending on agency, Government-wide, national, or international policies, either the authors or the agency publisher may establish ad hoc standards and guidelines, or follow common agency practice in the absence of mandatory standards, or follow a standard prescribed by a higher authority;
•	Controlling quality of products;
•	Coordinating production, forwarding reproducible versions of products to agency printing officers or other media producers for processing;
•	Coordinating the promotion of the product, issuing announcements, press releases, and other public information materials (see the Distribution section for further information);
•	Managing distribution, including maintaining agency distribution lists for mailing or other forms of dissemination, and collecting, analyzing, and reporting distribution statistics and performance data, ensuring distribution to Federal depository libraries; and
•	Identifying and resolving problems in production, promotion, and distribution.
The printing officer
The agency printing officer is a source of expertise and knowledge regarding the design, procurement, and production of publications in both pre-electronic (e.g., ink-on-paper, microform) and electronic (e.g., diskettes, CD-ROM, DVD, the Internet) formats. Usually, these individuals are part of the centralized printing management component of an organization. They are responsible for knowing which formats and media are available to fill specific publishing
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requirements. They can arrange for production and distribution of a publication that will suit the agency’s needs. Specifically, the printing officer is responsible for the following tasks:
•	Analyzing the publishers specific requirements and making recommendations as to the most appropriate media and format(s) for the information product, taking into account both the effective presentation of material and realizable cost efficiencies;
•	Adhering to standards and limitations established for the Federal Government by the JCP regulations, and the quality levels of publications and product procurement rules used in the Federal Government. The printing and publishing officers must be familiar with many different laws, rules, regulations, and policies that impact their responsibilities;
•	Apprising agency publishers of factors that are vital to the success of their publications, including pre-press and press production issues, as well as available marketing and dissemination channels;
•	Working with agency publishers to establish a production schedule for their publications;
•	Preparing production cost estimates when required;
•	Assisting agency publishers with their desktop publishing efforts; and
•	Accomplishing all printing procurement actions, including liaison with GPO, for procurement and other production-related issues.
The Webmaster
The Webmaster generally controls the agency’s World Wide Web (WWW) site. Material provided for publication on the Web may appear in the same format as an ink-on-paper or CD version. More often, however, such material will be changed, depending on agency policies and other technical factors, since it is well established that ink-on-paper and microform formats optimize the appearance and understandability of products produced in those media. These formats are quite different from those that optimize the distinctive features and capabilities of electronic media. Policies and technical factors vary considerably from organization to organization, with some Webmasters controlling content and others controlling site management. In a few agencies, they may control both.
The Government Printing Office (GPO)
GPO manages and performs the production and procurement of printing services for Congress and the agencies of the Federal Government. However, GPO exercises no control over decisions to create information products, nor over the specific content, format, or medium to be used for these products; these are agency responsibili
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ties. (See the Pertinent Laws, Rules, Regulations, and Policies section for legal and regulatory limitations.)
GPO provides a full range of printing, binding, graphic arts, and electronic products and services through in-house production facilities or procurement from the private sector. Products and services include: state-of-the-art Web site creation and maintenance; electronic publishing (including all phases of CD or DVD development—preparing data, acquiring information, search and retrieval software, and contracting for disc manufacture); and many types of printing and finishing, including fine handbinding of printed products. GPO also offers a broad spectrum of information dissemination services through the Federal Depository Library Program, GPO Access, and the Publications Sales Program. (For more information on the services provided by GPO, see Resources and References.)
Administrative support
In addition to resolving issues concerning the content, printing, and dissemination of their publications, publishers should also know about the other administrative players involved in publishing their material. Some questions are:
•	Who must approve the publishing of information? The answer to this question varies widely from agency to agency; there are often several levels of review and approval required.
•	Where does the money come from for publications? Some agencies have a centralized budget category for printing and a centralized budget category for Web-site publishing.
Other agencies include printing, CD, and Web publishing funds in the program funds available to many offices, including the office responsible for originating the material to be published.
Because variations exist in both the approval and budget processes, publishers should contact their agency’s printing officer or Webmaster before beginning work on publications.
•	Who can help promote the publication? Again, there are significant differences among agencies. The agency’s public affairs office is frequently a good place to start.
(See Distribution for more information.)
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II. Importance of Planning
Introduction
Planning is not only desirable in the Federal publishing environment, it is an absolute necessity. Today, having to produce more with diminished resources (less time, smaller/ retrained staffs, and decreased budgets), publishers must work harder AND smarter. In an environment where publishers must be budget-conscious while delivering high-quality products in less time, planning is vital.
Major savings in time and money can be accomplished through effective and thorough planning. These savings can be realized not only during the production of a publication, but throughout the publication’s life cycle, especially if the publication remains usable for a certain period and few revisions are required after publication.
Lack of planning can cause costly publication mistakes. If a publisher fails to coordinate a publication properly with policy authorities and subject-matter experts in its early stages, hasty and expensive author’s alterations to page proofs may be required when reviewers insist on last-minute changes. If the product is posted on the Internet without proper coordination, the ramifications may likewise be drastic.
This section of the guide is divided into two subparts. The first subpart discusses planning in the pre-production stages of a publication from conception to production. The second subpart discusses planning for the production and distribution of a publication and the various activities required.
Developing a publication plan
A publication plan can be a useful tool to ensure an orderly flow of publications through the organization while enhancing quality control and reducing production time. It can prevent inefficiencies, such as project “bumping” or wasting time on a publication that never gets published. Ideally, the plan should allow for slack time, for when related publications may be published concurrently, and for opportunities for revision during a publication’s life cycle. To initiate a publication plan for their organization, publishers should set priorities for publication projects by mission importance, impact, costs and benefits, and scheduling concerns.
In setting up a publication plan, projects may be grouped by priority, such as “1—Must publish,” “2—Should publish,” and “3—Can be deferred.” The plan should be flexible enough to facilitate substitutions from lower-priority categories as needed to use the production pipeline efficiently.
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The Publishing Process
A Simplified Flow Diagram
The Planning Phase
IO
Requirement
Content Development/ Resource Issues
Audience/Media
Publishing Plans
The Publishing Requirement
• program goals • specifications •specific audience
■ ■■ .
Authorizing Office
...	Audience(s) &
orMulti-
.	..	.	Audience-Driven
functional
, ...	.	Goals Defined
(multi-agency)
Group Established
Produces) Defined
Plan & Schedule Established
Outside content providers/ reviewers?
Reachable via www?
Professional graphic design needed?
Available in-house?
Outside assistance needed for research, data processing or editorial support?
Direct mail? Sales pub?
Desktop publishing or commercial typesetting required?
Legal review needed?
Will commercial media carry intended message to audience?
Companion Web product? •PDF?
• Unique HTML product?
End user reviews? (e.g. focus groups)
Publicity requirements separate products to publicize?
Scheduled events driving deadlines?
Archival requirements?
Concept and pre-publication conference
Publishing projects arise for many reasons—to publicize new programs, to disseminate policies, to explain new procedures, to inform and educate the public, or to update previously published material. The concept for the project may result from a legal requirement or mandate imposed by a higher organizational level, be inherited from someone else in the agency, or be the publishing official’s own. Planning should begin with a pre-publication conference. This meeting is usually initiated by the project director and is attended by program and policy experts, as well as by individuals with publishing expertise, such as editors, graphic designers, Webmasters, and printing specialists. It is important to include all members of the production team in the planning of a publication. Before a publishing project can progress, the participants must resolve these questions:
•	Is this publication needed? Does it conflict with or duplicate existing material?
•	Who is the audience for the publication? How large is the audience? At what educational level should the publication be targeted? Are its users in-house, Government-wide, or the general public? Are the intended readers a “captive” audience?
•	Does the intended audience have Internet access and sufficient computer and information literacy training to cope with the media and formats planned?
•	What is the publications function? Under what circumstances will it be used?
•	What medium is to be used for the publication: a full-length book, a pamphlet, a periodical? Will access be through microfiche, CD, the Internet? Is the publication required one time only or on a recurring basis? Will it have a short or long life?
•	Will the tone of the publication be formal or informal? Will the design be attention-getting, as a promotional piece might be, or strictly functional, such as a technical publication?
•	How long will Internet access or “shelflife” be? The question of how to ensure permanent public accessibility is a policy determination that must be made by higher-level program and agency officials.
•	What depth of material will be needed? How long must the publication be to cover the material adequately?
•	How much research is required and from what sources?
•	What level of editing and review must the project have?
•	What distribution is planned? Free, sale, depository libraries, National Archives?
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III.	Publishing Environment
As a publishing project gets under way, it is important to be reminded that the publisher is not working in a vacuum. The operating environment affects the publishing project as profoundly as resource and organizational factors shape the finished product. Resource constraints, such as staffing and budget, can determine whether the publishing project will even get off the ground.
In addition, external influences, such as Congressional mandates, can provide the requirement or authority to publish, affect the project’s format and content, and determine deadlines.
Establishing the project schedule
Now that the publishing project has evolved from an initial concept to a defined product, the project director must specify the tasks to be performed, establish the lines of responsibility, and devise a production schedule.
First, the project director should designate a project manager. Depending on the size of the organization and the complexity of the project, the project manager may be an expert in the subject matter, a writer, an editor, a Webmaster, a designer, a printing specialist, or an administrative staffer. In assembling a team for the project, this individual assigns responsibility for:
•	Research, including interviewing subject-matter experts and users;
•	Editing, including substantive copy editing and copy marking;
•	Review and approval of content;
•	Design, including graphics, photography, illustration, layout, and drafting of design specifications;
•	Procurement or coordination of production services; and
•	Dissemination.
Once lines of responsibility are established, scheduling should begin. The project director should start by determining the tasks that must be completed by the absolute deadline for the finished product and work backwards. When scheduling, time and flexibility should be built in to obtain necessary approvals (concurrent routing can save time here) and for unexpected events, such as the unforeseen absence of key team members or the shifting of organizational resources to a project with higher priority.
Communication and organization in production planning
The guiding principles for dealing with production personnel are good communication and sound organization. Printing officers,
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Webmasters, and production personnel want the process understood because understanding makes everyone’s life easier.
In working with the printing officer, the project director may discover how the product can be produced for less money without compromising quality or effectiveness. The Webmaster may provide a format that will speed the process of posting the information on the agency’s Web site. Useful topics to explore include:
•	Production options that deliver essentially the same product at significant cost savings;
•	Economies that can be achieved through long-term strategies, such as standardization of publications or the use of existing specifications and contracts for similar publications; and
•	Production resource availability.
Communicating with production personnel will provide information about production costs and scheduling requirements for various production options. For example, production personnel can explain the pros and cons of self-produced copy (camera-ready copy or digital files) versus professional graphic design (digital files or imagesetter output) for a printed product.
Publishers can “have it their way”—if they are willing to pay the price. By communicating with the printing officer or Webmaster, the project director can make an informed decision on whether the product justifies the price. Remember the following points as the project moves through production:
•	Submit projects in the format and manner that the production department or Webmaster asks. A valid reason usually exists for these requirements.
•	Ensure that the necessary forms are completed and approvals obtained before requesting any form of publication.
•	Strictly observe deadlines for tasks, such as providing information or returning proofs.
•	Avoid circumventing the normal production sequence or procedures. Otherwise, be prepared for delays, possible errors, and increased costs.
•	Maintain a list of everything sent to a production facility or the Webmaster. Wherever feasible, keep duplicates.
Production
By law, all printing is required to be produced or procured through GPO or a JCP-approved printing plant, unless otherwise authorized by the JCP. Although GPO hosts many agency Web sites, many other agencies host their own. (For a discussion of pertinent laws and regulations and GPO services, see Resources and References.)
The Publishing Process
A Simplified Flow Diagram
The Production Phase
Content	Production
Development	Planning/
& Review	Contracting
GPO/Contracting
Printing Contractor
Content Development
•	Cover Design
•	Page layout/fonts
•	Color(s)
•	Illustrations
•	Trapping
•	Clip art
•	Scan/place photos
Printing Officer provides:
QA inspectionaaai
Print
Order
v
Award purpose

Art/Mail lists
to GPO or Contractor
V
¥
Commercial
In-house
Proofread & Edit
Formatted proof Proofread
Artwork
Specifications
Mail/distribution lists
• Notice of Intent to Publish
• QA requirements
GPO specs Supt Docs Riders Agency Riders Solicit Bids Award
Mail-lists (mag.media) and distribution requirements to Printing Officer Notice of Intent to Publish
Reviews Share PC files and/or paper outputs for review?
Word processing Tables/charts separate files? Photos?
Illustrations?
Compile
Reviewer Edits
I
one-time bid to GPO
•	Print specifications
•	Preflight artwork
•	Preflight mail lists
•	Procurement strategy or source of supply
•	Quality assurance requirements
Final Artwork (typically desktop application file on digital media) Prepared for Printing Officer
n-house or
Commercia
production
Term
contract
or one-time
bid
Approved for Printing
Art/specifications mail lists to in-plant
--------Legend----------------------
Authors/Editors/Reviewers
Agency Printing Officer
Graphic Designer/Desktop Publisher
Commercial Contractor
GPO
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Whether publishing via the Internet, on a CD, or on paper, an approval/review process is needed to get the project completed. To simplify the process, the publisher should discuss the following issues with the printing officer or Webmaster long before starting production:
•	Cost estimates for publishing work;
•	Recommendations for cost-cutting measures that do not compromise agency or audience (user) requirements;
•	Advice and assistance for incorporating unusual technical requirements into printing or CD specifications;
•	Procedures for soliciting bids and awarding and monitoring contracts;
•	Methods for developing and monitoring the immediate project, as well as long-range publishing requirements;
•	Feasibility of establishing term contracts, which satisfy recurring needs over a specified period and normally provide better schedules and prices;
•	Ways of tracking work progress;
•	Establishment of product quality levels for printed products (the higher the quality required, the more costly and time-consuming the project is likely to be);
•	Necessity of monitoring quality during the production process, particularly for complex jobs; and
•	Identifying defects in the final product and initiating corrective action.
Distribution
Although distribution is the last step involved in getting publications into users’ hands, planning should begin early to avoid lost time or money and to ensure that the desired results are accomplished.
The agency’s publication plan, discussed earlier, takes in the “big picture” of distribution. This includes the quantity and the delivery of all the publications produced. Publication life cycles will also drive the distribution process as changes and revisions to existing publications become necessary. A project can also include a number of distribution concerns:
•	Feasibility or necessity of contracting out any or all of the distribution, including whether to use a Web site hosted by another agency;
•	Licensing; agencies may need to license commercial search-and-retrieval software for use with their product(s);
•	Who gets publications free of charge and who has to pay for them, either through direct purchase from the agency or through the Superintendent of Documents (for more information about such services, see Distribution Services)',
•	Public domain considerations for the entire product or for a part of the product only, including any restrictive arrangements the agency may enter into with the private sector that would limit the availability of the information, even though it is in the public domain;
•	Whether to make the information available on the Internet;
•	Procedures for maintaining and updating mailing lists;
•	Applicability of postal regulations;
•	Necessity for, or feasibility of, more economical mailing materials and methods, such as self-mailers and palletized or containerized shipping, or unique requirements, such as nonstandard boxes or envelopes;
•	Speed of delivery and budget for overnight versus first-class delivery, or feasibility of bulk-rate mailing;
•	Provisions for storage or warehousing of publications; and
•	Provisions for safeguarding sensitive materials, such as reports containing proprietary information.
Responsibility for the success of a publishing project lies with the publisher, not the editorial or production departments. The smoothness of the publishing process often depends on the project director’s organizational skills.
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The Publishing Process
A Simplified Flow Diagram
The Distribution Phase
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IV. Resources and References
Technology-related considerations
Concurrent with the major changes brought about by Internet pub-,	lishing, as well as CD and DVD publishing, the publishing industry
has undergone a major change from typeset publications to the full integration of computers throughout the production process for ink-,	on-paper printing.
Technological developments affecting publishing include:
•	Electronic technologies (CD and DVD publishing, electronic commerce, Internet publishing, online databases, digital video conferencing, and digital color copiers) that create new information dissemination options;
•	Digital pre-press and other design tools;
•	Digital file submission and remote return of production and proofing files.
One challenge associated with applying these new technologies is that the links between initial input and final product must often be customized. This requires coordination among the publisher, computer specialist, graphic designer, printing officer, Webmaster, dissemination specialist, and/or other service providers.
Specific technology issues for Federal publishers
Pre-production issues
Possessing the tools of a graphic designer does not a graphic designer make. Desktop publishing software provides powerful formatting tools, and it is often appropriate for the author/publisher, using desks’	top software, to act as a designer. Yet, without the knowledge and
skills of a professional graphic designer, the result can be less than desirable. It is best to seek professional advice.
With the proliferation of desktop publishing, the printing industry has taken a major step towards a more completely digital working environment. The submission of digital files has become more common within Government publishing and can greatly benefit—or harm—the production workflow. It becomes increasingly important to have experienced personnel work in conjunction with the creators of the publication so that the files sent to production contain all the digital information necessary to produce the publication as designed.
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File preparation options
Schedule, document complexity, availability of professional support, extent of author’s involvement in publishing activity on an ongoing basis, extent of outside reviews, and a variety of other factors must be considered in determining the approach to be used for product development and formatting. The design and development of any publication requires a great deal of hard work, expertise, appropriate computer tools, and ongoing communication with all involved. Even in today’s technological world there are no “magic solutions that make the process easy.
Pros and cons to be considered for some of the available options are synopsized below:
Option 1—Utilize standard office suite (word pro cessing/spread-sheet/presentation) software for formatting all text pages and embedded charts.
Pros: Gives authoring office full control of the document throughout the development and review process; could save time by eliminating desktop publishing process; digital files can be provided to reviewers.
Cons: Limited compatibility with printing processes (generally incompatible with printing company workflows); only suitable for use when one ink color will be used throughout (except for very low volume publications which can be most economically produced using color copier technology); software is limiting (limited export options and cumbersome chart and table placement).
Option 2—Utilize professional desktop publishing services (in-house graphics staff or commercial designer).
Pros: Professional design and layout; full compatibility with all printing processes (when files are correctly prepared).
Cons: Additional time required; limited residual benefit of formatting done by author in preliminary stages; once the master document is controlled within the desktop publishing system all author/reviewer changes must generally be posted to paper proofs (Adobe Acrobat Portable Document Format (PDF) notes provide a partial technological solution).
Option 3—Authoring office uses desktop publishing software.
Pros: Authoring office has full control of design/ development process with added functionality of desktop publishing software; mostly compatible with printing processes (if files are properly prepared).
Cons: Substantial learning curve; significant investment (hardware and software upgrades and training necessary, as technology changes quickly); must factor in time for professional file correction (by in
house printing/graphics organization and/or contractor); professional help needed for certain components (particularly photographs and close register of multiple colors); all reviewers must work with paper proofs only; skills in use of desktop publishing software are quickly lost if not consistently utilized; potential for cross-platform issues (e.g., author uses Windows and printer uses Mac).
Option 4—SGML Database or other “data warehouse. ”
Pros: Structured database perpetually maintained; facilitates reviews, data-sharing, variety of output reports (including annual publications); facilitates multimedia publishing (customized output can be predefined for various media).
Cons: Significant up-front effort to analyze document and define all possible data elements; all structural changes must be thoroughly defined and cataloged; must have “buy-in” of all involved; user learning curve; reviewers might need to work with “tagged” file rather than formatted publication.
When developing lengthy and predominantly textual published products, the printing officer may use the author’s text file as input to page-layout software. This frequently saves time and money and minimizes the possibility of introducing new typographical errors. However, no software exists that can correct grammatical errors at any stage in the production process.
Laser printers and color copiers, the output devices of choice in most office systems, support a variety of formatting options and can provide acceptable “camera copy” for some printed products.
However, publications requiring high quality should still be output from an imagesetter.
Dissemination issues
Agency publishers have a choice among many output media, and more than one may be necessary to reach the desired publishing goal. (See Distribution for more information.) Once a publication has been digitally created, a variety of output options exist. Selecting the most appropriate media depends on the answers to these questions:
•	What is my purpose?
•	Who are my audiences?
•	How can I efficiently and effectively reach each of those audiences?
•	What is the most usable product format for each of those audiences?
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Information dissemination techniques
Information dissemination
With the explosion of various media as alternatives or adjuncts to printing, there is a wide range of choices of how information is going to be disseminated. The key in publishing the project, then, becomes one of determining which media should be targeted. The earlier in the production process that the publishing media are chosen, the easier and less expensive it will be to accomplish.
Disseminating information falls into these basic categories:
•	Print
•	Internet/Intranet
•	Structured data
•	CD or DVD
The ideal situation in publishing to a variety of media is to have data that exists in a single source (preferably Standard Generalized Markup Language 1SGML] or its subset extensible Markup Language [XML] [see below]), which can then be repurposed to the desired media. While the initial development cost might be higher, the return on the investment is information that can be repurposed to any use and is independent of any proprietary software or operating system.
Legacy data issues
The use of publications that are based on proprietary file formats, or that exist only in printed form (either as out-of-print editions or as mechanicals) will add to the project’s cost. Again, the long-term benefit is captured information that can be used in a variety of applications on any operating system. If the project incorporates inherited, nonelectronic data or proprietary format data, time will have to be allocated to address conversion issues.
Publishing on the Internet/Intranet
Disseminating publications online expands their availability to an audience that might not have access to the printed version, and that increasingly expects to find Government publications on the Internet/Intranet.
Publishing on the Internet/Intranet can be easy if early planning includes provision for an online version. Creating an electronic version after a document is already printed is more difficult, but still possible.
HyperText Markup Language (HTML)
If it is decided to customize the publication for the Internet/Intranet, the current format of choice is HyperText Markup Language (HTML). Most word processing, spreadsheet, and database software allow for exporting to HTML format. However, due to software vendor inconsistencies, the result may not always be satisfactory. For this reason, HTML publications derived from vendor software generally require some manual tagging and cleanup.
As an alternative, the Webmaster or Web developer can be provided with plain ASCII text as the source data for the HTML tagging. Conversion to ASCII text, while fast and easy, can cause problems with tabular data or data with embedded footnotes. These problems can be overcome by the Web developer; however, time needs to be allocated to address these issues, which can increase the project’s overall cost.
extensible Markup Language (XML) and Standardized General Markup Language (SGML)
These markup languages allow for the logical structuring of data. Both markup languages bring a high degree of power to the data, allowing for full-text searching and retrieval, content subscription, and creation of virtual documents based on user preferences.
In addition, XML allows for e-commerce, business-to-business (B2B) applications, and application-to-application data interchange. XML is particularly suited to use on the Internet, and will soon become the lingua franca of the Internet as XHTML (HTML existing in an XML-structured environment). Agencies wishing to leverage their information for the future, especially with information that is subject to change over time, should consider the strengths of this emerging technology.
SGML is used for extremely high-end data leveraging that exceeds the scope of XML. SGML-based solutions require planning and development cycles that are generally of long duration. Therefore, if the data is to be structured in SGML, additional time and resources will have to be committed to the project.
XML- and SGML-based publications offer the most flexibility in publishing, either to print or to electronic format. They are both long-term solutions, however, and the project should merit such an approach for either to be a cost-effective solution to an agency’s publishing needs.
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Adobe Acrobat Portable Document Format (PDF)
The use of Adobe’s Portable Document Format (PDF) allows for the replication of the design, typography, and graphics used in the printed edition. Presenting an online version in PDF can be a low-cost alternative to other online presentations. Most desktop publishing formats, including PostScript, QuarkXPress, and Pagemaker, easily convert to PDF, as do the popular word processing formats.
Also, if a printed publication is to be published online and access to the files used to create it is unavailable, the publication can be scanned directly into PDF. This process is particularly effective in making Government forms available to the public and, with some development, the forms can be made interactive and fillable by the user.
In either case, users will have to download the free Adobe Acrobat Reader available on the Web from Adobe, Inc., which owns the rights to the Portable Document Format. There are many details to be considered in working with PDF such as resolution, which is very different for documents prepared for printers or for the Web; these should be discussed with the appropriate experts.
Database applications
Some publications will have databases as their data source—telephone directories, for example. The print editions of such publications are usually extracted into the page layout program; however, for electronic dissemination, a determination must be made in advance whether the publication is to be static or dynamic.
For a static representation of the data, most database applications can extract to tab-delimited ASCII text or to HTML, and the results can be turned over to the Web developer. In a dynamic solution, however, the issues become more complex and time-consuming: database access from the Internet, security issues, and browser compatibli-ties and capabilities all have to be considered.
While this method of publication offers exciting possibilities, it also needs to have development time allocated and will entail additional costs. Also, dynamic database solutions follow a build/test/ rebuild cycle, in essence creating an ongoing, ever-changing project. It should also be borne in mind that the larger the database, the more development time and expense. However, these “n-tier solutions” are very flexible and offer e-commerce, dynamic data retrieval, and various business-to-business possibilities.
Databases that are XML-aware comprise the emerging standard. Combining structured markup with the power of relational or new object-oriented databases will allow information to be leveraged in
ways that were not possible even a year ago. While the initial investment in time, resources, and funds in this type of development is higher than traditional electronic and print publishing, the long-term benefit will make this a very viable data repurposing resource.
CD and DVD publishing
CDs and DVDs are large-storage media and, when linked to the Internet, offer the capability of instant updating. Due to their enormous storage capacity (650 megabytes for a CD and up to 18 gigabytes for a DVD), these are viable solutions for publishing large collections of artwork, animation or video, and audio resources. In addition, they are excellent archiving media, and allow publishing to transcend normal ink-on-paper or Internet publishing. The cost of producing CDs has dropped dramatically in the past few years and is now an affordable adjunct or alternative to traditional methods. While newer and more costly, DVDs offer far greater capabilities and options than CDs, and the cost of producing them will continue to decline as they become more prevalent.
Other media
Facsimile (fax) publishing remains useful for some applications; it is still being used to deliver fax-back forms or information designed for a large audience. Fax publishing may eventually be supplanted, however, by e-mail or subscription-delivered content generated from XML or other data sources.
Wide Area Information Service (WAIS) allows an alternative electronic publishing possibility, either in conjunction with other forms, or as fully indexed and searchable text. It is a fairly inexpensive and rapid-development data solution.
Once the information is ready for publication in either a selected or a general format, there is a variety of services available to assist in publishing it.
Agencies providing publishing support
The Government Printing Office (GPO)
GPO’s Departmental Account Representatives, Regional Printing Procurement Office Managers and Electronic Product Development Specialists are the primary points of contact between Federal agencies and GPO. The account representatives and regional managers have expertise in GPO products, services, and applicable technologies. They can provide reports on work in progress or technical advice on
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such matters as commercial term contracts and electronic photocomposition. Following are descriptions of some of GPO’s services:
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Commercial procurement of printing
Once GPO decides that a product will be commercially procured, GPO’s Printing Procurement Department initiates the process by writing complete specifications. It also maintains a master list of bidders, solicits bids from contractors, and receives and certifies the responses. GPO’s procurement experts can meet with agency representatives to discuss technical and contractual matters, conduct pre-award surveys of potential contractors, and perform onsite press sheet inspections.
Once a contract is awarded, the Printing Procurement Department ensures that all contract terms are met. All procurements are entered into a computerized system enabling GPO to track each job every step of the way. The Printing Procurement Department also schedules common-carrier delivery of finished products, expedites and traces shipments, processes claims for damaged or lost goods, and investigates questionable charges.
Quality Assurance Through Attributes Program (QATAR)
GPO’s QATAP provides for the precise expression of quality requirements to be included in solicitations for commercial procurement for printing and related products. This facilitates the cost-effective purchase of no more than the exact requirements and provides the basis for an objective determination of conformity to these requirements once the product has been received. It also provides a sound basis for remedial action (correction, reprint, or discount) should such action become necessary.
Contracting methods
GPO will collaborate with the agency to select the contracting method and contract type that best meets the project’s needs. These options are discussed in the following paragraphs:
One-time jobs
For one-time jobs that are estimated to cost under $25,000 and are not complex, GPO generally will use a small-purchase procedure that allows the time required for solicitation development, request for and receipt of quotations, and contract formation to be kept to a minimum. Complex jobs and those estimated to cost more than $25,000 are contracted for through formal, sealed-bid procedures.
Term contracts
Sealed-bid procedures are also generally used to establish term contracts for recurring jobs for like products. Term contracts are the most effective and efficient means for satisfying recurring needs for substantially similar jobs. Term contracts provide for the purchase of individual orders as required over a specified period of time, generally a year.
Under term contracts, individual orders are placed with a single contractor, except where the volume of work makes a multiple-vendor award more efficient. GPO personnel can place individual orders under term contracts, and term contracts can also provide for direct placement of orders by agency personnel.
Simplified Purchase Agreements (SPAs)
Direct ordering is also possible under GPO’s Simplified Purchase Agreements (SPAs). These agreements with commercial vendors give originating agencies an opportunity to acquire information products and related services valued at up to $2,500 directly from vendors. GPO provides guidance and training as well as contract administration support, including contract payment. SPAs are not intended to fill needs in the manner of term contracts. They are most effective in satisfying recurring needs for small, dissimilar jobs.
Other contracting services
GPO can develop contracts that meet particular agency needs and provide for the full range of information products and services, including data capture, database maintenance, photocomposition with the digitalization of graphics, electronic mail, CD, DVD, printing and binding of multiple publications, and packing and distribution.
Professional design and pre-production services
GPO’s Typography and Design Division provides creative and professional graphic design, illustration, and Web design services in a state-of-the-art electronic environment; technical pre-production, proof review, and press and bindery inspections; and photographic and video services.
Training
GPO’s Institute for Federal Printing and Electronic Publishing (IFPEP) offers classes in electronic publishing and printing subjects for Federal employees, Federal depository librarians, and certain contractors. Visit its Web site it www.gpo.gov/ifpep, or contact the IFPEP for a catalog.
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Distribution services
Published products can reach the largest possible audience by taking advantage of the following organizations and programs:
The Federal Depository Library Program (FDLP)
The Federal Depository Library Program (FDLP) was established by Congress to assure that the public has current and permanent access to information published by the United States Government. The FDLP includes all Government information products, regardless of format or medium, which are of public interest or educational value, except for those products which are for strictly administrative or operational purposes, classified for reasons of national security, or the use of which is constrained by privacy considerations.
With the transition to creating, publishing, and disseminating Government information electronically, the FDLP has grown increasingly more reliant upon intangible, online electronic information. GPO is building systems and partnerships to link users to Government online publications through cataloging and locator services, providing appropriate instruction and support for Collection users, and ensuring permanent access to electronic Government information products. GPO’s goal is to provide access to and retrieval of Government online publications through the FDLP to a broad spectrum of users possessing a wide range of technical capabilities.
GPO oversees the dissemination of Government publications to more than 1,300 designated depository libraries throughout the country. Of these libraries, 53 are regional depositories that receive virtually all unclassified Government publications of public interest and educational value produced or procured through GPO or supplied by the producing agencies. The remaining libraries select the classes of publications they receive. These depository libraries, in turn, provide local, no-fee access to Government information in all available formats in an impartial environment with professional assistance.
Agencies are required by Title 44, U.S.C., Sections 1901—1903, to make of all their publications (“informational matter which is published as an individual document at Government expense, or as required by law”), regardless of the printing source or publishing format, available to the Superintendent of Documents for distribution to the depository libraries, except those that are:
•	Determined by their issuing agency to be required for official use only or for strictly administrative or operational purposes and to have no public interest or educational value;
•	Classified for reasons of national security; or
•	So-called cooperative publications, which must necessarily be sold in order to be self-sustaining.
Agencies are not responsible for the printing and binding costs of depository library copies if the products are acquired through GPO. When these products are not printed by or acquired through GPO, the publishing agency must pay for the printing and binding costs, as well as the costs of replication and software licensing associated with tangible electronic products for depository libraries. Such products include those produced in printing plants authorized by the JCP and those procured under a JCP printing waiver or under Government contract or grant. In all cases, GPO bears the expense of distributing the publications.
More information about depository library services and collections is available on the Web at www.gpo.gov/fdlp.
GPO's Sales Program
GPO’s Superintendent of Documents Sales Program offers about 10,000 Government information products for sale to the public, including books, magazines, journals, reports, pamphlets, maps, posters, CDs and DVDs, videotapes, disks, and microfiche. There is no cost to publishing agencies for including these products in the Sales Program. Whether a product is for consumers, the business community, or scientific or professional audiences, it is priced and sold to recover only GPO’s printing and other dissemination costs. All titles offered for sale can be ordered via GPO’s U.S. Government online bookstore, phone, fax, mail, or through GPO’s 23 bookstores nationwide.
To promote the sale of these products, the Superintendent of Documents employs a range of marketing and promotional vehicles to notify the public of their availability, including:
•	The U.S. Government Online Bookstore, offering all available sales products and a secure online ordering function at www.bookstore.gpo.gov.
•	The Sales Product Catalog, a searchable online catalog of all titles available for sale through the U.S. Government Online Bookstore;
•	U.S. Government Information, a periodic catalog of new and popular products;
•	New Information, a list of all new titles offered for sale;
•	The Business References Catalog, a listing of products of interest to the business community;
•	U.S. Government Subscriptions, a catalog of periodicals and other subscription services;
•	Subject Bibliographies, lists of titles relating to single subjects or fields;
•	Product Publicity Releases to notify the news media of the availability of selected new products;
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•	Fliers and sales letters to promote selected products;
•	Paid commercial advertising for selected titles;
Sales Program staff provide consulting services at no charge to Federal publishers interested in promoting their products in the Sales Program.
Publishers should submit GPO Form 3868, “Notification of Intent to Publish,” to the Sales Program in hard copy or via GPO’s Website before submitting information products to GPO for printing or replication. This form provides information on the product’s content and intended audience that is useful to the Sales and Federal Depository Library Programs. Publishers may also meet with Sales Program personnel before publication to discuss the publication’s sales potential. This form is available at: http://www.access.gpo.gov/su--docs/forms/3868/index.html.
Reimbursable services
GPO’s Superintendent of Documents offers Federal agencies a variety of reimbursable services to help them achieve their information dissemination goals. Reimbursable services include:
•	Receipt, storage, and distribution of agency materials;
•	Transit and mailing services; and
•	Mailing list services.
GPO Access
GPO Access is a service of GPO that provides free permanent online access to information products produced by the Federal Government. The information provided on the site is the official, published version, and the information retrieved from GPO Access can be used without restriction, unless specifically noted. In accordance with the requirements of Public Law 103-40, the “Government Printing Office Electronic Information Access Enhancement Act of 1993,” GPO Access was introduced on June 8, 1994 to provide the public with electronic access to the Federal Register and the Congressional Record, as well as other databases as deemed appropriate by the Superintendent of Documents. This unique online service;—the first of its kind established by Congress—allows users to locate electronic products available through the Internet and to order Government information products online. GPO Access can be reached through GPO’s homepage or directly at www.gpo.gov/gpoaccess.
GPO Access includes or points to more than 193,000 electronic Government publications. There are currently more than 1,600 databases comprising more than 80 Web applications, including the Federal Register, the Code of Federal Regulations, the Congressional Record, Congressional bills and reports, House and Senate calendars,
General Accounting Office reports, public laws, and the Commerce Business Daily (CBDNet). Additionally, there are a growing number of agency Government Information Locator Services (GILS) records and associated tools that serve as finding aids for official Federal Government information.
Additionally, more than 7,500 Federal agency files, in a variety of formats, are available for free download from the Federal Bulletin Board (FBB).
Recognizing the needs and technological capabilities of the public, GPO Access supports various electronic dissemination technologies on the Internet, including dial-up access and methods compatible with assistive technologies.
Electronic dissemination services for Federal agencies
Federal agencies can also take advantage of GPO’s experience and expertise in electronic information production and dissemination. Through GPO Access, GPO offers the following Internet services to Federal agencies: HTML Web page design, custom common gateway interface (CGI) script development, Web hosting, Web database development, toll-free user support via the GPO Access User Support Team, conversions to Adobe Acrobat Portable Document Format (PDF) files, and training.
GPO’s Office of Electronic Information Dissemination Services (EIDS) is responsible for assisting Federal agencies in disseminating their electronic information products through the Superintendent of Documents. EIDS works closely with GPO’s Production Department in all stages of product development, from the creation of electronic products to their final sale, including customer support and training. This includes advising agencies of alternative dissemination platforms and helping them define their requirements for electronic dissemination.
EIDS and Library Programs Service staff also work together to coordinate GPO Access training classes and “train-the-trainer” classes for Federal depository libraries and library networks across the nation.
For more information about the wide array of products and services available through GPO Access, contact the GPO Access User Support Team at 202-512-1530 (Washington, DC, metro area), or toll-free 1-888-293-6498, fax at 202-512-1262, or by e-mail at [email protected].
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The National Technical
Information Service (NTIS)
The National Technical Information Service (NTIS), as part of the U.S. Department of Commerce’s Technology Administration, supports the Nation’s economic growth and job creation by providing access to scientific, technical, and business-related information that stimulates innovation and discovery. NTIS accomplishes this mission through three major programs:
•	Information collection;
•	Sales to the public; and
•	Production and Web-based services to and for Federal agencies.
Federal agencies take advantage of NTIS to facilitate public access to their information products. Agencies are keenly interested in placing these products at NTIS in order to provide for their permanent retention. Once information is stored at NTIS, it is always available for sale to interested parties.
Federal agencies benefit from NTIS’s centralized information management system that can store, process, and distribute an agency’s publications, periodicals, computer data files, software, audiovisuals, and ongoing research.
On behalf of Federal agencies, NTIS:
•	Markets agencies products through its network of promotional and announcement media;
•	Creates a searchable bibliographic record of agency information products, fully indexed and abstracted; which is available for a fee.
•	Handles all the administrative and accounting details for the sale of agency information products as well as all aspects of subscription fulfillment; and
•	Stores the information and makes it available for retrieval at any time.
Federal agencies depend upon NTIS to sell information products frequently requested under FOIA thereby reducing FOIA administrative burdens.
Federal agencies use NTIS to meet their needs for a broad spectrum of information technology services. These include:
•	Database management;
•	Web site development and management; and
•	Secure Web and certificate authority.
For more detailed information, please see the NTIS Web site at www.ntis.gov/services or call the NTIS Office of Agency Liaison on 703-605-6506.
The Federal Consumer Information Center (FCIC)
The Federal Consumer Information Center (FCIC) is part of the U.S. General Services Administration in Washington, DC. FCIC uses the GPO distribution facility in Pueblo, Colorado, to fill orders for millions of Federal consumer publications annually. Orders are received by mail, via FCIC’s toll-free telephone number 1-888-8—PUEBLO (1—888-878-3256), and from an award-winning Web site, www.pueblo.gsa.gov. FCIC helps Federal agencies and private-sector partners develop and promote information on a wide variety of consumer topics. FCIC publishes the free Federal Consumer Information Catalog.
FCIC also operates a nationwide toll-free contact center that serves as a single point of reference for individuals with questions about Federal agencies, programs and services. The specially trained staff answers questions in English and Spanish about all aspects of the Federal government or directs callers to an appropriate contact.
The public can access the contact center by calling toll-free 1—800— 688—9889 (TTY 1-800-326—2996) between 9 a.m. and 8 p.m. E.T.
FCIC also publishes the free Consumer Action Handbook, one of the most informative and popular consumer documents published by the Federal government. This 148-page handbook is designed to help citizens find the best and most direct sources for assistance with their consumer problems and questions. Available in print and on the web at www.pueblo.gsa.gov, the Handbook provides thousands of contacts in both the private and the public sector, along with a sample complaint form to follow for a letter, fax or e-mail.
FCIC provides a wide range of services to help Federal agencies disseminate consumer information more effectively. They include:
•	Making the full text of all publications available electronically free of charge at www.pueblo.gsa.gov;
•	Helping with the design and development of publications;
•	Linking directly to Federal agencies and hundreds of consumer contacts at www.pueblo.gsa.gov;
•	Identifying corporate partners to help share the cost of printing and distributing publications;
•	Providing contact center services, including order processing, information, and referral;
•	Sending out news releases, broadcast scripts, and special promotions to thousands of media outlets at no charge to participating agencies;
•	Listing publications and ordering information in the Federal Consumer Information Catalog, which has an annual circulation of more than 12 million;
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•	Arranging for cost-ejfective distribution through GPO’s facility in Pueblo, Colorado;
•	Reporting regularly on the number of publications requested by consumers;
•	Evaluating public response to Federal publications;
•	Coordinating targeted mailings and promotions; and
•	Providing consumers with easy access to information through a toll-free telephone number and Web site.
FCIC carries both free publications and GPO sales titles. It also has a special low-priced publication program through which consumers share in the costs of receiving the publication. FCIC can also help Federal publishers find partners in the private sector to share publication costs for cooperative publishing endeavors.
For more information, e-mail [email protected]; telephone 202-501—1794; or write to:
Federal Consumer Information Center
1800 F Street NW, Room G—142
Washington, DC 20405
APPENDIX A
Pertinent Laws, Rules, Regulations, and Policies
Federal publishing and printing, like most Federal activities, are governed by a number of statutes, regulations, and policies. These laws and regulations are intended to save Federal funds, as well as to minimize waste and duplication of effort in the Federal Government’s publishing endeavors.
Title 44, U.S. Code (U.S.C.), Public Printing and Documents
The basic codification of laws governing Federal publishing and printing activities are contained in Title 44, U.S.C. This law established the Congressional Joint Committee on Printing (JCP) for the purposes of policy and oversight in Government printing and publishing. This law also:
•	Empowers the Government Printing Office (GPO), with few exceptions, to produce or procure all Federal printing, binding, and distribution;
•	Provides for the creation of Government Paper Specification Standards (see below);
•	Provides for the distribution and sale of Government publications by the Superintendent of Documents; and
•	Specifies that Government publications must be made available to the Depository Library Program.
Title 44 can be found on the Web at www.access.gpo.gov/aboutgpo/title44/44usc.html.
Public Law 104-201
Public Law 104—201, Section 1112(e)(1), Sept. 23, 1996, 110 Statute 2683 (Codified at Note, 44 U.S.C., Section 501) prohibits the expenditure of appropriated funds for the direct purchase of printing related to the production of Government publications (including printed forms) except through GPO. This legislation does not apply to individual orders costing less than $1,000, if these are not continuing or repetitive, or, as certified by the Public Printer, cannot be provided by GPO.
Printing includes the processes of composition, platemaking, presswork, duplicating, silk screen processes, binding, microform, and the end products of such processes.
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Government Paper Specification Standards
Title 44, U.S.C., also requires the JCP to establish appropriate standard grades of paper for all Government printing and publishing. This is accomplished through the Government Paper Specification Standards (available from the Superintendent of Documents). These Standards provide the following benefits:
•	A standard means of specifying the desired paper grade without having to research and specify suitable brand names;
•	A means of guiding agencies toward use of economical papers, while still offering a broad array of choices;
•	A detailed paper specification that allows for definitive scientific testing of paper characteristics as a means of determining whether or not the provided paper meets the paper specification (this is particularly critical for copier paper, security documents, archival requirements, and forms which undergo automated processing); and
•	A means of specifying and measuring guidelines for use of recycled papers.
The GPO also publishes the Government Paper Samples book, which contains actual samples of printing papers specified in the Government Paper Specifications Standards.
Agency publishers and designers, and particularly commercial designers hired on contract, should be aware of these paper specifications and develop their publication designs with these specifications in mind. Specifying a nonstandard, brand-name paper will delay processing, as the request will have to be changed to specify a paper included in the Government Paper Specification Standards before the job can be produced or procured. The agency will have to justify an exception request through the formal waiver process.
Government Printing and Binding Regulations
To clarify and focus the requirements of these laws, JCP issues the Government Printing and Binding Regulations, as well as occasional policy letters. Although some of these regulations are focused on inhouse printing and duplicating operations and related equipment, many provisions have direct bearing on Federal publishing activities. The Government Printing and Binding Regulations may be found on the Web at www.house.gov/jcp/jcpregs.pdf.
Highlights of some specific provisions that affect Federal publishing activities include:
•	Advertising or implied endorsement of any private individual, firm, or corporation is not permitted in Federal Government publications and other printed matter;
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•	Art signatures, courtesy credit lines, and publication bylines are only permitted in limited specific situations;
•	The inclusion of illustrations must be in concert with specific guidelines that address the function and benefit gained by their use;
•	Effective single-color design and layout is preferred over printing in more than one color of ink;
•	Mailing and distribution issues are addressed, particularly the use of self-mailer techniques, the need to update the accuracy of all mailing lists annually, and quantity limitations on free distribution to individuals or firms;
•	Information created at Government expense may not be made available to a private publisher for initial publication;
•	Publications and documents must clearly display the name of the issuing Government organization and other basic prescribed information;
•	The publishing of annual reports to the Congress is the subject of both specific statutory limitations in terms of timeliness and quantity (44 U.S.C., Sections 1111 through 1117) and policy limitations that prevent the use of decorative or costly embellishments.
Office of Management and Budget (OMB) Circular A-130, Management of Federal Information Resources
OMB Circular A-130, Management of Federal Information Resources, applies to Government information management and publishing activities. It provides uniform Government-wide information resources management policies as required by the Paperwork Reduction Act of 1980, as amended by the Paperwork Reduction Act of 1995 (Codified at 44 U.S.C., Chapter 35). The policies in this circular apply to the information activities of all agencies of the executive branch of the Federal Government. These policies provide, among other things, that agencies shall:
•	Ensure that records management programs provide adequate and proper documentation of agency activities;
•	Ensure the ability to access records regardless of form or medium;
•	Provide information to the public consistent with their missions;
•	Provide information, as required by law, describing agency organization, activities, programs, meetings, systems of records, and other information holdings, and how the public may gain access to agency information resources;
•	Disseminate information in a manner that achieves the best balance between the goals of maximizing the usefulness of the information and minimizing the cost to the Government and the public;
•	Disseminate information products on equitable and timely terms;
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•	Take advantage of all dissemination channels, Federal and non-Federal, including state and local governments, libraries, and private sector entities, in discharging agency information dissemination responsibilities;
•	Help the public locate Government information maintained by or for the agency;
•	Assure that information dissemination products are necessary for proper performance of agency functions (44 U.S.C., Section 1108);
•	Ensure that Government publications are made available to depository libraries through the facilities of the Government Printing Office, as required by law (44 U.S.C., Section 19);
•	Provide electronic information dissemination products to the Government Printing Office for distribution to depository libraries;
•	Establish and maintain communications with members of the public and with state and local governments so that the agency creates information dissemination products that meet their respective needs;
•	Avoid establishing restrictions or regulations, including the charging of fees or royalties, on the reuse, resale, or re-dissemination of Federal information dissemination products by the public; and
•	Set user charges for information dissemination products at a level sufficient to recover the cost of dissemination but no higher.
The term “information life cycle,” as defined in OMB Circular A-130, Management of Federal Information Resources, means ’’the stages through which information passes, typically characterized as creation or collection, processing, dissemination, use, storage, and disposition. ”Moreover, this same OMB Circular, in par. 8a(l)(a), says agencies must “consider at each stage of the information life cycle, the effects of decisions and actions on other stages of the life cycle, particularly those concerning information dissemination (italics supplied).”
Copyright laws
Copyright protection is not available for any work of the Government (17 U.S.C., Section 105). Also, copyrighted information generally cannot be included in Government publications without the written consent of the copyright holder.
Postal regulations
All Government mail must be properly accounted for and postage-paid. Mailing containers and self-mailers must include the appropriate penalty permit information. Penalty permits must be authorized for all commercial organizations preparing mail for the Government. Agencies frequently take advantage of bulk rates and/or pre-sort discounts for large mass mailings. Government also may use businessreply mail.
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APPENDIX B
Checklists
The purpose of this Appendix is to bring together in a simple format the various choices for product formatting, selection of medium alternatives, the applicability of publishing standards and guidelines, and relevant policy considerations, such as permanent public accessibility, permanent records retention, preservation, and authentication.
Checklist A
Planned product uses
Government information products are usually planned and designed with one or more expected uses in mind. Here are some of the most common uses (they are not necessarily mutually exclusive):
•	Bibliographic reference
•	Agency publicity and promotion
•	News events, speeches, appearances of key officials
•	Documentaries
•	Technical exposition
•	Information on Government entitlements and services
•	Scientific and technical use
•	Statistical data for analysis and research
•	Artistic and literary purposes
•	Preserving the National heritage
•	Oral histories
•	Informing citizens on the workings of Government
•	Helping/educating pre-school and school-age children
•	Informing and assisting the disabled and disadvantaged
•	Informing and assisting foreign audiences
•	Bulletin boards
•	Special interest group audiences
•	Assistance to business and industry
•	Assistance to lower levels of government
•	Assistance to gender, age, racial, and religious groups
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Checklist B
Types of data contained within a product
Information products are designed and packaged in part based on the kinds of data that are to be contained within the product. Here are the most common kinds of data:
•	Bibliographic
•	Graphical (photos, charts, graphs, tables, drawings)
•	Numerical and statisical
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•	Audio
•	Spatial (maps, coordinate files)
•	Textual (books, serials, reports)
•	Video
•	Multimedia (audio, video, text, graphics)
Checklist C
Types of media
The medium of a Government information product is the substrate used to create, organize, store, search for, retrieve, disseminate, or permanently archive data, documents, or literature, including paper, microforms, fiber-optic cables, photographic films, CD or DVD, floppy diskettes, magnetic storage devices, sound recordings, and videotape.
Here are some of the most important media currently in use:
Pre-electronic: Ink-on-paper, microform
Electronic—Magnetic Media: Magnetic tape, floppy diskette, hard drive
Electronic—Optical Media: CD-ROM, WORM (Write Once, Read Many disc), DVD (Digital Versatile Disc)
Online Media: Web, Gopher, bulletin board systems
Checklist D
Types of formats
In a general sense, the format of a publication is the manner in which its contents are organized, structured, named and described, classified, and arranged. Examples include: full narrative text in English language sentences in the form of books or articles, abstracts of text used in reviews and summaries, indexes and catalogs, maps, photographs, drawings, sound recordings, video tapes, audio tapes, bibliographies, and statistical and other numeric kinds of tabulations.
The term is also used to refer to a report layo it, a record layout, an electronic file format, and the way digital data is encoded or enscribed.
Database: Oracle, Sybase, DBase, WAIS, MARC
Spreadsheet: Excel, Lotus 1-2-3
Tagged Markup: HTML, XML, SGML
Image: GIF, JPEG, TIFF, PDF
Audio: WAV, AU, AIFF
Video: MOV, MPEG, AVI
Text: ASCII, RTF, NSI
Word Processing: WordPerfect, Microsoft Word
If online media are used:
User interfaces supported: Netscape, Internet Explorer, Telnet, FTP, nongraphical/dial-up shell
Web design approaches: Basic HTML text, tables, frames, CGI Scripts, use of Javascript, use of Java Applets, XML
Bulletin board systems: Graphical interface/browser
Checklist E
Searchability of the product
Searchability refers to whether users can access the data content through the use of fields, whether those fields are full text, and whether they are accessible exclusively in a “view-only” mode or can be manipulated.
Checklist F
Product host site
Host refers to the primary Web site where the public can find a Government information product. Among the choices are:
•	The originating agency
•	Another Federal agency
•	A contractor
•	An educational institution or a not-for-profit foundation
Checklist G
Retrievability of the product
Retrievability refers to the manner in which information located at a remote site is transferred to the server employed by a user once it has been searched and identified correctly.
Among the retrievability choices are:
•	The file(s) containing the information can be downloaded, used, and is/are not subject to any restrictions on use or reuse by the end user.
•	The file(s) containing the information cannot be downloaded, saved, and/or reused because it/they are part of a database and do not exist as a distinct, separate entity.
•	The file(s) containing the information cannot be downloaded, saved, and/or reused because it/they require proprietary software that cannot be distributed freely.
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Checklist H
Metadata records
Is there a metadata record for the planned publication? Among the choices are:
•	MARC (Machine Readable Cataloging record)
•	GILS (Government Information Locator Service record)
•	Specialized art, archival, music, and graphic materials records
Checklist I
Permanent public accessibility
For each Government information product it publishes for public dissemination, the agency must address the question of whether or not the product should be made permanently accessible to the public, i.e., made accessible for a continuing, indefinite period. Not all public information needs to be made permanently accessible. Moreover, while public access to a product is sometimes provided by the owning agency, it may also may provided by another agency, an educational institution, a commercial contractor, or another entity.
It would be helpful if each agency would maintain a register of its public information products which contains the following:
•	The complete, official name of each product, as well as any acronym or unofficial short title by which it is commonly known, and its complete bibliographic citation
•	Full contact information for the product’s manager or other point of contact, including telephone and fax numbers, e-mail address, etc.
•	The Web site URL address, or pre-electronic (e.g., paper or microform) location and address (such as a document repository or library) where the product can be accessed (in both current and any prior versions)
•	How the product can be accessed (e.g., format, medium, or other information)
•	Any access restrictions (e.g., privacy or security restrictions; proprietary restrictions, such as trade secret, trademark, patent, or similar considerations affecting entitlement)
Checklist J
Permanent records retention
Apart from whether or not the product is permanently accessible to the public, is it scheduled for permanent retention by the National Archives and Records Administration (NARA)? Agency publishing officials may need to consult with agency records officials to obtain this information and answer the following questions:
•	If the product is considered a record, or contains record material, what is its planned retention period?
•	What is the schedule identification information?
•	Is the record being held in a temporary records center or archive? If so, what is its location?
•	What is the location (full address) of the permanent records center in which the record is housed?
•	Are there any special terms or conditions regarding access to the record after it has been archived?
Checklist K
Authentication
Authentication is the certification of a Government information product attesting to its legitimate official status. Ensuring the authenticity of a product involves product design, planning and policy development, and technical considerations, not “after the fact” considerations.
How will the agency distinguish between “official and true copies,” including the alternative of an official “on-screen” version of a product, versus unofficial, or perhaps “working copies” of the product? “Electronic signatures” are among the technical considerations that may be involved in authentication.
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