ADMINISTRATIVE NOTES 

 Newsletter of the Federal Depository Library Program

Vol. 17, no. 05 GP 3.16/3-2:17/05 March 15, 1996 

Interstate Commerce Commission Abolished

Functions Transferred to Federal Highway Administration

 Effective 1 January 1996, the Interstate Commerce Commission (ICC) was abolished and its 

functions were transferred to the Department of Transportation, Federal Highway Administration 

(FHA). 

 

 The ICC Register (SuDocs IC 1.35:, item 0678-A) is now being issued as the Federal Highway 

Administration Register (TD 2.71:, item 0678-A). All other former ICC titles are under review by 

the Federal Highway Administration for applicability to the FHA mission. 

 

 FHA staff have notified the Library Programs Service (LPS) that many former ICC titles may be 

merged into existing FHA titles. FHA staff do not believe that any former ICC titles other than the 

ICC Register will continue as separate titles. 

 

 Until the agency review of ICC titles and programs is completed, the status of these titles will be 

unknown. Because of this uncertainty, LPS will maintain all former ICC class and item numbers 

as inactive until the FHA notifies us of its decisions. 

 

 As information becomes available it will be published in the Update to the List of Classes or 

Whatever Happened To...? columns in Administrative Notes, Technical Supplement. 

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Surface Transportation Board Register Distributed 

in Error

 The Federal Highway Administration has notified LPS that the Surface Transportation Board 

Register is for internal agency use only. This title should not have been distributed to depository 

libraries. No class stem will be assigned, and depositories that received this title may treat it as a 

secondary copy (see Instructions to Depository Libraries, rev. April 1992, page 18). 
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Digital Raster Graphics CDs Being Shipped 

 LPS is distributing Digital Raster Graphics CD-ROMs (SuDocs I 19.128:, item 0621-J-02) 

beginning with shipping list 96-0023-E, dated March 1, 1996. Each disc is being shipped to 

depositories in the states represented on that disc. LPS has found that the labels on the disc or 

jewel case do not always include all the states on the index files. We will distribute the discs to 

depositories in the states that are included on the index files, whether or not they are listed on the 

label. 

 Abridged Monthly Catalog Published

 The Library Programs Service has published the January 1996 Monthly Catalog of United States 

Government Publications, the first issue of the abridged paper edition. It was distributed to 

depository libraries on shipping list number 96-0032-S, dated February 15, 1996. Approximately 

271 depository libraries have selected the abridged Monthly Catalog. 

 Publishing costs for the full-size Monthly Catalog had been more than $500,000 annually. 

During the past two years, the Library Programs Service has been working towards reducing these 

costs, in consultation with the depository library community. The abridged Monthly Catalog plays 

a large part in reaching this goal. The January 1996 issue, with 229 pages and 2,324 cataloging 

records, is dramatically smaller the January 1995 issue, with 1,194 pages and 2,782 records. A title 

key word index provides access to the abbreviated records, which include OCLC numbers. 

 Complete, unabridged Monthly Catalog records are available online from the SuDocs page at 

the GPO website. The searchable Monthly Catalog database contains cataloging records from 

1994 through the present. The most direct address for the Monthly Catalog online database is: 

http://www.gpo.gov/su_docs/dpos/adpos400.html. 

 We are continuing to develop a CD-ROM edition of the Monthly Catalog for distribution 

during the early part of this year. 

 Questions regarding Monthly Catalog products may be directed to: 

 Thomas A. Downing 

 Chief, Cataloging Branch 

 Library Programs Service 

 voice: (202) 512-1121 

 fax: (202) 512-1432 

 e-mail: catlps@access.digex.net 
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Council Promotional Leaflet Re-Issued 

 Attached to this issue is camera-ready copy of the Depository Library Council's leaflet: Federal 

Depository Libraries, Your Source for Yesterday's, Today's, & Tomorrow's Government 

Information. The leaflet was originally issued in the spring of 1995. This camera-ready copy is 

being provided to depositories so they may duplicate it for distribution to the public if they wish. 

 Revised Guidelines Published

 The revised Guidelines for the Federal Depository Library Program have been published as 

Supplement 2 to the Federal Depository Library Manual. The new Guidelines were distributed to 

all depository libraries under item 0556-C, SuDocs GP 3.29:D 44/993/SUPP.2, on shipping list 96-

0146-P, dated February 28, 1996. 

 The Guidelines set forth program and performance goals for the depository libraries and the 

Government Printing Office, and they incorporate the formerly separate Minimum Standards for 

the Depository Library System. These documents, last revised in 1987, needed to be updated to 

take account of the many technological changes that have affected the Federal Depository Library 

Program during the last decade. 

 The Guidelines were revised by a working group of depository librarians established by the 

Depository Library Council to the Public Printer. GPO and the Council would like to thank all 

those involved for their contributions to the Federal Depository Library Program. 

Working Group on Revising the Guidelines for the Federal Depository Library Program

 Duncan Aldrich, University of Nevada-Reno 

 Ann Bregent, Washington State Library 

 Susan Dow, State University of New York-Buffalo 

 Jan Fryer, Iowa State University, Chair 

 Patrick Grace, Seattle Public Library 

 Ridley Kessler, Jr., University of North Carolina 

 Sheila McGarr, Government Printing Office 

 Paul Pattwell, Newark Public Library 

 Andrea Sevetson, University of California-Berkeley 

 Bobby C. Wynn, Fayetteville State University 
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 New Census Home Page Prototypes Announced

[The Census Bureau provided the following announcement for publication in Administrative Notes.]

 On March 1, 1996, the Census Bureau launched a beta test of its newly designed HOME 

PAGE. Two prototype designs are included in this test. Since depository librarians represent a 

large segment of our customers, we would value your input. Please take some time to visit the test 

site, review, and comment on each of the two designs. We believe these designs provide a better 

corporate Look & Feel and allow access to our many offerings in a simple straight-forward manner. 

 You may reach the test site by clicking on the text below the current home page, through the 

"Latest News" button, or you may go directly to the site using URL: 

http://www.census.gov/ftp/pub/apsd/www/testsite/ 

 

 Thank you for your interest in this as in the past. 

 Wick Caldwell 

 (301) 457-1242 

 caldwell@census.gov 

Electronic Distribution of Electronic Documents 

Begins 

 The transition to an electronic depository program has begun. On Thursday, February 29, 

1996, GPO mounted Preparing for the 21st Century: An Appraisal of U.S. Intelligence on GPO's 

World-Wide Web (WWW) server. This publication is the only report to be published by the 

Commission on the Roles and Capabilities of the United States Intelligence Community. The 

universal resource locator (URL) is http://www.access.gpo.gov/int/index.html. The document is 

available in both ASCII and PDF. The document was classified Y 3.2:C 17/IN 8/INTERNET for 

the Monthly Catalog. 

Census Marketing Brief 

 The Bureau of the Census provided the Marketing Brief, which appears on the next two pages, 

for the information of depository library staff. 
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Michael F. Dimario 

Public Printer 

Prepared Statement Before the 

Subcommittee on Legislative Appropriations 

Committee on Appropriations 

House of Representatives 

On 

Appropriations Estimates for Fiscal Year 1997

Tuesday, March 5, 1996

 Mr. Chairman and Members of the Subcommittee, I am pleased to present the funding 

requirements of the Government Printing Office (GPO) for FY 1997. 

 FY 1997 APPROPRIATIONS REQUEST

 

 For FY 1997, I am requesting $114.6 million for those programs that require annual 

appropriations directly to GPO. This is an increase of less than one-half of one percent over the 

funding approved for FY 1996. The request includes $83.8 million for the Congressional Printing 

and Binding Appropriation and $30.8 million for the Salaries and Expenses Appropriation of the 

Superintendent of Documents. The request for the Salaries and Expenses Appropriation includes 

 a plan for the transition of the Federal Depository Library Program from ink-on-paper 

dissemination to predominately electronic information dissemination, in accordance with the 

requirement contained in section 210 of the Legislative Branch Appropriations Act for FY 1996 

(P.L. 104-53). 

 RESULTS OF OPERATIONS, 1995

Cost Savings through Downsizing:

 The financial picture at GPO is significantly improved over what it was a year ago. The year-end 

loss, which was $21.8 million in FY 1994, was approximately $3 million in FY 1995, a decrease of 

86 percent. The loss represented less than four-tenths of one percent of GPO’s total FY 1995 
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revenues of $852.6 million, and was funded out of GPO’s retained earnings. One of the most 

important cost and performance indicators--personnel compensation and benefits--decreased by 

$14 million during the year, or slightly more than 6 percent. Most of this decrease, more than $9 

million, occurred in GPO’s printing plant area. During the year, GPO’s financial statements were 

audited by Arthur Andersen, under contract with the General Accounting Office. The audit 

resulted in a clean opinion for GPO. 

 Because GPO’s regional printing plants continued to lose money in FY 1995, it is no longer 

feasible to continue most of these operations. Last year we closed the Seattle regional printing 

plant. This year we plan to close the Chicago, New York, and San Francisco plants. These 

downsizing and consolidation measures follow the recent consolidation of Superintendent of 

Documents operations from leased to owned space at GPO’s central office, the downsizing of 

warehouse space in Virginia, and the relocation of Rapid Response Center operations from the 

Washington, DC, Navy Yard to the central office plant. 

 Modernization in technology and increased operational efficiencies have enabled substantial 

reductions in GPO’s workforce. Since February 1993, GPO has reduced its workforce by 

approximately 900 positions, realizing a savings of about $45 million annually. The number of 

supervisors has also been reduced. Of the 4,000 positions reduced from the workforce through 

improved technological productivity in the past 20 years, nearly a quarter has been reduced in the 

past three years. By September 1996, GPO will meet the mandated FTE level of 3,800. We 

recently conducted an early-out retirement program that resulted in the reduction of 94 positions. 

We are currently operating another early-out program that will run until May 1996. 

 To achieve savings, additional workforce downsizing will continue. However, the extent of the 

downsizing must be managed carefully so that it does not impair GPO’s ability to perform its 

mission to serve Congress. GPO has been able to accommodate significant statutory FTE 

reductions in recent years without impairing services. Continued reductions of these sizes, 

however, will deprive GPO of the flexibility to process work expeditiously. 

 

Performance:

 Congress was in session longer this past year compared to the previous year, generating more 

pages of the Congressional Record. For the first session of the 104th Congress, there were a total 

of 35,003 pages of House and Senate proceedings, compared with a total of 27,044 pages for the 

second session of the 103d Congress, an increase of 29 percent. On the first day of the 104th 

Congress alone, the Congressional Record totaled 603 pages. Throughout FY 1995, the Record 

was delivered on time 97 percent of the time; instances of lateness were usually due to late 

sessions. Overall, however, other congressional workload levels were moderate, especially in the 

latter part of the year. 

 At the same time, overtime utilization during FY 1995 decreased 21 percent, yielding a 

reduction in overtime costs of $2.6 million, or 19 percent, compared with the previous year. The 

reduction in overtime was due to a combination of factors, including a new policy under which 

supervisors are provided with compensatory time off in lieu of overtime, less overtime worked by 

GPO details to Congress due to improved overtime management by the committees and GPO 
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staff, increased efforts by GPO to improve the scheduling of work and control overtime use, and a 

relatively moderate congressional workload. 

 During the Government-wide shutdown in November 1995, GPO’s production and 

congressional printing management operations remained at work at the request of the House and 

Senate leadership to provide legislative products essential to the orderly conduct of congressional 

business. 

 GPO processed an increased dollar volume of procured printing during the year. Total 

revenues from printing procurement were $574.7 million, compared with $526.8 million the 

previous year, an increase of 9 percent. The rise in dollar value was attributable in part to 

increased paper prices in the private sector. GPO attained a 94 percent on time delivery rate and a 

99 percent quality acceptance rate for procured printing during FY 1995. 

 During the year, GPO established a direct-deal term contract to be used by Members of 

Congress for the printing of personal office requirements, such as newsletters, schedules, 

miscellaneous stationery items, business cards, and other needs not provided for by Title 44. 

Technology Improvements:

 GPO continued to make operational improvements during the year, taking advantage as much 

as possible of new technology to deliver products and services. Three state-of-the-art offset presses 

are now operational for producing the Congressional Record and the Federal Register. We 

operate print-on-demand capabilities, which are networked to our automated composition system, 

at our plant and on-site for the Senate. We provided assistance in establishing a similar print-ondemand capability for the House. The on-site print-on-demand systems on Capitol Hill are 

designed to reduce the volume of documents stored in the House and Senate document rooms. 

In addition, we have a pilot program in place to test the use of a print-on-demand capability in 

GPO’s main bookstore for the remote printing of Government publications downloaded from 

GPO Access, GPO’s online information dissemination service. Depending on the results, this 

service could be extended to GPO’s other bookstores located nationwide. 

GPO Access Service:

 GPO Access features fully searchable online access to the daily Congressional Record for the 

second session of the 103d Congress and for the 104th Congress to date, the Congressional 

Record Index from 1983 forward, the daily Federal Register from 1994 to date, the Unified 

Agenda of Federal Regulations from 1994 and 1995, congressional bills from the 103d and 104th 

Congresses, the History of Bills from 1983 forward, the recent hearing on campaign reform 

legislation, Jefferson’s Manual and Rules of the House of Representatives, Economic Indicators, 

General Accounting Office reports, the U.S. Government Manual, the Congressional Directory, 

House and Senate calendars for the 104th Congress, the Privacy Act, the U.S. Code, the U.S. 

Budget for FY 1997, and Government Information Locator (GILS) records from a variety of 

different agencies, including the Office of Management and Budget and the Departments of 

Commerce, State, and Treasury. GILS is a decentralized collection of agency-based information 

locators using network technology and international standards to direct users to relevant 

information resources within the Government. Additional databases, including the Code of 
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Federal Regulations, are under development. GPO-produced databases for the Record and other 

legislative information form the core of the Library of Congress’s THOMAS legislative 

information service and the information services provided by House Information Resources 

(HIR). 

 Last year GPO completed acquisition of a new Standard Generalized Markup Language 

(SGML) software package that will provide the most flexibility and capability for meeting the 

requirements of congressional, Federal agency, and public information needs, in accordance with 

the intent of the GPO Electronic Information Access Enhancement Act of 1993 (P.L. 103-40). 

Use of SGML as a documents standard for legislative information products was also 

recommended by the House task force that prepared “An Information Systems Program Plan for 

the U.S. House of Representatives” in November 1995. In September 1995, a multi-agency pilot 

program was initiated for the purpose of standardizing electronic submissions in SGML for 

documents published in the Federal Register and the Code of Federal Regulations. 

 Public acceptance and utilization of GPO Access have expanded dramatically in the past year. 

In March 1995, GPO was the recipient of the annual James Madison Award, sponsored by the 

Coalition on Government Information, for enhancing public access to Government information. 

In December 1995 we announced that the service would be provided at no charge. Utilization 

increased exponentially following the announcement, to approximately 7,000 document 

downloads per hour, the equivalent of nearly five million document downloads per month (these 

are measured as actual document downloads by GPO’s Wide Area Information Server--WAIS--

rather than simply as file or system transactions). During the Government-wide shutdown in 

November, GPO Access was the only Government information system providing daily online 

access to the Congressional Record, Federal Register, and other important information. 

Other Online Improvements:

 In 1995 we inaugurated a GPO home page linking users electronically with a wide variety of 

GPO information services. These services now include the electronic posting of bid solicitations 

to enhance competitive opportunities for Government printing contracts among private sector 

printers. Along with electronic funds transfer and related measures, this feature is in keeping with 

other Government-wide electronic commerce initiatives. GPO’s home page also links users with 

GPO Access via the World Wide Web, although GPO Access also remains available to users who 

do not have access to the Web via dialup and telnet capabilities, and through a network of 

electronic gateways established in cooperation with participating depository libraries nationwide. 

 These and other operational improvements, combined with GPO’s ongoing downsizing, are 

transforming GPO into a smaller but more technologically proficient information service to meet 

the demands of Congress, Federal agencies, and the public. 
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 CONGRESSIONAL PRINTING AND BINDING APPROPRIATION

Estimated Requirements and Workload:

 Our FY 1997 request for the Congressional Printing and Binding Appropriation of $83.8 

million is the same as the level appropriated in the current fiscal year. Workforce downsizing, 

improved production efficiencies, and reductions in the number of copies distributed have 

reduced the cost of congressional printing. The Congressional Printing and Binding 

Appropriation has declined in each year since FY 1992, a reduction of 6.3 percent over the period. 

 This reduction has been achieved despite the need to fund pay raises, substantial increases in the 

cost of paper, and other mandatory increases. 

 The major categories of work produced for Congress include the Congressional Record, 

committee hearings, bills, resolutions, amendments, committee prints and reports, documents, 

stationery, franks, and business and committee calendars. The volume of work required by 

Congress varies based on the legislative schedules of each session of Congress, as well as other 

factors which sometimes are unpredictable. 

 Based on historical analysis of workload data by session, we anticipate there will be a reduction 

in work for the Congressional Record, committee and business calendars, committee reports, 

documents, miscellaneous printing and binding, and details to Congress. Cost reductions in these 

categories of printing will offset projected cost increases for workload increases in other categories. 

 We project an increase of about 23,000 pages of committee prints, 13,000 pages of bills, 

resolutions, and amendments, and 11,000 pages of hearings. We also project an increase of 6,000 

pages for miscellaneous publications, which will include a revised printing of the U.S. Constitution 

and miscellaneous Presidential inaugural products. 

Cost Savings Initiatives:

 In 1996 we plan to reduce the page rate for the Congressional Record to reflect productivity 

gains in production as well as the requirement for a reduced number of copies. The new rate will 

be $435 per page, as opposed to the old rate of $466, a reduction of 6.7 percent. In addition, we 

will offer a discount of $39 per page to encourage the submission of Record copy in electronic 

format, much as we do for the Federal Register. For those pages submitted electronically, there 

will be an overall page rate reduction of 15 percent from the old rate. 

 Currently, very little Record copy for House proceedings is submitted electronically to GPO, 

although we are fully prepared to accept it. Electronic submissions on the Senate side currently 

range from 30 to 40 percent of Record copy. The House began submitting proceedings in 

electronic format via fiber optic links with GPO in late November 1995. In early February 1996, 

staff of GPO’s Congressional Printing Management Division met with staff of the Office of the 

Clerk of the House to discuss measures for increasing the transmission to GPO of electronic files 

of legislative data that are captured at the source in the House, as well as measures to expedite the 

printing process for a variety of products. The discussions were helpful and we look forward to 

working with the Office of the Clerk to improve printing services for the House and further reduce 

costs. 
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 Other cost savings in congressional printing are being achieved as the result of congressional 

action. In its report on H.R. 1854, and in the Legislative Branch Appropriations Act for FY 1996, 

the House Appropriations Committee and Congress directed a number of cost saving measures 

aimed primarily at reducing the number of paper copies of various congressional publications 

distributed without charge. 

 The total distribution of copies of the Congressional Record in paper has been cut from 16,935 

to 10,615, a reduction of 6,320 copies per issue, based primarily on the direction to eliminate the 

distribution of copies to public agencies and institutions designated by House Members. This will 

save about $1.5 million annually. A plan for reducing the number of copies of hearings provided 

to originating House committees from 300 to 150 is being developed in cooperation with the Joint 

Committee on Printing. Special binding for House committees has been limited to two copies per 

publication. Funding for free copies of congressional publications distributed by Congress without 

charge to recipients designated by law, with the exception of depository libraries, has been 

eliminated. Recipients affected include former Members, judges, the Library of Congress, and 

various Government agencies. The free distribution of soil surveys by Members of Congress has 

been eliminated. As directed by this Subcommittee, GPO is continuing to work with the staff of 

the Joint Committee on Printing to carry out these reductions in a reasonable manner, providing 

certain exemptions in order to meet legislative needs. We also plan to end the issuance of bulk 

shipments of Record copies to Congress. Instead, each copy will be labeled to facilitate 

accountability for all copies printed. 

 Additional cost savings will be achieved through a new arrangement for the printing of 

letterheads for Members of the House, under which the House will no longer furnish the stock for 

printing. GPO will furnish the stock and perform the printing when requested, reducing paper 

storage costs to the House. 

Library of Congress Legislative Information Service Plan:

 Section 209 of the Legislative Branch Appropriations Act for FY 1996 directed the Library of 

Congress to develop a plan for the creation of a single legislative information system to serve the 

entire Congress. GPO had limited opportunities to comment on the development of this plan 

and, at the Library’s request, any GPO comments were at the staff level. We recently managed to 

obtain a copy of the final Library plan which was transmitted to the House and Senate Committees 

on Appropriations, the House Committee on House Oversight, and the Senate Committee on 

Rules and Administration. We are currently reviewing the plan, and will transmit formal 

comments to the Library as well as these committees, including this Subcommittee. 

 We have serious concerns about the Library’s plan for a single legislative information service to 

serve both Congress and the public, which apparently would be run under the direction of the 

Library. The GPO Access service was created by public law to provide public access to official 

legislative and other Government information. Many congressional offices now utilize it, it has a 

vast number of public users, and it has become a critical component of the Federal Depository 

Library Program (FDLP). 

 The transition plan we are submitting with this appropriation request for the conversion of the 

FDLP to a predominately electronic basis, in response to a statutory requirement in the Legislative 
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Branch Appropriations Act for FY 1996, depends on the utilization and expansion of GPO 

Access. To the best of our knowledge, there was no consultation by the Library with the ongoing 

depository library study group, also created in response to a statutory requirement in P.L. 104-53, 

about the impact of its plan for a single legislative information service on the future of public access 

through the FDLP, nor does there appear to have been any consultation on this plan with the 

library community at large. 

 There is clearly a need for a discussion of the roles, responsibilities, and capabilities of the 

various legislative support agencies in providing legislative information services. However, the 

Library’s plan presents only one option, and we have not been provided with enough information 

on the alternatives that were considered by the Library to know if this is the best option. These 

comments, as well as others, will be included in the formal comments on the Library’s plan that we 

will transmit to Congress.

 SUPERINTENDENT OF DOCUMENTS

 SALARIES AND EXPENSES APPROPRIATION

Estimated Requirements:

 Our FY 1997 request for the Salaries and Expenses Appropriation of the Superintendent of 

Documents is $30.8 million. This is an increase of $520,000, or 1.7 percent, over the funding 

approved for FY 1996, but a reduction of $780,000, or 2.5 percent, from the funding approved 

for FY 1995. The request includes increases of $500,000 for technology grants to depository 

libraries and an additional $20,000 in travel for promoting training and continuing education 

opportunities for the librarians. Both of these initiatives are part of the transition plan to convert 

the Federal Depository Library Program (FDLP) to predominately electronic information 

dissemination. 

 The Salaries and Expenses Appropriation funds the FDLP ($27.2 million, or 88 percent of the 

total Salaries and Expenses Appropriation request, is for this program), the Cataloging and 

Indexing Program ($2.6 million, or 8 percent), the International Exchange Program ($509,000, or 

2 percent), and the By-Law Distribution Program ($482,000, or 2 percent). 

FDLP Study:

 Section 210 of the Legislative Branch Appropriations Act for FY 1996 required GPO to 

conduct a study to identify measures necessary for a successful transition to a more electronic 

FDLP. In response to the requirement for broad consultation on this matter, GPO formed a study 

group comprising representatives from GPO, the Joint Committee on Printing, the House and 

Senate Appropriations Committees, the House Oversight Committee, the Senate Rules and 

Administration Committee, the House Government Reform and Oversight Committee, the Office 

of Management and Budget, the Congressional Research Service of the Library of Congress, the 

National Archives and Records Administration, federal publishing agencies, the Administrative 

Office of the U.S. Courts, the depository library community, and others. The study will be 

completed in March 1996. 
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FDLP Electronic Transition Plan:

 During consideration of the Salaries and Expenses Appropriation for FY 1996, the House 

unambiguously indicated its preference for an electronic FDLP at an early date. Section 210 of 

the Legislative Branch Appropriations Act for FY 1996 required GPO to include in our FY 1997 

appropriations request a proposal for the conversion of this Program that would assure 

substantial progress toward maximum use of electronic information dissemination technologies 

by all entities of Government with respect to the FDLP and information dissemination generally. 

 This plan is included in our appropriations request. It has been submitted to the study group and 

others for consideration and comment. 

Transition Plan Summary:

 “The Electronic Federal Depository Library Program: Transition Plan, FY 1996-FY 1998" 

was developed under the assumption that the FDLP would be changed to a predominately 

electronic program by the end of FY 1998. The plan addresses significant changes for GPO as 

well as the nation's nearly 1,400 depository libraries. 

 Under the transition plan, the FDLP, which is managed by the Library Programs Service 

(LPS) of the Superintendent of Documents (SOD), would move rapidly to an electronic service 

environment in which official Government information would be accessible to the public directly 

or through depository libraries from Government on-line services directed to the libraries by 

SOD. Electronic information would be accessible at SOD sites, from other Government 

agencies, or from institutions acting as agents for the Government. Some information would be 

distributed as tangible electronic products, such as CD-ROMs or diskettes. 

 The electronic FDLP would augment the geographically-dispersed collections of books and 

microfiche with connections to Government on-line electronic services. The responsibility for 

ensuring extended public access would include both the libraries and the SOD. To provide 

extended access to online data, the SOD would assume such costs as data preparation for 

mounting, maintenance, storage, and ongoing costs to minimize deterioration and assure 

technological currency. The SOD would work with the National Archives and Records 

Administration (NARA) to ensure that electronic information made available through the FDLP 

is included in GPO’s records schedule for preservation. 

 The plan assumes that some FDLP expenses, especially those associated with acquiring and 

shipping physical printed products, would decline as the use of electronic technologies increases. 

 The plan anticipates offsetting cost savings in such areas as postage and shipping costs, printing 

of depository copies, microfiche contracts, and space charges. 

 To effectively accomplish this transition by the end of FY 1998, technical implementation 

assistance would be required. A statement of work for contractor support in FY 1996 is included 

with the plan. 
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Impact on Appropriations:

 The transition to an electronic FDLP is planned to occur without major increases in 

appropriations. With the exception of additional funding for technology grants and travel, the 

plan would be funded by savings realized through the reduction in distribution of paper or 

microfiche versions. The redundant dissemination of content in different formats (e.g., paper 

and microfiche, or microfiche and electronic, or CD-ROM and on-line) would be eliminated due 

to the limited availability of funds. Once the transition to an electronic FDLP is complete, only 

"core" paper titles would represent potential duplicate distribution, as their content would also be 

available electronically. 

 Cost savings in the FDLP under the transition plan would support no-charge use of the GPO 

Access services for depository libraries and the general public. FDLP costs would shift from 

printing, microfiche conversion and reproduction, and shipping and handling, to other costs and 

work associated with administering an electronic information access activity. 

 The proposed technology grants included in our appropriations request would ensure 

reasonable public access and proximity to at least one electronically-capable library in every 

congressional district. The grants, at up to $25,000 each, would be used for public access work 

stations and Internet connections in depository libraries. This one-time financial assistance 

would enable the libraries to achieve a minimum level of capability to serve the public with online electronic Government information. In order to be eligible for the technology grant, the 

libraries would have to demonstrate a need and stipulate that no other funding source is available 

for that purpose. 

 The additional $20,000 requested for travel would provide hands-on training for librarians in 

the use of the GPO Access on-line services and facilitate training in other agency systems 

Legislative Changes To Support the Transition:

 To effectively accomplish the transition and assure extended access to Government 

information through the FDLP, the plan proposes necessary amendments to chapter 19 of Title 

44. The amendments cover the provision to the SOD of electronic source data files, the 

provision to the SOD of advance notice of publishing activities by agencies, the establishment of 

procedures between the SOD and publishing agencies for obtaining electronic copies of 

information published elsewhere than GPO, and the establishment of a requirement for agencies 

to pay for paper copies of publications distributed through the FDLP if they fail to provide 

electronic versions of the publications for dissemination. This particular draft language responds 

to a requirement in the Legislative Branch Appropriations Act for FY 1996 for such language. 

The amendments also include necessary definitions. 
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Comment and Reactions to the Transition Plan: 

 Since the plan was completed in December 1995, it has been reviewed by various library 

associations, the Depository Library Advisory Council to the Public Printer, the participants in 

the ongoing depository library study, and, at the request of the Office of Management and 

Budget, by executive branch agencies. A number of concerns have been raised. 

 From the Government’s perspective, rapidly achieving the level of cooperation between GPO 

and publishing agencies that would be necessary to implement the transition plan may be 

burdensome to the agencies. As agencies increasingly publish their information electronically, 

significantly greater economies could be realized if they provided GPO with their electronic 

source data files (for information which they do not disseminate electronically themselves), and 

if those files were in a limited number of standardized data formats. However, in view of the 

minimal extent of electronic document standardization throughout publishing agencies currently, 

reaching that level of standardization may take time. In order to move the transition forward, 

information provided to the SOD in a non-electronic format, or a non-standard electronic format, 

could be converted by GPO for electronic dissemination. However, the conversion of data, 

whether from print to electronic, or from a non-standard electronic source file, would be an 

expensive process. 

 From the perspective of the library community, the rapid transition to an electronic FDLP 

would pose a significant challenge. The 1995 Biennial Survey of depository libraries asked 

several questions about the electronic capabilities of the depositories. Although 80-90 percent 

report that they have personal computers, CD-ROM capability, and access to the Internet, the 

more detailed picture is different. The fastest growing application on the Internet is the World 

Wide Web, which requires a robust PC and a high-speed connection to use effectively. Yet no 

more than 38 percent of the depositories can offer the public use of even one 486-class PC with 

Web browser software and a full Internet connection. About 12 percent currently have no plans 

to acquire this capability for public use. These facts suggest that many depository libraries face 

significant upgrading of their capabilities before they would be able to serve the public 

effectively in a predominately electronic FDLP. 

 The library community has indicated other reservations concerning the details and pace of the 

transition. Among these are the ability of the public to effectively utilize electronic Government 

information, the financial and staffing impact on the nation's depository libraries, the ability of 

the publishing agencies to supply usable electronic source files or otherwise provide electronic 

access, the commitment of the Government to ensuring the extended availability and 

preservation of electronic information, and the rapid time frame of the transition. Given the 

traditional partnership GPO has shared with the library community in the operation of the FDLP, 

these concerns need to be addressed if the transition plan is to be successful. 

 Depository libraries and the library community have advised us that a transition period of five 

to seven years, rather than two, is a more realistic goal in terms of library capabilities and the 

readiness of the users of Government information. The same message is being received from 

Federal agency representatives who have been involved in the depository library study currently 

being conducted. 
AN-v17-#05-3/15/96 

17

 GPO wholly supports the concept of transforming the FDLP with electronic technologies to 

provide the public with greater access to Government information and to reduce costs. However, 

this objective cannot be achieved efficiently and effectively without the full participation and 

cooperation of all partners in the FDLP, including the publishing agencies, the library 

community, and GPO. 

 There are options to achieve the necessary level of cooperation and participation within the 

current structure of the plan, and within current budget constraints, provided that the time line 

for the transition is adjusted in recognition of the current state of preparedness for a 

predominately electronic FDLP. For example, instead of attempting to optically scan printed 

documents to create files for online access, which can be very expensive, GPO can take 

measures to utilize electronic source files that are presently provided by agencies with their 

printing requisitions. We can continue to distribute publications in microfiche (microfiche is 

extremely cost effective and in fact represents the format in which the vast majority of 

publications are currently distributed to the libraries), or paper when the electronic source is not 

available or is not in a format suitable for conversion for online use. At the same time, we will 

work with and encourage all agencies to provide electronic source files in standard formats 

suitable for online use. These are workable options that will move the FDLP affirmatively in the 

direction of a predominately electronic program over a relatively short term period without 

compromising the FDLP’s capability to effectively serve the public, and without exceeding 

ongoing fiscal constraints. 

 REVOLVING FUND

 GPO’s revolving fund, established by section 309 of Title 44, is authorized on an annual basis. 

 Appropriations are not requested for the fund, because the fund is designed to recover costs 

through offsetting collections for services provided. Revenue is received from Government 

agencies for printing procurement, printing production, publications distribution services 

performed for agencies, and from the public for the sale of Government publications. 

FTE Level:

 The statutory FTE level contained in the revolving fund authorization is requested at 3,750. 

With a beginning FTE level of 3,800, an overall FTE utilization level of 3,750 for the year will 

require GPO to reduce by another 100 FTE’s, to a year-end level of 3,700. In view of the 

significant personnel reductions GPO has made in recent years, continued downsizing must now 

be managed carefully in order not to deprive GPO of the flexibility necessary to process 

fluctuating workload levels, especially workload for Congress. 

Proposed Rate Adjustment:

 The revolving fund has sustained losses since FY 1991 due primarily to the fact that GPO’s 

printing rates have not been adjusted since late 1989/early 1990, an unparalleled length of time 

for no price adjustment. During that period mandatory expenses have increased, particularly 

personnel expenses, which have risen by 21 percent since 1989. Section 309 requires that the 
AN-v17-#05-3/15/96 

18

revolving fund be reimbursed for the full cost of services. This requirement has not been 

effectively implemented under the existing rate mechanism. 

 Accordingly, I recently proposed an increase in GPO’s printing rates of 9.67 percent. The 

adjustment would apply to the hourly rates for products and services produced in GPO’s printing 

plant only. While the adjustment would affect congressional printing, it has already been built 

into the appropriation estimate provided to this Subcommittee. Moreover, the adjustment would 

not affect products produced on a page-rate basis, including the Congressional Record; the 

proposed decrease in the Record page rate will be implemented as described earlier. 

 The revenues derived from the rate adjustment will be used to cover the cost of providing 

production services in GPO’s plant plus other costs allocated to the plant, including supplies and 

materials, utilities, and indirect supervisory and administrative support. This measure is 

necessary for the responsible administration of GPO’s finances under section 309. I have 

communicated this proposal to the Joint Committee on Printing where it is under consideration. 

 REDUCTIONS IN FACILITY ENERGY COSTS

 As required by the Legislative Branch Appropriations Act for FY 1996, GPO is initiating an 

energy conservation program to reduce facility energy costs. We have already achieved 

substantial energy cost savings through recent consolidations of space. Recent and planned 

closings of regional printing plants will also achieve energy cost savings. The greatest energy 

costs for GPO are electricity and steam heat. Our energy saving initiative includes turning off 

transformers and air conditioning units on weekends and utilizing high efficiency light fixtures. 

Additionally, we will reevaluate the ambient temperatures of our facility and make appropriate 

adjustments. Since compliance with the Clean Air Act and the use of dryers on presses will tend 

to increase our consumption of natural gas, we are looking at measures to achieve savings on 

natural gas purchases. These and related measures will enable GPO to maintain energy costs at a 

relatively stable level to offset the cost impact of escalating utility rate increases (for example, 

PEPCO increased Government rates 3.8 percent in July 1995). 

 STUDY OF CUSTODIAL AND SECURITY SERVICES

 As further required by the House report on the Legislative Branch Appropriations Bill for FY 

1996, GPO has conducted a cost feasibility study of outsourcing security and custodial care at 

GPO facilities. The study indicated that savings can be achieved through outsourcing custodial 

care. We are currently reviewing the options for achieving these savings that can be 

implemented without incurring the costs of a reduction-in-force procedure, which would have a 

disruptive impact on GPO’s workforce. 

 The study of security services compared the cost of providing GPO-provided police protection 

with the cost of police protection contracted through the General Services Administration 

(GSA). A small savings resulted. The study has been expanded to conduct a comparison of 

GPO-provided police protection with commercial building security, rather than full police 

protection. 
AN-v17-#05-3/15/96 

19

 The final plan for the future of GPO’s custodial and security services will be submitted to the 

Appropriations Committees as required and for the review of the Joint Committee on Printing 

prior to implementation. 

 Mr. Chairman and Members of the Subcommittee, this completes my prepared statement. I 

would be pleased to answer any questions you may have. 
AN-v17-#05-3/15/96 

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Table of Contents

Interstate Commerce Commission Abolished: Functions Transferred 

 to Federal Highway Administration.................................................. 1 

Surface Transportation Board Register Distributed in Error ....................... 1 

Digital Raster Graphics CDs Being Shipped .......................................... 2 

Abridged Monthly Catalog Published .................................................. 2 

Council Promotional Leaflet Re-Issued ................................................ 3 

Revised Guidelines Published............................................................ 3 

New Census Home Page Prototypes Announced..................................... 4 

Electronic Distribution of Electronic Documents Begins...................................... 4 

Census Marketing Brief ............................................................................................ 4 

Public Printer Statement: House Committee on Appropriations .............................7